HomeMy WebLinkAbout2015-03-04 Utilities Advisory Commission Agenda Packet
NOTICE IS POSTED IN ACCORDANCE WITH GOVERNMENT CODE SECTION 54954.2(a) OR 54956
I. ROLL CALL
II. ORAL COMMUNICATIONS
Members of the public are invited to address the Commission on any subject not on the agenda. A
reasonable time restriction may be imposed at the discretion of the Chair. State law generally
precludes the UAC from discussing or acting upon any topic initially presented during oral
communication.
III. APPROVAL OF THE MINUTES
Approval of the Minutes of the Utilities Advisory Commission Meeting held on February 4, 2015
IV. AGENDA REVIEW AND REVISIONS
V. REPORTS FROM COMMISSIONER MEETINGS/EVENTS
VI. DIRECTOR OF UTILITIES REPORT
VII. UNFINISHED BUSINESS
None.
VIII. NEW BUSINESS
1. Staff Recommendation that the Utilities Advisory Commission Recommend Action
that Council Approve Changes to the Utilities Strategic Plan and Receive the Six
Month Utilities Strategic Plan Performance Update (July through December 2014)
2. Selection of Potential Topics for Joint UAC/Council Study Session Action
3. Selection of Potential Topic(s) for Discussion at Future UAC Meeting Action
4. Overview of Wastewater Treatment Plant Long Term Facilities Plan Presentation
5. Staff Recommendation that the Utilities Advisory Commission Recommend that Action
the City Council Adopt: (1) a Resolution Approving the Fiscal Year 2016 Wastewater
Collection Financial Plan and Amending the Wastewater Collection Utility Reserve
Management Practices, and (2) a Resolution Amending Rate Schedules S-1 (Residential
Wastewater Collection and Disposal), S-2 (Commercial Wastewater Collection and
Disposal), S-6 (Restaurant Wastewater Collection and Disposal) and S-7 (Commercial
Wastewater Collection and Disposal – Industrial Discharger)
6. Staff Recommendation that the Utilities Advisory Commission Recommend that Action
the City Council Adopt: (1) a Resolution Approving the Fiscal Year 2016 Water
Utility Financial Plan and Amending the Water Utility Reserve Management Practices;
and (2) a Resolution Amending Rate Schedules W-1 (General Residential Water Service),
W-2 (Water Service from Fire Hydrants), W-3 (Fire Service Connections), W-4 (Residential
Master-Metered and General Non-Residential Water Service), and W-7 (Non-Residential
Irrigation Water Service)
UTILITIES ADVISORY COMMISSION
WEDNESDAY, MARCH 4, 2015 – 7:00 P.M.
COUNCIL CHAMBERS
Palo Alto City Hall – 250 Hamilton Avenue
Chairman: Jonathan Foster Vice Chair: Asher Waldfogel Commissioners: Audrey Chang, James F. Cook, Steve Eglash, Garth Hall, and John Melton Council Liaison: Gregory Scharff
7. Update and Discussion on Impacts of Statewide Drought on Water and Discussion
Hydroelectric Supplies
IX. COMMISSIONER COMMENTS
X. NEXT SCHEDULED MEETING: April 1, 2015
INFORMATIONAL REPORTS - A complete list of informational reports provided to the UAC can be viewed at
http://www.cityofpaloalto.org/gov/boards/uac/reports.asp?code=CAPALO_8 and at City Hall, 3rd Floor,
Utilities Administration office. Information reports cannot be discussed during UAC meetings, in compliance
with Govt. Code Section 54954.2(a)(2
Utilities Advisory Commission Minutes Approved on: Page 1 of 12
UTILITIES ADVISORY COMMISSION MEETING
MINUTES OF FEBRUARY 4, 2015
CALL TO ORDER
Chair Foster called to order at 7:05 p.m. the meeting of the Utilities Advisory Commission
(UAC).
Present: Commissioners Chang, Cook, Eglash, Hall and Foster and Council Liaison Scharff
Absent: Vice Chair Waldfogel and Commissioner Melton
Note that Commissioner Hall excused himself and left the meeting at 8:15 p.m., just after the
discussion of the preliminary financial projections for the Wastewater Collection U tility.
ORAL COMMUNICATIONS
Resident Jeff Hoel asked if the UAC has jurisdiction over fiber, including the Fiber to the Premise
(FTTP) project.
David Carnahan, Deputy City Clerk advised that the City is recruiting for three terms on the
Human Relations Commission, three terms on the Public Art Commission and two terms on the
Utilities Advisory Commission. These terms run three years, from May 1, 2015 through April 30,
2015. He advised that the application deadline is March 3, 2015. Members of the Human
Relations Commission must be Palo Alto residents. Utilities Advisory Commissioners must be a
utility customer or an authorized representative of a utility customer. Six of the seven Utilities
Advisory Commissioners must be Palo Alto residents. Public Art Commissioners shall be
members of the architectural review board or shall be professional visual artists, professional
visual arts educators, professional visual arts scholars, or visual arts collectors whose
authorities and skills are known and respected in the community and, whenever feasible, who
have demonstrated an interest in, and have participated in, the arts program of the city. David
encouraged members of the public in the audience and viewing from home to consider these
exciting opportunities.
Chair Foster asked if the UAC still has an advisory role over fiber. Deputy Sr. Assistant City
Attorney Jessica Mullin says that nothing has changed. Council Member Scharff said that
Council is looking at several phases but that he encourages the UAC to get involved in the FTTP
project in the future. Director Fong reminded the UAC that the City’s Chief Information Officer
Jonathan Reichental updated the UAC several months ago.
DRAFT
Utilities Advisory Commission Minutes Approved on: Page 2 of 12
APPROVAL OF THE MINUTES
Commissioner Hall noted that, as recorded in the minutes, he left the meeting at the end of
Item 5. However, the minutes state that he voted yes on Item 6 after he had left the meeting.
He suggested that the minutes be corrected to remove him from the list of commissioners
voting for the item and change the minutes to state that he was absent, rather than “recused
from the motion” as shown in the draft minutes.
Commissioner Cook moved to approve the minutes from the December 10, 2014 UAC meeting
as modified with the changes suggested by Commissioner Hall and Commissioner Eglash
seconded the motion. The motion carried unanimously (4-0 with Chair Foster, Commissioners
Chang, Cook and Eglash voting yes, Vice Chair Waldfogel and Commissioner Melton absent and
Hall abstaining).
AGENDA REVIEW AND REVISIONS
Chair Foster stated that more time than originally estimated for the preliminary financial plans
would be needed, but that there were no changes to the agenda.
REPORTS FROM COMMISSION MEETING/EVENTS
None.
UTILITIES DIRECTOR REPORT
1. Solar Group-Buy Program. Palo Alto is joining a regional Solar Group-Buy effort called
Peninsula SunShares which is set to launch on March 31, 2015. This program is administered
by the non-profit, Vote Solar, and includes participating cities from San Mateo County and
Palo Alto. Under a group-buy program, residents and employees of businesses located in
the participating cities can register during the limited-time enrollment period to get a
discounted price for a solar PV system for their home. In addition to a discounted price,
participants in the program will benefit from the simplified solar procurement process. The
program informational report went to the UAC on 10/1/14 and Council on 11/3/14.
2. Community Solar Program. Staff is currently conducting an in-depth risk assessment from
both the customer and City perspectives to address feedback from the UAC at its December
10, 2014, meeting. Concurrently with the risk assessment, staff has also begun negotiating
the associated program agreements. The public/private nature of the prospective
partnership—in specific, confidentiality concerns—has added significant complexity to the
negotiation and risk assessment processes. There is a possibility that th e program, as
described in the December UAC meeting, may not come to fruition. Staff plans to return to
the UAC in Spring 2015 with a new recommendation on the program.
3. Construction Starts on Hayworth Solar. Palo Alto has long been committed to increasing
the amount of renewable energy it purchases, with a recent example being our Power
Purchase Agreement for the Hayworth Solar Farm in June 2014 – which was the fifth solar
PPA the City executed in recent years. The developers of that project, 8minutenerg y and
sPower, announced last week that construction has begun on the project in Kern County,
and that it will be fully operational later this summer. The Hayworth project will provide
Utilities Advisory Commission Minutes Approved on: Page 3 of 12
about 6% of the City’s total electricity supplies, and when all five lar ge-scale solar projects
are completed next year, together they will supply almost one -third of the City’s electricity
supplies—adding to Palo Alto’s existing carbon neutral energy portfolio that includes
hydroelectric, wind and landfill gas-to-energy resources.
4. Staff Speaking Engagements:
On February 3, Senior Resource Planner Shiva Swaminathan and Business Analyst Taha
Fattah made a presentation at the DISTRIBUTECH national conference on one of our
smart-grid pilots.
On January 22, Marketing Engineer Lindsay Joye participated as a presenter in a Solar
Electric Power Association webinar on solar rebate programs.
In December, the City co-hosted a free community forum about drought -proof water
supply resources. Communications Manager Catherine Elvert moder ated the panel
discussion.
5. Marketing Services Update
Launch of PaloAltoGreen Gas Program: In January, the City announced its full launch of
PaloAltoGreen Gas, a voluntary program that allows residents and businesses to pay a
small premium each month to offset the carbon emissions associated with their natural
gas use. Approximately 600 customers have enrolled in the program, including two non -
residential facilities that are purchasing carbon offsets to match 100% of their natural
gas consumption.
Palo Alto is a Semi-Finalist in the Georgetown University Energy Prize Competition:
Beginning on January 1st, and over a two-year period of time, Palo Alto will be
competing with 50 other communities on energy savings, program innovation, potential
for replication, future performance, equitable access, education and overall quality of
services. The winning city will receive $5 million intended for use in continuing programs
to reduce energy consumption. Visit cityofpaloalto.org/Georgetown to contribute your
ideas for our campaign theme of “5 Million Ways to Save."
Mayor’s Green Business Leader Awards: In the third year of the Mayor’s Green
Business leader program, at the Council’s meeting on February 23 rd, Mayor Holman will
present awards for six buildings in Palo Alto that received an Energy Star certification in
2014.
UNFINISHED BUSINESS
None.
NEW BUSINESS
ITEM 1: ACTION: Selection of Potential Topic(s) for Discussion at Future UAC Meeting
Commissioner Cook stated that he would like an update on the Fiber to the Premise (FTTP)
master plan. Commissioner Hall added that he would like to see this in time to offer input to
the Council. Chair Foster asked that the topic be agendized in March or April.
Commissioner Eglash said that "fracking" has become an issue of interest. In addition, fuel
switching has gained some political interest. He recommended that these topics not just be
Utilities Advisory Commission Minutes Approved on: Page 4 of 12
discussed, but that the UAC seek outside experts for presentations. These experts could
represent differing viewpoints. He suggested that these topics could be taken up in the context
of a normal UAC meeting, or in a study session. Director Fong stated that staff is looking into
the idea of conducting study sessions on topics of interest that would have experts present
information on these and other topics of interest.
ITEM 2: DISCUSSION: Preliminary Financial Forecasts and Rate Changes for Electric, Gas,
Wastewater Collection, and Water Utilities
Senior Resource Planner Jon Abendschein stated that this is an informationa l item, but that the
comments from the UAC are very helpful for staff while finalizing the Financial Plans. He said
the presentation would include information on the Electric, Gas, Wastewater Collection, and
Water Utilities, but some information on Refuse rates was also included for context. He said the
City had been able to hold rates steady last year, and the year before that there were no
increases except to water rates. Future projected cost increases were such that holding rates
steady would begin to require cuts into things like infrastructure investment. That meant that
the next few years will require rate increases for the Electric, Gas, Water, and Wastewater
utilities. Next year staff is proposing 3% increases for the Gas Utility, 9% for Wastewater, and
7% for Water. After that, the median residential bill is projected to increase 5-6% each year
through FY 2019, a bit above inflation, and higher than that if Refuse is included. The main
driver for the Electric, Gas, Water, and Wastewater increases was infrastructure investment,
mainly in the City’s suppliers’ systems. Wholesale water costs were going up due to investment
in the Hetch Hetchy water system, improvements to the wastewater treatment plant were
underway, and our costs to transport gas across PG&E’s system were going up as they overhaul
their system to make it safer. In the past, in the face of cost increases like these, the City has
been exemplary about not cutting back on infrastructure investment, and has continued to
make the capital investments needed to keep the system running safely and to avoid pushing a
large capital investment need on to future ratepayers. This forecast assumes that practice
continues. He stated that this year’s bill projections were slightly higher than last year’s, which
was mainly related to higher infrastructure projections.
Abendschein said staff was also planning to propose one change to the Reserves Management
Practices that would apply to all four utilities. The change would not have any short term
impact on the financial forecasts, but it would help staff manage a change in City capital
improvement project (CIP) budgeting practices. That change was expected to result in a release
of funds from the Reappropriations Reserve. The purpose of the CIP Reserve would be changed
for each utility to make it a cash flow and contingency reserve, and funds released from the
Reappropriations Reserve would be added to the CIP Reserve. Staff was also planning to
propose adding minimum and maximum guidelines to the CIP Reserve .
Commissioner Hall asked if the CIP reserve would have a specific plan for CIP reserve
replenishment.
Utilities Advisory Commission Minutes Approved on: Page 5 of 12
Abendschein stated that staff would make an initial reserves management practices proposal
with the upcoming Financial Plans, but plans to review those practices and may propose
changes next year.
Electric Utility
Abendschein stated that for July 1, 2015 staff was proposing no rate increase for the electric
utility. Reserves were adequate to avoid a rate increase until FY 2017, even with the drought.
Delaying the rate increase would allow the City time to do a thorough job with an electric cost
of service study before rates were changed again. He said that the drought had resulted in
additional costs that staff planned to propose to fund from reserves. Staff had originally
planned to draw down the Rate Stabilization Reserve by $5.8 million, but now planned to
propose to transfer $11 million from the hydro stabilization reserve and $11.4 million
drawdown of the rate stabilization reserve. Even with the transfer, reserves were adequate to
manage the utility’s financial position even if the drought continued through FY 2016.
Abendschein showed the utility’s financial projections. He said 5% rate increases were
projected in FY 2017 and FY 2018, and subsequently rates were projected to be stable over the
long term. The increase in costs was mostly associated with renewable energy projects coming
online. The ratepayers were still getting a great value from their electric utility. Rates were
lower than most other utilities in the state, and substantially lower than PG&E. PG&E had
increased their rates 8% in 2011, 3-4% since then, and they had future 3-4% rate increases
planned. By contrast, the City had not changed electric rates since July 1, 2009.
Abendschein showed the reserves levels over the forecast period. The drought had an impact
on supply reserves due to low hydroelectric generation, but there were still ample reserves
remaining to protect against continuing drought. Both supply and distribution reser ve levels
were projected to stay within the reserve guidelines through the forecast period, and well
above the level of staff’s risk assessments.
Abendschein showed the current rate projections compared to the previous year’s projections,
noting that the lack of a rate increase for FY 2016 meant slightly higher rate increases in the
following year, but that the current rate change trajectory would result in roughly the same
customer bill in FY 2020 as projected the previous year. He noted some uncertainties in the
forecast, including the length of the drought (and its effect on hydroelectric generation) and the
timeline for the new transmission line the City had been investigating. The forecast also
assumed the use of the Electric Special Projects Reserve (previously known as the Calaveras
Reserve) for the cost of Smart Grid implementation. That was not a formally adopted policy yet,
and if a different policy was adopted, and the smart grid rollout was funded by rates, it could
result in higher rates in the short term.
Commissioner Hall asked if the chart showing the drawdown in reserves in FY 2015 and FY 2016
assumed a 0% electric rate change.
Abendschein confirmed that this was correct.
Utilities Advisory Commission Minutes Approved on: Page 6 of 12
Commissioner Hall asked what the risk assessment level for reserve adequacy included.
Abendschein stated that the risk assessment included a list of scenarios that had a negative
impact on the utility’s financial position, such as increases in market prices, a decrease in
hydroelectric generation, or supplier default. The utility wanted to keep the reserves above the
risk assessment level.
Commissioner Hall asked whether there were other contexts in which the reserve levels were
reviewed.
Director Fong said that the reserves were reviewed in the context of the bud get annually. She
added that an internal staff risk oversight committee reviews the reserve levels.
Commissioner Hall asked when the levels of the reserves were reviewed outside the budget
process throughout the year.
Director Fong stated that the reserve levels are reported to the UAC and Council in the
quarterly informational reports.
Commissioner Hall recommended that staff provide detail of the reserves and their
management practices in the future.
Director Fong said staff would provide that with the Financial Plans and the quarterly reports.
Commissioner Cook noted that the City has done a remarkable job holding the line on electric
rates over many years as the supply portfolio has become greener and greener and, ultimately
carbon neutral.
Gas Utility
Resource Planner Eric Keniston stated that there would 3 to 4% increases over the planning
horizon. Rate increases were presented holding commodity costs ‘steady’ as they vary monthly
and are passed-through directly to customers. Referring to cost components, capital
improvement budgeting would resume after a two year hiatus to complete outstanding
projects, and all other costs were rising steadily. He noted that the Rate Stabilization reserve
was being drawn down by FY 2018 to moderate rate increases, with the Operations reserve
staying above the minimum and risk assessment guideline levels through the forecast period.
Keniston stated that the 3% increase in FY 2016 was primarily due to increases in the PG&E
transportation cost to Palo Alto, and in outer years, higher capital improvement costs, with rate
increases starting two years earlier than what last year’s financial plans projected.
Regarding capital improvement costs, Keniston stated that costs for main replacement in water,
gas and wastewater have increased by 25 to 50 percent from prior projections. Where possible
and can be done safely, projects have been reduced in size to keep budgets stable. He stated
Utilities Advisory Commission Minutes Approved on: Page 7 of 12
that staff is completing a Gas System Master Plan to determine the appropria te rate of future
pipeline replacement, but future costs remain an uncertainty.
He stated that the forecasts do not include the impact of fuel switching, which could lead to
reduced load. Keniston added that the cap-and-trade program is currently only planned
through 2020 and it is unclear what will happen after that time. The cross-bore program also
is costing more than originally expected, and may go even higher.
Commissioner Eglash stated that he was happy to see the continued focus on infrastructure
investment by the Utilities. He asked if the labor shortages that were experienced a few years
ago have been solved. Assistant Director Tomm Marshall stated that they are caught up now
on projects, but labor shortages for engineers still exist.
Commissioner Eglash noted that in the Electric Utility, we are not proposing a rate increase
even though there are also CIP increases. Abendschein stated that the size of the electric utility
was much larger than the other funds and that the CIP expenses were a smaller portion of the
total expenses for electric.
Chair Foster asked if we could either not increase rates in 2015 and have higher rate increases
next year, or, alternatively, we could have higher increases this year to avoid increases in 2016.
He noted that the 3% and 4% rate increases could be replaced with no change followed by a
subsequent year higher rate change, or the other way around. Abendschein stated that bill
increases may be larger in those scenarios. Director Fong said that the proposal is to spread
out the rate increases and total bill impact. Council Member Scharff stated that he may prefer
an earlier larger increase with no increase the following year. Abendschein stated that
proposals would have to be weighed against having reserves too high.
Commissioner Hall said that his memory is that the Commission has supported smoothing out
the rate changes and not having pre-emptive rate increases that are higher than justified.
Chair Foster mentioned it would be interesting to see what increase in FY 2016 could generate
no increase in FY 2017.
Wastewater Collection Utility
Keniston said that the wastewater rate projections are driven by substantial treatment cost
increases (about 5% per year) causing the need for 4 years of 9% per year rate increases
starting in 2016. Prior year projections were for 7%. The Rate Stabilization reserve is projected
to be drawn down by the end of FY 2016, with the Operations reserve dropping closer to the
minimum and risk assessment guideline levels.
Commissioner Hall inquired as to whether this drawdown was being done to prevent even
larger increases. Keniston responded that that was the case.
Keniston showed that a 9% increase amounted to a $2.64 per month increase in residential
customer bills, and that at the end of the forecast period, with the rate changes shown, average
Utilities Advisory Commission Minutes Approved on: Page 8 of 12
residential bills in FY 2021 would be slightly under $45 per month. As a point of comparison,
surrounding community average bills are currently about $44.50, so Palo Alto is well under the
average.
Keniston stated that sewer main replacement and rehabilitation costs are higher than
anticipated, and that, similar to water and gas, a wastewater collection master planning study is
planned in future years.
Commissioner Hall noted that the treatment cost is a black box to this commission since it does
not have jurisdiction over wastewater treatment. He stated that the Council does not get the
benefit of UAC review of that large part of the costs. Director Fong said that she would ask the
Manager of the Regional Water Quality Control Plant to attend the UAC’s March meeting when
the UAC reviews the Wastewater Financial Plan and rate proposals.
At this point in the meeting, Commissioner Hall left the meeting due to a self-identified conflict
of interest on water issues.
Water Utility
Abendschein presented the water financial projections, which show that 7%/year rate increases
will be required due to the rising cost of water supplies from the San Francisco Public Utilities
Commission (SFPUC) as well as increases in CIP costs. He stated that staff will propose
separating out of the commodity cost on the bill so that the wholesale water cost would be
passed directly on to the customers. This would enhance transparency so that cus tomers
would be able to see the water cost. In addition, the cost of sending notices of water rate
changes would be reduced. Reserves were projected to stay within reserve management
guidelines over the forecast period. Staff anticipated keeping additional funds in the CIP reserve
through the end of FY 2017 in case of unanticipated costs in CIP projects, particularly seismic
upgrades to various reservoirs. Staff was still working on preparing a drought surcharge, which
was not expected to be needed in 2015 unless water use restrictions increase.
Commissioner Eglash asked staff to confirm that a drought surcharge would be needed because
the water utility’s costs were largely fixed, and when usage decreased, revenue had to increase
to cover those costs.
Abendschein confirmed that was the case.
Abendschein explained that rate increases in later years were increasing from the previous
year’s forecast due to a change in the load forecast methodology. Water consumption had
decreased since the recession, and in previous years staff had projected that consumption
would return to normal once the economy recovered. The Bay Area economy had largely
recovered, however, and there had been no increase in water consumption, so staff was now
projecting that water consumption would not increase in the future.
Abendschein said staff had analyzed two major uncertainties in our forecast, a higher CIP cost
scenario just like the one that had been done for the Gas and Wastewater Collection Utilities ,
Utilities Advisory Commission Minutes Approved on: Page 9 of 12
and an extended drought scenarios. An extended drought would reduce reserves meaning that
some of the rate increases in the outer years would have to be moved forward to FY 2020.
Higher CIP costs would result in higher near-term rate increases, 9% to 10% for three years
instead of the 7% under the normal CIP scenario.
Abendschein said that several potential costs are not included in the forecast. These include
extended (or more severe) drought, the impact of which would be managed through drought
surcharges. It also included the need for seismic work on the Foothills water transmission line,
though staff had a consultant investigating a possible lower cost approach to that project
involving a system that could be used to bypass breaks. The SFPUC was also doing condition
assessments of some Hetch Hetchy assets that were not included in their Water System
Improvement Plan, and if those revealed the need for additional work, it could increase
wholesale water costs. Lastly, the rate impact of a potential recycled water project had not yet
been analyzed.
Commissioner Eglash complimented staff on the complex analysis. He stated that staff may be
much too optimistic regarding the drought’s impact on water rates and that he thought that a
return to pre-drought use levels may not be a good assumption to make. He said that it will
take many years to replenish the state’s water reservoirs. There could be extended periods
with reduced precipitation and less snowfall and more rain in the Sierra as well. He asked if
staff has given enough consideration of a "new normal" of lower water availability.
Abendschein said it was worth considering, and that there had not been a return to pre-
drought usage levels after prior droughts. He said it was a good argument for not putting the
water rate increase off another year. He added that although there is the potential for a “new
normal” level of water consumption, it would be premature to adjust rates preemptively.
Director Fong added that if there was a real need, staff would return to Council with a mid-year
rate increase request.
Commissioner Chang asked if the forecasts took into account efficiency savings.
Abendschein confirmed they did.
Commissioner Chang asked if staff considered the bill impact on business customers.
Abendschein said rates were based on a cost of service model, but that staff considered the bill
impact to all customer groups when setting rates.
Commissioner Chang asked about the outreach strategy for the rate increases. The projections
showed large cumulative rate increases, 30% over 5 years. There were good reasons for the
increases, but it was important to explain them to people in easily understandable terms.
Director Fong explained that staff had focused on carefully communicating rate changes in prior
years and would continue to do so.
Utilities Advisory Commission Minutes Approved on: Page 10 of 12
Council Member Scharff asked what would happen if customers conserved and the SFPUC was
able to sell the water they saved to other agencies . Would it have a beneficial impact to
customers bills?
Abendschein said that if Palo Altans reduced their per-capita water consumption and more
water was available to other agencies, as those agencies grew they might use more water,
meaning more of the costs of the Hetch Hetchy system would be allocated to other agencies.
That would have a beneficial impact on Palo Alto customers’ bills.
Chair Foster asked staff to confirm that customers in Palo Alto had paid substantially for
improvements to the Hetch Hetchy system.
Abendschein said they had, just like other customers of the Hetch Hetchy sy stem.
Chair Foster asked whether the Santa Clara Valley Water District had paid anything for those
improvements.
Abendschein said that to his knowledge, they had not.
ITEM 3: DISCUSSION: Update on the Santa Clara Valley Water District’s Collection of all of its
State Water Project Costs via Property Taxes Instead of Water Rates
Public Comment
Gary Kremen, Chair of the Santa Clara Valley Water District (SCVWD), but speaking as a Palo
Alto resident tonight, stated that Palo Alto property owners pay three components to the
SCVWD on their property tax bills: for Clean Safe Creeks, for flood control, and for the State
Water Project (SWP). It is the SWP component for which the property owners do not get any
benefit. He noted that, since the City does not pump any groundwater, it gets no benefit from
the SWP property tax collections. He said that the northern part of the county pays a larger
part of the SWP tax than its population share—14% of the county population but pay 25% of
the SWP tax. He encourage the City to keep all options on the table and that the SCVWD staff
has some ideas, including supporting an expansion of the City’s recycled water system.
Steve Jordan, Board member of the Purissima Hills Water District (PHWD), stated that his
service area’s property owners also share the "joy" of paying the SWP tax and receiving no
benefit. He said they are looking forward to working with Palo Alto City staff on this issue. He
said that the PHWD asked the District for additional water in the past and was told that there is
no water for them. So, he concluded that they too have been paying the taxes for years, but
actually have received no water as a benefit of all these costs. He also noted that the District
prepares its rate changes each year after assuming that the Board will decide that SWP should
be collected entirely from property taxes. The Board makes the formal determination after the
rates have been set.
Brian Schmidt, former SCVWD Board member, stated that he also has publicly raised the SWP
issue in the past. He stated that the City does get some benefit from the District and that the
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goal should not create a wall between the City and the SCVWD. He noted that the City can
indeed pump groundwater if it so chooses, and that SCVWD actions make that possible. In
addition, the City could get a benefit from the SCVWD for developing its recycled water project.
He suggested that the City try to balance out the costs between conservation dollars received
and property tax dollars spent.
Chair Foster asked Mr. Schmidt how much it costs the District for water conservation programs.
Schmidt did not know. Chair Foster asked if the City could decide to use SCVWD water now.
Schmidt said that the regional intertie in Milpitas could be used for the City to get water from
the SCVWD. Schmidt added that the City should work with others and gain allies.
Commissioner Cook asked why the City used to get a credit for Hetch Hetchy water, but doesn't
now. Schmidt said that the credit was eliminated when the price of water from the SFPUC and
SCVWD was the same.
Jim Fiedler, SCVWD’s Chief Operating Officer, stated that the SCVWD would welcome having a
contract with the SFPUC and have asked the SFPUC about that. Fiedler said that the SCVWD
provided the City about $160,000 per year for conservation programs. Chair Foster said that
City property owners pay the SCVWD about $1.6 million in SWP tax charges. Fiedler said that
the intertie has been used by both the SFPUC and SCVWD when needed for reliability. Fiedler
stated that the groundwater extraction fee would be paid for any groundwater pumped.
Fiedler delivered a presentation on the SWP tax. He said that state voters approved the SWP in
1960 and the SCVWD recovers 100% of its SWP costs via property taxes as decided by the Board
annually. He said that the City of Palo Alto has experienced, or has the potential to experience,
land surface subsidence of up to 5 feet and other parts of the County have experienced 13 feet
of land surface subsidence, which was finally halted when imported water and groundwater
management practices were introduced by the SCVWD. He stated that the SCVWD strongly
supports recycled water, which could be taken advantage of by Palo Alto. He added that the
SCVWD recently completed an advanced water purification plant that can treat wastewater to
potable water quality for reuse, potentially including direct potable reuse in the future.
Commissioner Cook commented that the idea of paying the tax without receiving any tangible
benefits is outrageous. He asked if the City can get water from the SCVWD directly via a
pipeline. Fiedler responded that in emergencies, SCVWD water has been provided to SFPUC
customers via the Milpitas interconnection. Fiedler added that, if groundwater was used, it
would essentially be getting SCVWD water. Commissioner Cook stated that by not pumping,
the City is not contributing to groundwater levels falling that could contribute to land surface
subsidence. Fiedler confirmed that, but noted that the City is relying on the District for making
sure that groundwater is available for the City in emergencies.
Council Member Scharff added that the City is saving the SCVWD lots of money since it does
not draw on groundwater, but if it did, it would cause the SCVWD to recharge the aquifer,
costing it money.
Utilities Advisory Commission Minutes Approved on: Page 12 of 12
Commissioner Cook commented that the City takes great pains to comply with the cost of
service requirements for setting water rates, but this constraint doesn't seem to exist for the
situation of paying property taxes, but not getting any water for it. Commissioner Cook asked
how the SCVWD can conform to these Proposition 218 requirements. Fiedler stated that the
Board follows all Prop. 218 requirements and the Board has the authority to make a decision on
how much of the SWP costs to collect via property taxes.
Chair Foster asked if the SCVWD is amenable to contributing to the City's recycled water
project. Fiedler said that the SCVWD is very interested in expanding recycled water and noted
that the Board has sent a letter to Palo Alto’s mayor to begin such discussions. Chair Foster
suggested that the SCVWD make a specific proposal for how much it would support the
recycled water project.
Commissioner Eglash asked Mr. Fiedler to explain, assuming the City stopped paying the tax,
what benefits would the City not get from the SCVWD. Fiedler said that the Board has not
entertained that idea. He added that if the SCVWD did not pay the SWP costs (a contractual
obligation), it would not get the SWP water.
Chair Foster said that the UAC may want to agendize this topic again in the future. He said that
there may be a legal aspect of this topic as well.
Council Member Scharff informed the UAC that the Council may have a closed session on this
item in the future.
ITEM 4 DISCUSSION: Update and Discussion on Impacts of Statewide Drought on Water and
Hydroelectric Supplies
Senior Resource Planner Karla Dailey stated that the SFPUC's regional water system customers
exceeded the 10% water use reduction goals. Therefore, it is likely that a 10% goal will remain
unless it gets critically dry, in which case 20% reductions may be required. The City as a whole
did well by reducing usage by 16% in 2014 compared to 2013 usage. City operations reduced
usage by 28% compared to 2013.
Dailey also presented the impact on the drought on hydroelectric supplies—the additional cost
of the drought for the electric utility is expected to be about $9.26 million in FY 2015.
COMMISSIONER COMMENTS
Chair Foster announced his appointment of Commissioners Melton and Cook to a
subcommittee to review the budget, financial plans and rate increases.
Meeting adjourned at 9:35 p.m.
Respectfully submitted,
Marites Ward
City of Palo Alto Utilities
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1
MEMORANDUM
TO: UTILITIES ADVISORY COMMISSION
FROM: UTILITIES DEPARTMENT
DATE: MARCH 4, 2015
SUBJECT: Staff Recommendation that the Utilities Advisory Commission Recommend
that Council Approve Changes to the Utilities Strategic Plan and Receive the Six
Month Utilities Strategic Plan Performance Update (July through December
2014)
RECOMMENDATION:
Staff recommends that the Utilities Advisory Commission (UAC) recommends that Council
approve changes to the Performance Measures and Strategic Initiatives in the Utilities Strategic
Plan (see - Attachment A). The changes are summarized and described in more detail in this
report.
SUMMARY:
Staff regularly reviews the strategic objectives, performance measures, and strategic initiatives
of the Utilities Strategic Plan and recommends any appropriate updates. The changes
recommended do not represent a major shift in strategic direction, but are updates to the plan
to clarify certain objectives, remove completed strategic initiatives, and add new in itiatives.
In addition, this report is the semi-annual status report of the Utilities Strategic Plan for the
period from July through December 2014. The Council-approved Utilities Strategic Plan uses a
Balanced Scorecard concept with four main perspectives (“Four Perspectives”) with strategic
objectives to be achieved for each. To translate these objectives into plans for action,
performance measures were identified for each objective. A summary of the performance
measures and status for each of the Four Perspective s is shown below:
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Performance Measures Summary (July - December 2014)
Internal Business Process Perspective
People & Technology Perspective
Performance Measure Status
Performance Measure Status
Interruption Duration Met
Employee Satisfaction Not yet met
Emergency Response Time Met
Certification & Training Met
Gas Incident Rate Met
IT Service Needs Not yet met
Gas Safety Awareness Met
New Technology Evaluation Met
Infrastructure Backlog N/A
Call Wait Time Met
Financial Perspective
Billing Adjustments Met
Performance Measure Status
Emergency Notification Met
High Credit Ratings Met
Program Participant Satisfaction Met
Maintain Reserves Met
Competitive Commodity Bids Met
Fixed Charges Recovered Not yet met
Unaccounted Gas & Water N/A
Returns to Community Met
Full Value from Redwood Gas Met
Strategic Initiatives
Not yet
met
Customer & Community Perspective
Electric Portfolio Carbon Intensity Met
Performance Measure Status
Electric Efficiency Achievement N/A
System Interruptions Met
Gas Efficiency Achievement N/A
Service Restoration Not yet met
Satisfaction Met
Competitive Bill Met
Rate Change Met
PaloAltoGreen Participation N/A
The Balanced Scorecard Performance Measures Result (Attachment B) provides a more detailed
description of the objectives and performance measures within each of the Four Perspectives.
The (+) “plus” or (-) “minus” listed after each measure on the chart in Attachment B is an
indicator of the degree to which the measure has been achieved. Where “TBD”, or “to be
determined” is noted, it indicates that staff continues to evaluate benchmark goals for a
performance measure, which must be done prior to assessing progress towards achieving the
performance measure.
It should be noted that the Four Perspectives are presented above, and throughout this report,
in no particular order; they are not arranged in order of importance and no single item is
weighted more heavily than another.
BACKGROUND
On July 18, 2011, the Council approved the 2011 Utilities Strategic Plan (Staff Report 1880). On
August 5, 2013, the Council approved changes to the performance measures and strategic
initiatives in the Utilities Strategic Plan (Staff Report 3950). In implementing the Utilities
Strategic Plan, staff regularly reviews the objective measures and initiatives and recommends
any appropriate updates on an annual basis. In addition, on a semi -annual basis, staff reports
progress on implementation of the plan to the UAC and Council.
Page 3 of 18
The Balanced Scorecard tracking methodology was chosen by staff to assist in performance
measurement and to promote better understanding of the City of Palo Alto Utilities’ (CPAU)
strategic business processes. These updates help keep staff on track, but not all measures may
have progress to be reported semi-annually either because updated data is not yet available or
because the data is more meaningful as an annual measurement. Utilities managers meet on a
regular basis to review the overall Utilities Strategic Plan and evaluate the strategic objectives,
performance measures, and targets, and strategic initiatives. From time to time, management
will recommend changes to keep the Utilities Strategic Plan aligned with changing
environments and priorities.
With this report, staff is proposing changing certain performance measures, removing several
completed strategic initiatives, and adding several new strategic initiatives.
The Four Perspectives used in the Strategic Plan are:
Customer and Community
People and Technology
Finance
Internal Business Processes
Each of the Four Perspectives represents a specific viewpoint and ensures CPAU’s business
activities are aligned with the Strategic Plan. The Customer and Community Perspective
represent customer satisfaction and delivery of services to stakeholders. The Internal Business
Processes Perspective covers operational goals and outlines the key processes necessary to
deliver services to customers. People and Technology includes employee training and
development as well as keeping pace with technological advancements in the utilities industry.
The Finance Perspective focuses on CPAU having a strong financial base and delivering cost -
effective services.
Each of the Four Perspectives of the Utilities Strategic Pl an includes strategic initiatives which
are key programs or projects required to achieve one or more objectives and the overall
strategic plan. Many of the original strategic initiatives were completed and two new ones
were added when Council approved updates to the Strategic Plan in August 2013, resulting in 9
active initiatives. Strategic initiatives aim to significantly change the way CPAU does business,
require significant resources to complete, and have a defined timeline.
DISCUSSION
A summary of performance under each of the Four Perspectives as well as explanations for the
proposed changes to the Utilities Strategic Plan follows.
CUSTOMER AND COMMUNITY PERSPECTIVE
Four categories are measured from this perspective, namely service reliability, customer
satisfaction with CPAU’s responsiveness, competitive bills compared to neighboring
communities and care for the environment. CPAU has achieved four performance measures,
one measure was not met, and one measure is being proposed to be replaced.
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Proposed Changes to Strategic Plan:
Customer and Community Perspective Recommended Changes
C1.2 – For target, reduce the number of electrical service interruptions for average
customer from “3.0” to “0.9”.
C3 – For strategic initiative, replace “mobile app capabilities” to “online capabilities”.
C4.1 – For performance measure, replace “PaloAltoGreen” with “PaloAltoGreen Gas”
and change target from “Top rank nationally” to “20% of customers”.
C4.2 – Add a second performance measure “Percentage of greenhouse ga s reductions”
with target of “10% GHG reductions”.
C4 – For strategic initiative, replace “Redesign the PaloAltoGreen program by January
2014” with “Reevaluate the cost-effectiveness of electrification especially for new
construction and evaluate whether new programs or incentives can and should be
offered, consistent with all applicable legal requirements.”
Performance Measures
Service reliability performance measure targets:
C1.1: an average restoration time after an outage of 90 minutes or less per inte rrupted
customer
C1.2: an average number of 3 or fewer interruptions per customer per year
Proposed Change:
C1.2: an average number of 0.9 or fewer interruptions per customer per year
Staff proposes reducing the C1.2 performance measure target for the number of
electrical service interruptions for the average customer from 3 or fewer to 0.9 or fewer.
The previous measure of 3 or fewer is based on the Institute of Electrical and Electronics
Engineers (IEEE) standard 1366-1998, the median duration in hours for total customer
interruptions. The proposed value of 0.90 or fewer represents the top quartile and is
based on an updated IEEE standard 1366-2003. This updated standard is named System
Average Interruption Frequency Index (SAIFI) and measures the average number of
times that a customer will experience an interruption during a specific time frame. This
measure is a more consistent and impactful reliability index because it factors in the
total number of customers impacted by major events. CPAU will update the historical
performance measure results based on the new standard.
Between July and December 2014, CPAU experienced 5 isolated outages which impacted 58
customers in total. CPAU’s performance measurement for number of interruptions per average
customer of 0.002 was significantly lower than the proposed target of 0.9. CPAU did not meet
the performance target of less than 90 minutes to restore service for interrupted customer. A
couple of the outages were due to faulty transformers. Service restoration for unplanned
transformer replacement requires significantly more time because it involves a full crew and
delivery of a new transformer. The average time to restore service per interrupted customer
was 114 minutes.
Page 5 of 18
Customer satisfaction performance measure target:
C2: to be rated 85% or higher in overall customer satisfaction
The most recent customer satisfaction survey was conducted by ESource, a market research
agency specializing in utilities. The survey was geared towards large customers an d key
accounts. CPAU was ranked fourth out of 25 utilities and received an overall satisfaction and
value rating of 87%. CPAU received high marks in trustworthiness and reliability. The
recommended actions to improve customer satisfaction included providing customers with
more energy advice, increasing the number of on-site visits and providing more resources on
managing energy costs.
Customer paying a reasonable bill performance measure targets:
C3.1: bill is less than the average bills in neighboring communities
C3.2: rate increases are less than 10% (electric, gas, wastewater) and 20% (water)
CPAU met the “reasonable bill” performance target, with the total average residential bill for
electric, gas, water and wastewater services in Palo Alto being $176.81, which is 6% below the
average bill of $187.05 in neighboring jurisdictions (i.e. Menlo Park, Mountain View, Santa Clara
and Redwood City). CPAU’s bill for electric and wastewater is below the average of neighboring
cities; however, CPAU’s water bill is higher and CPAU’s gas distribution costs are currently
higher than PG&E’s while both PG&E and CPAU’s gas commodity rates vary month to month
depending on depending on the market price of gas.
CPAU also met the performance measure of a “less than 10%” rate increase for electric, gas,
and wastewater and a “less than 20%” rate increase for water. For FY 2015, there were no rate
adjustments for electric, gas, water and wastewater services.
PaloAltoGreen performance measure target:
C4: top rank nationally
Proposed Changes:
PaloAltoGreen Gas performance measure target
20% of customer participation
10% greenhouse gas reductions
Staff proposes replacing “PaloAltoGreen” with “PaloAltoGreen Gas” in the performance
measure and replacing the performance target for customer participation from “top
rank nationally” to “20% of customers”. Staff also proposes adding a new performance
measure target: “Percentage of greenhouse gas reductions” with performance target of
“10% greenhouse gas reductions”. These changes are recommended since
PaloAltoGreen (PAG) Electric program has been terminated for residential customers as
a result of the City’s adopted electric carbon neutral portfolio. The voluntary PAG Gas
program (approved by Council on April 21, 2014 (Staff Report 4596) allows customers to
eliminate or reduce greenhouse gas emissions associated with their natural gas use.
Page 6 of 18
The proposed PAG Gas target of 20% customer participation is the same as what the
PAG Electric program achieved. Since the program was launched in January 2015, over
750 customers have enrolled in PAG Gas.
Strategic Initiatives
Under the Customer and Community perspective, the Utilities Strategic Plan identified four
strategic initiatives. The following gives the status of these initiatives.
Two initiatives are underway and ongoing:
C2: To establish more mechanisms for eliciting feedback from customers. Utilities will
continue to develop in-house surveys and other market research mechanisms to better
evaluate the effectiveness of community outreach and City services. CPAU is engaging
encouraging customers to contact us with suggestions or feedback through various
communication channels: City’s webpage, My Utilities Account customer portal, Palo
Alto 311, Our Palo Alto neighborhood discussions, community events, workshops, direct
mail and social media. The City is also exploring analytical tools to evaluate the
effectiveness of different channels of customer communications.
C3: Improving the electronic bill presentment, payment functionality, and enhancing the
utility’s mobile app capabilities.
Proposed Change:
C3: Improving the electronic bill presentment, payment functionality, and enhancing
the utility’s online capabilities
Staff recommends replacing “mobile app capabilities” with “online capabilities”. CPAU
conducted an in-house My Utilities Account (MUA) survey and participated in the
ESource residential website assessment. MUA customers ranked user friendly display
and presentation of the website significantly higher than being mobile friendly. CPAU’s
website was ranked in the bottom quartile in the ESource review for functionality and
usability. Some of the recommended changes include simplifying the home page,
adding more outage-reporting functionality, and expanding energy-use information. In
the spring of 2015, a comprehensive third-party review of the City’s ERP and Utilities
Billing System is planned with the objective to assess the system’s business
requirements, identify key improvements and determine the best approach to enhance.
This includes reviewing MUA online customer portal and payment functionalities for the
Utilities Billing System.
Page 7 of 18
One initiative is proposed to be replaced since it was completed:
C4: To redesign the PaloAltoGreen program. The PAG Electric program was suspended
in September 2013 when the City adopted the carbon neutral plan (Staff Report 4041).
The residential program was eliminated and the commercial program was reinstated by
Council on June 9, 2014 (Staff Report 4718). The new PAG Gas program was approved
by Council on April 21, 2014 (Staff Report 4596) and launched in January 2015.
Proposed Change:
C4: Reevaluate the cost-effectiveness of electrification especially for new construction
and evaluate whether new programs or incentives can or should be offered, consistent
with all applicable legal requirements.
Because the PaloAltoGreen program has been re -designed and the new PAG Gas
program was launched in January 2015, staff recommends the following new initiative
to evaluate the cost-effectiveness of fuel-switching, or “electrification” especially for
new construction. Since the City’s electric supply is 100% carbon neutral, reduction in
the City’s greenhouse gas (GHG) emissions must come from reductions in the
community’s use of natural gas and transportation fuels. Another way to reduce GHG
emissions is to replace gas appliances (hot water heaters, space heaters, clothes dryers,
and stoves/ovens) with electric appliances or to replace gasoline -powered vehicles with
electric vehicles. Installing 100% electric appliances in a new home or major remodel
has the potential to be more cost-effective than the retrofit of existing gas appliances.
With the California state goal of net zero energy for newly constructed residential
buildings by 2020, the City may consider developing fuel-switching, or “electrification”,
incentives for residential new construction projects. Staff is tentatively scheduled to
provide the UAC an update of the cost effectiveness of electrification in the spring of
2015. In addition to evaluating cost-effectiveness, any proposed electrification
incentives or programs must be specifically analyzed and considered in the context of all
applicable legal, statutory and regulatory requirements and guidance, including, for
instance, constitutional limitations on utility rates imposed by Californians when they
adopted Proposition 26, obligations set forth in the Cap -and-Trade regulations adopted
by the California Air Resources Board, and other miscellaneous requirements embedded
in the California Public Utilities Code.
UTILITIES INTERNAL BUSINESS PROCESS PERSPECTIVE
Under this perspective, CPAU covers operational safety and reliability goals, communication
and delivery of services to customers, and environmental sustainability. The largest number of
performance measure targets fall under this perspective. Eleven were met, one was not met
and four were unavailable because they are annual targets.
Page 8 of 18
Proposed Changes to Strategic Plan:
Internal Business Process Perspective Recommended Changes
BP1.2 – Add strategic initiative “Complete the Water Integrated Resource Plan (WIRP)
including a comprehensive evaluation of the use of groundwater by end of CY2015 ”
BP3 – For objective, replace “electric service” with “utility services”; replace “reducing
the backlog and replaces infrastructure systems” with “reducing any backlog of
infrastructure work and replace infrastructure systems”; and add “when possible” in
spreading expenses across multiple years.
BP3 – For performance measure, replace “Backlog of infrastructure elements whose age
is beyond its useful life” with “Backlog of infrastructure elements whose ages are
beyond their useful lives.”
BP3 – Add strategic initiative “Complete long range Gas and Water master infrastructure
plans by end of CY2015.”
BP5 – For objective, remove “For example, Palo Alto’s gas rate stability is something
customers should be educated about as it differentiates CPAU from PG&E.”
BP5 – For performance measure, replace “at least 500 customers or any sensitive major
customers” with “all sensitive major customers”
BP7 – Replace strategic initiative “Pursue gas prepay transactions to leverage the City’s
low cost of capital and tax exempt status to acquire lower cost gas supply resources”
with “Participate actively in Northern California Power Agency’s (NCPA) on-going
allocation of cost, including new cost allocation studies if undertaken, to ensure that the
City’s costs are fair. Evaluate alternative providers for services provided by NCPA as
appropriate. ”
BP8 – Add strategic initiative “Complete water benchmarking study by end of FY2015.”
BP11 – Replace performance measure “Carbon intensity of the electric portfolio” with
“Meet the state’s 20% per capita water use reduction by 2020 target”; Replace target of
“80% of baseline (2005) level” with “20% by 2020”
BP11 – Add strategic initiative “Complete EIR and financial plan for expanding recycled
water system.”
BP12.1 – For target, replace “goals set in May 2010” with “goals Council set in December
2012”.
BP12.2 – For target, replace “goals set in January 2011” with “goals Council set in
December 2012”.
BP12 – Add strategic initiative “Include all cost-effective water efficiency measures in
2015 Urban Water Management Plan (UWMP)”
Performance Measures
Ensure a reliable supply of utility resources
BP1.1: Restoring electrical power in less than 60 minutes
BP1.2: Responding to emergency calls in less than 30 minutes
Page 9 of 18
Both of these performance measures were met. The duration of electric system electric
interruption per average customer was 23 minutes. The average response time to emergency
calls was 20 minutes.
Operate the utility systems safely
BP2.1: Zero reportable gas incidents
BP2.2: Customer awareness of gas safety issues is 90% or greater
Both these performance measures were met. There were zero reportable gas incidents. In the
annual gas safety awareness survey, 95% of the respondents believe they have adequate
information about natural gas safety.
Replace infrastructure before the end of its usefu l life
BP3: Backlog of infrastructure elements whose age is beyond its useful life
Objective Statement: We will continue to implement a long-term strategy for replacing
infrastructure before the end of its useful life. Reliable delivery of electric servi ce to our
customers is critical for the success of business and the quality of life for our residents. To
accomplish this, we will focus on reducing the backlog and replaces infrastructure systems
in a manner that spreads the expense across multiple years resulting in program with even
expenditures patterns in future years.
Proposed Change:
We will continue to implement a long-term strategy for replacing infrastructure before
the end of its useful life. Reliable delivery of utility services to our customers is critical for
the success of business and the quality of life for our residents. To accomplish this, we
will focus on reducing any backlog of infrastructure work and replaces infrastructure
systems in a manner that spreads the expense across multiple years resulting in program
with even expenditures patterns in future years when possible.
Staff recommends revising the description of the strategic objective to include all
utility services including electric, gas, water, wastewater collection and fiber.
CPAU will continue to serve the community by protecting consumers and
ensuring the provision of safe, reliable utility services and infrastructure at
reasonable rates.
For performance measure BP3, staff recommends replacing “Backlog of infrastructure
elements whose age is beyond its useful life” to “Backlog of infrastructure elements
whose ages are beyond their useful lives.”
Deliver customer service promptly and completely
BP4.1: Average phone wait time in less than 90 seconds
BP4.2: Number of annual billing adjustments is less than 2,958
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Both these performance measures were met. In the first half of FY 2015, the average phone
time wait is 61 seconds and CPAU has processed 849 billing adjustments.
Communicate proactively to all stakeholders
BP5: Report significant disruptions within 60 minutes
All recent major disruptions have been reported to the public and media via phone, website,
and social media within 30 minutes or less.
Offer programs to meet customer and community needs
BP6: At least 90% of surveyed customers satisfied with program experiences
CPAU hosted a couple workshops to raise awareness about water efficiency as well as ongoing
drought conditions. There were 40 customers in attendance for the “From Gray Water to
Green Garden” workshop which taught residents the logistics of implementing a gray-water
system in their homes. There was high engagement amongst the 50 attendees in the
“Alternatives to Lawn” workshop which introduced residents to water -conserving lawn
alternatives. Both workshops received a high level of customer satisfaction averaging 95%.
Negotiate supply contracts
BP7: Receive at least three competitive bids for electric fixed-price purchase
Maximize value of existing generation assets
BP9: Receive full value from Redwood gas pipeline
Both performance measures BP7 and BP9 have been met.
Manage implementation of strategic plan
BP10: 100% of strategic initiatives completed
This performance measure has not yet been met. Strategic initiatives are specific programs or
projects required to achieve key objectives in the overall strategic plan. Strategic initiatives are
updated and re-prioritized as business needs change over time. When the strategic plan was
developed in 2011, CPAU identified 17 initiatives. Since then, 12 of the initial 17 initiatives have
been completed including redesign of PaloAltoGreen, reassess gas laddering strategy, develop
communications plan, implement new technologies program and re-evaluate Calaveras
Reserves. One new initiative, development of a comprehensive financial policy, was added in
the 2013 strategic plan update and has been completed. Staff proposes to replace or add eight
new initiatives in this update as described in this report.
Increase environmental sustainability
BP11: Carbon intensity of the electric portfolio
Page 11 of 18
Proposed change:
Meet the state’s 20% per capita water use reduction by 2020 target
Since the City adopted a 100% carbon neutral electric supply portfolio, the carbon intensity
of the electric portfolio is zero. Staff proposes to replace this measure with “Meet the
state’s 20% per capita water use reduction by 2020 target.” T he 2010 Urban Water
Management Plan (UWMP) includes a plan to meet the requirement to reduce per capita
water usage by 20% by 2020 under the Water Conservation Act of 2009 (SBx7-7). Some of
the demand side management programs include water audits, plumbing retrofits, landscape
conversion, rebates, and educational workshops.
The following performance measures were not updated because these measures are only
meaningful as an annual measurement:
BP3: Backlog of infrastructure beyond its useful life
BP8: Lost and unaccountable volumes of gas and water
BP12.1: Electric energy efficiency achievement
BP12.2: Gas energy efficiency achievement
Strategic Initiatives
There are two strategic initiatives for the internal business process perspective.
One initiative is underway:
BP1.1: Develop a plan to complete a new electric transmission interconnection . The City
continues to have ongoing discussions with Stanford, SLAC National Accelerator
Laboratory, the Department of Energy, Pacific Gas and Electric, and the California
Independent System Operator to evaluate alternative transmission connections. The
parties are awaiting the results of further studies, anticipated to be completed by the
spring of 2015, to evaluate other reliability options and approaches.
One initiative is completed and is proposed to be removed:
BP7: Pursue gas prepay transactions to leverage the City’s low cost of capital and tax-
exempt status to acquire low cost gas supply resources. Gas prepay transactions offer
an opportunity for CPAU to reduce gas commodity costs. Council approved a long-term
prepay transaction with MuniGas on September 15, 2014 (Staff Report 5006). The
MuniGas program has a very low risk way and takes advantage of the City’s tax-exempt
status to achieve a discount on the commodity cost for all CPAU gas rate payers. This
program also meets the Council-approved Gas Utility Long-term Plan (GULP) objectives.
Staff proposes adding the following six new strategic initiatives:
BP1.2: Update the Water Integrated Resource Plan (WIRP) including a comprehensive
evaluation of the use of groundwater by end of CY 2015. The WIRP provides a detailed
evaluation of current and potential resources and policies and provides a blueprint to
guide resource procurement and optimization for the future. Groundwater is an
Page 12 of 18
important water supply resource in California, particularly in periods of drought , and
this resource will be included in the updated WIRP.
BP3: Complete the long range Gas and Water master infrastructure plans by end of
calendar year (CY) 2015. Engineering is updating the 20-year master infrastructure plan.
The gas study will assess the condition of the polyvinyl chloride (PVC) and polyethylene
(PE) materials in the City’s natural gas distribution system, evaluate risks associated with
the materials, and determine the appropriate annual infrastructure replacement rate.
As a result of the 1991 gas distribution assessment, CPAU launched an aggressive gas
main replacement plan to replace acrylonitrile butadiene styrene (ABS) mains and
services. All known ABS material is scheduled to be replaced with polyethylene (PE) by
March 2015.
The water system master plan will identify areas requiring capital improvement and
determine the annual main replacement rate necessary to ensure safe and reliable
levels of service to the existing distribution and transmission conveyance system. The
assessment will serve as the long‐term capital improvement plan and replace the 1986
water main replacement plan. Furthermore, the new study may result in a re-
prioritization of the rehabilitation and/or replacement of the remaining cast iron and
asbestos cement pipe in the system based on current conditions.
BP7: Participate actively in Northern California Power Agency’s (NCPA) on-going
allocation of cost, including new cost allocation studies if undertaken, to ensure that the
City’s costs are fair. Evaluate alternative providers for services provided by NCPA as
appropriate. NCPA has fixed costs associated with Power Management services (i.e.
real-time dispatching, scheduling, contract management, trading, risk management,
settlements, billing). In FY 2015, CPAU is expected to contribute approximately $1.5M,
or 15% of the total Power Management allocation costs. The current cost allocation
methodology is based on load, number of schedules, number of contracts, resource
capacity and other direct services. NCPA is reviewing its cost allocation model to ensure
it is reflective of actual effort expended by NCPA. CPAU is also plans to evaluate
alternative scheduling service providers for its renewable energy contracts.
BP8: Complete Water benchmarking study by end of FY 2015 . CPAU customers have
higher water bills than residents in neighboring cities due to rising commodity purchase,
capital improvement, and operating costs. The benchmark study will compare water
usage, cost drivers, and bill differentials between Palo Alto, Mountain View, Redwood
City, Santa Clara and Hayward, as well as differences in cost allocation between these
agencies.
BP11: Complete environmental impact report (EIR) and financial plan for expanding
recycled water system. The City continues to explore the possible expansion of the
existing recycled water delivery system to serve customers primarily located near
Stanford Research Park. The City is the lead agency under the California Environmental
Page 13 of 18
Quality Act (CEQA) for the recycled water project. In addition, the Bureau of
Reclamation is the lead agency for the project under the National Environmental Policy
Act (NEPA). The City is currently collaborating with the Bureau of Reclamation to
prepare a joint CEQA/NEPA document for the project. Preparation of the Environmental
Impact Report is currently underway. Identifying funding sources either in the form of a
grant or other type of financing arrangement is a critical component of the expansion.
BP12: Include all cost-effective water efficiency measures in 2015 Urban Water
Management Plan (UWMP). CPAU is required to update and submit the UWMP to the
California Department of Water Resources every five years. The next update is due June
2016. The UWMP will assess the reliability of the City’s water sources, support long-
term resource planning, and ensure adequate water supplies are available to meet
existing and future water demands. CPAU will update the 25 cost-effective water
efficiency programs described in the 2010 UWMP that the City plans to im plement over
the next 20 years. These demand management measures are critical to the City’s
success to meet the state’s 20% per capita water use reduction by 2020 target.
PEOPLE AND TECHNOLOGY PERSPECTIVE
CPAU measures attraction and retention of employees, training and development, and
implementation and evaluation of technologies. So far, CPAU has met two performance
measures and two measures have not been met in these categories.
Proposed Changes to Strategic Plan:
People and Technology Perspective Recommended Changes
PT2 – For strategic initiative, replace “Develop a” with “Update the” 5-year succession
plan.
PT3 – For performance measure, replace “Technology needs being met based on
Utilities specific IT strategic plan” with “Employees have adequate tools and training to
perform their jobs”; replace target of “100% for all Utilities work groups” to “100% of
employees”.
PT3 – For strategic initiative, change “IT strategic plan” to “smart grid and IT strategic
plan”.
Performance Measures
Employee attraction and retention performance measure target:
PT1: Improvement from 2011 baseline employee satisfaction survey
CPAU conducted its fourth annual employee satisfaction survey in January 2015. The annual
employee satisfaction survey consists of ten brief questions addressing career development,
training, technology needs, recognition, communication, and stress at work. There were 110
participants in the survey which is approximately a 50% response rate. For employee
satisfaction, 62% of the employees reported being either “very satisfied” or “satisfied” and 15%
reported being “neutral”. This is the first time in three year the satisfaction score was below
Page 14 of 18
the baseline of 63% set in 2011. Areas of improvement identified in the survey were improved
communication across divisions in Utilities and across departments in the City, competitive
compensation, the need for new mobile devices for the field, replacement vehicles, and career
development opportunities. CPAU will work with the appropriate divisions and departments to
address these areas of improvement. As a result of prior surveys, CPAU has increased training,
provided rotational and cross-training assignments, developed new job classifications, and
enhanced the Fred Eyerly employee recognition program.
Training and development performance measure targets:
PT2: 100% of Operations personnel have the appropriate certification and training for
their assigned work area
CPAU is committed to provide ongoing training and development for all employee s to ensure
safety and best practices are implemented in each employee’s current job. Talent development
for succession planning continues to be one of the key focuses for senior management. CPAU is
also working with the City to create an environment for continuous learning including self-
directed webinars, mentoring program, instructor-led classes with eLearning, academies, and
department-specific training. CPAU met its performance target of having 100% of Operations
personnel with the appropriate certification and training required for working in their assigned
areas.
Ensuring workgroups have necessary tools and technologies performance measure target:
PT3: All employee technology needs are being met
Proposed change:
Employees have adequate tools and training to perform their jobs.
Staff proposed changing this performance measure to “Employees have adequate tools
and training to perform their jobs.” CPAU will provide tools and training to employees
immediately based on job requirements instead of p roviding technologies identified in
the IT strategic plan. The Utilities-specific IT strategic plan is a long-term plan and is
being addressed separately as a strategic initiative. A comprehensive assessment of the
City’s SAP Enterprise Resource Planning (ERP) system including Utilities billing and
customer information systems was recently completed. The evaluation identified the
effectiveness and deficiencies of the current system at meeting business needs. The
ERP assessment will be presented to City Council in March 2015.
Evaluation of new technologies performance measure target:
PT4: Evaluate at least three new technologies per year
The CPAU Program for Emerging Technologies (PET) provides the opportunity for local
businesses and organizations to submit proposals for innovative and impactful products to
CPAU for review and potential pilot testing. CPAU met the performance measure by evaluating
7 new applications between July and December 2014. As of December 2014, CPAU has
received 35 applications. Thus far, five projects have been completed including light
Page 15 of 18
optimization in parking structures; a customer application that helps reduce energy demand in
large facilities, a fast and dynamic reactive power regulator to enhance reliability and efficiency
of the power grid, solar photovoltaic (PV) modules installed on street lights , a carbon calculator
for cities and small businesses and energy efficiency software for data centers.
Strategic Initiatives
Under this perspective, the Strategic Plan identified four strategic initiatives. Staff proposes
changes to two initiatives that are underway and ongoing.
PT2: Develop a 5-year succession plan for each division.
Proposed change:
Update the 5-year succession plan for each division.
This change reflects the fact that CPAU developed a succession plan, but intends to
continue updating since it is a critical component of being prepared and responsive to the
changing industry environment and employee retirements. An organizational chart and
matrix was developed to identify skill set gaps as well as employees who are currently or
soon to be eligible for retirement. CPAU will update the five year succession plan for each
division. Utilities across the nation are facing an aging workforce phenomenon and
anticipate losing 30 to 50 percent of their workforce within the next decade. As of
December 2014, 37% or 81 CPAU employees are eligible for retirement. An additional 19%
or 41 more employees will be eligible for retirement within ten years. Workforce
development and succession planning continues to be a top priority for the City and for
CPAU. The department has initiated cross-training and rotational assignments to develop
employee skill sets and provide growth opportunities and plan to continue this practi ce as
these opportunities arise.
PT3: Develop a Utilities-specific IT strategic plan.
Proposed change:
Develop a Utilities-specific smart grid and IT strategic plan.
Staff proposes to add smart grid related projects to the IT strategic plan. A high-level
Utilities IT Systems Review recommended approximately 40 Utilities technology related
projects to increase operational efficiency, enhance customer services and advance smart
grid capabilities in the next 5 to 10 years. Currently, staff anticipates that within the next 5
to 10 years, Palo Alto’s metering systems will migrate from the current system in place to
smart metering systems. CPAU will coordinate with the City’s IT Department to develop a
smart grid/Utilities Technology strategic plan by the end of CY 2015. The plan will identify
CPAU’s vision and properly prioritize the outstanding list of technology projects. In the
meantime, staff will internally prioritize the projects that need to be completed within the
next 6 to 12 months.
Page 16 of 18
FINANCIAL PERSPECTIVE
Under this perspective, the performance measures involved maintaining financial strength,
designing rate structures that balance costs of service with the promotion of conservation and
providing an investment return to the community. CPAU has thus far met three of the four
performance measures under this perspective.
Proposed Changes to Strategic Plan:
Financial Perspective Recommended Changes
F2 – For performance measure, replace “Rate Stabilization” with “Operations” Reserve
levels; replace 2015 target from “Adequate to cover cost uncertainties over a two -year
period while meeting rate stability objective” with “Within guidelines in Council-
adopted long-term Financial Plans”.
F2 – Remove strategic initiative “Develop a comprehensive Utilities financial policy by
January 2014 to provide direction for future cost of service studies and rate setting
priorities” since the initiative is complete.
F3 – For strategic initiative, replace “By the end of 2011, evaluate the appropriate
fraction of fixed costs that should be collected by fixed charges versus volumetric
charges” with “Complete Electric cost of service analysis (COSA) by end of CY2015.”
F4 – Remove the entire strategic objective “Provide a fair return to the City” along with
the associated objective statement, performance measure, and target.
Performance Measures
High credit rating performance measure targets:
F1.1: At least AA by Standard and Poor’s (S&P)
F1.2: At least Aa3 by Moody’s
CPAU continues to maintain high credit ratings. CPAU has not issued any new bonds since 2009
when it issued bonds for the Emergency Water Supply project. In 2012, S&P affirmed its “AAA”
long-term rating on the Palo Alto, California series 1995A bonds, issued for the City’s electric,
gas, water, sewer treatment, sewer collection, and storm drainage utilities. In 2015, S&P will be
conducting a rating review of the gas and water systems. The review will cover future bond
issuances, capital projects, and financial projections.
Maintain adequate rate stabilization reserves for utilities performance measure targets:
F2 Measure: Rate Stabilization Reserve levels
F2 Target: Adequate to cover cost uncertainties over a two year period while meeting
rate stability objective.
Proposed changes:
F2 Measure: Operations Reserve levels
F2 Target: Within guidelines in Council-adopted long-term Financial Plans.
Page 17 of 18
Consistent with the new financial plans and reserve structure, CPAU proposes replacing the
reserves referred to in the performance measure from the Rate Stabilization Reserves to
the Operations Reserves. In addition, the proposed new performance target refers to the
guidelines in the Council-adopted long-term financial plans. In June 2014, Council approved
the new Utilities Financial Plans for the Electric, Gas, Wastewater Collection and Water
Funds (Staff Report 4799) including changes to the reserves management practices. This
change will ensure that the Utilities Strategic Plan is consistent with the reserves structure
and guidelines in the Financial Plans.
Strategic Objective
Staff proposes removing one strategic objective and performance measure under this
perspective.
F4 Objective: Provide a fair return to the City.
F4 Measure: Equity transfer to the City’s General Fund.
Proposed change: Staff proposes to remove Item F4 “Provide a fair return to the City” from
the Utilities Strategic Plan. The City’s current equity transfer methodology was ad opted in
2009. The methodology remains unchanged since adoption, making it unnecessary for staff
to monitor this strategic initiative on a semi-annual basis as a CPAU performance measure
or target.
Strategic Initiatives
There are two strategic initiatives under the financial perspective and staff recommends
removing one since it has been completed and amending the other.
F2: Develop a comprehensive Utilities financial policy by January 2014 to provide
direction for future cost of service studies and rate -setting priorities. Staff proposes
removing this strategic initiative since it has been completed. In June 2014, Council
approved the new Utilities Financial Plans for the Electric, Gas, Wastewater Collection
and Water Funds (Staff Report 4799) including long-term financial forecasts and changes
to the reserves management practices. Consistent with the City Auditor’s Reserve Audit
recommendation, CPAU has established formal and comprehensive policies and
procedures for reserves management.
F3: By the end of 2011, evaluate the appropriate fraction of fixed costs that should be
collected by fixed charges versus volumetric charges.
Proposed change:
Complete Electric cost of service analysis (COSA) by end of CY 2015.
Staff proposes changing this objective to be more consistent with current requirements
that rates be supported by cost of service studies. Staff proposes replacing the initiative
with “Complete Electric cost of service analysis (COSA) by end of CY 2015.” COSAs have
recently been completed for the gas, water, and wastewater utilities. However, an
electric COSA has not been completed recently and electric rates have not been
changed since July 1, 2009.
RESOURCE IMPACT
There is no resource impact associated with the proposed changes to the Utilities Strategic
Plan. The changes were anticipated and were incorporated into CPAU's work plans.
POLICY IMPACT
The recommendations described in this report represent changes to the Council-approved
Utilities Strategic Plan.
ENVIRONMENTAL IMPACT
Neither the proposed changes to the Utilities Strategic Plan, nor the receipt of the six month
Utilities Strategic Plan performance update is subject to California Environmental Quality Act
review because they do not meet the definition of a "project" under Public Resources Code
Section 21065.
ATTACHMENTS
A . 2011 Utiliti es Strategic Plan with recommended changes shown in redline/strikeout text
B. Balanced Scorecard Performance Measure Results
PREPARED BY: ·M AVE YUAN, Senior Management Analyst ,j}i
REVIEWED BY: \J JANE RATCHYE, Assistant Director, Resource Management
APPROVED BY: . ~
VALERIQ.f
Director of Utiliti es
Page 18of18
Utilities Strategic Plan – Strategic Objectives
Approved by Council July 18, 2011 (Staff Report 1880)
Updated by Council August 5, 2013 (Staff Report 3950)
1
Strategic
Objective
Objective Statement Performance
Measure
2015 Target Strategic
Initiative
Customer and Community Perspective
C1. “I receive
safe and reliable
service.”
Customers expect that Utilities services are provided on a continuous basis,
without interruption. In addition, customers expect that the Utilities
delivery systems are safe and will not harm them or put them in any danger.
We will listen to our customers and seek to understand their reliability and
safety concerns and implement programs and projects to address them.
Average time to
restore service per
interrupted
customer
Less than 90
minutes
Number of electric
system interruptions
per year for average
customer
Ranks in the top
quartile
nationwide (less
than three0.9)
C2. “Be
responsive to all
my utilities-
related service
needs.”
We understand that the customer wants clear, accurate bills with easy
methods of payment; access to usage history and enough understanding to
efficiently manage usage; to feel quickly and completely “taken care of”
when they have concerns, questions or requests and to be communicated
with effectively both as individuals and as CPAU’s owners. One of the ways
to achieve this is to elicit feedback from customers to help improve service.
Customer
satisfaction scores
on annual surveys
for overall value.
Residential and
commercial surveys
alternate every other
year.
Ranking in the top
two utilities
statewide
Establish
mechanisms to
elicit customer
feedback on their
satisfaction with
all interactions
with CPAU.
C3. “I expect to
pay a reasonable
bill”
We understand that customers expect their bills to be comparable to those
in surrounding communities and do not expect to pay more than PG&E
customers. Customers believe it is reasonable to pay slightly more in
exchange for increased reliability, safety and protection of the environment.
However, customers’ overall bills for Utilities services must remain
reasonable and be reasonably stable and should not increase significantly in
any one year. Customers also want their bills to provide useful information
about their consumption of resources in addition to the rate so that they can
The average
combined residential
customer bill for
electricity, water,
gas, and wastewater
services
Less than the
average of bills for
comparable
services in nearby
communities (MP,
MV, SC, Hayward,
RC, Roseville, and
Alameda).
Improve the
electronic bill
presentment,
payment
functionality and
enhance the
utility’smobile
apponline
ATTACHMENT A
Utilities Strategic Plan – Strategic Objectives
Approved by Council July 18, 2011 (Staff Report 1880)
Updated by Council August 5, 2013 (Staff Report 3950)
2
Strategic
Objective
Objective Statement Performance
Measure
2015 Target Strategic
Initiative
understand how they can influence their total cost for Utilities services. For
natural gas service, Palo Alto’s supply cost has been relatively stable due to a
laddered gas portfolio purchasing strategy; however, this strategy needs to
be re-evaluated as gas prices are currently low and are projected to stay low
for the foreseeable future. Although, the average bill for all services should
be comparable to those in surrounding communities, staff will continue to
monitor and report the bills for each service separately on a quarterly basis.
Annual rate change Maximum of 10%
per year for
electric and
wastewater
services.
Maximum of 20%
per year for water
service.
capabilities.
C4. “Care for
our
environment”
Our community wants its customer-owned utility to offer choices for them
to manage their resource use in ways that reflect their environmental
values. Utilities will improve existing programs and develop new programs
to meet customer needs and allow customers to manage their own
environmental footprint.
Percentage of
customers
participating in the
PaloAltoGreen Gas
program
Top rank
nationally
20% of customers
Redesign the
PaloAltoGreen
program by
January 2014
(LEAP task). Re-
evaluate the cost-
effectiveness of
electrification
especially for new
construction and
evaluate whether
new programs or
incentives can or
should be offered,
consistent with all
applicable legal
requirements.
Percentage of
Greenhouse gas
reductions
10% GHG
reductions
Internal Business Process Perspective
Safety and Reliability
BP1. Ensure a
reliable supply of
utility resources
We will implement strategies that ensure the reliable supply of utility
resources to meet present and future needs. To provide opportunities for
economic development within Palo Alto, we must provide sufficient
resources that meet the short and long-term needs of our customers. To
achieve this we will maintain the utility system components, and provide for
Duration of electric
system interruption
per year for average
customer
Ranks in the top
quartile
nationwide (less
than 60 minutes
per customer)
Develop a plan to
complete a new
electric
transmission
interconnection.
Utilities Strategic Plan – Strategic Objectives
Approved by Council July 18, 2011 (Staff Report 1880)
Updated by Council August 5, 2013 (Staff Report 3950)
3
Strategic
Objective
Objective Statement Performance
Measure
2015 Target Strategic
Initiative
adequate utility resource supplies to our current and future customers. We
will also develop new management practices and organizational structure to
ensure compliance with regulatory requirements.
Response time to all
emergency calls
Under 30 minutes Complete the
Water Integrated
Resource Plan
(WIRP) including a
comprehensive
evaluation of the
use of
groundwater by
end of CY 2015.
BP2. Operate
the utility
systems safely
We will continue to ensure the safety of our customers, employees and the
community by the ongoing implementation of a safety programs. Protecting
customers and employees from injury and customer’s property from
damage is essential for delivering quality utility services to our customers.
The safety programs will be implemented by updating safety procedures,
educating customers via outreach materials and workshops, correcting
system deficiencies, operating in accordance with existing safety rules, and
ensuring that products delivered to customers are safe.
AGA (American Gas
Association)
Incidence Rate
Zero reportable
incidents
Customer awareness
of gas safety issues
90% of customers
responding to
annual gas
customer safety
awareness survey
BP3. Replace
infrastructure
before the end
of its useful life
We will continue to implement a long-term strategy for replacing
infrastructure before the end of its useful life. Reliable delivery of electric
utility services to our customers is critical for the success of business and the
quality of life for our residents. To accomplish this, we will focus on
reducing the any backlog of infrastructure work and replaces infrastructure
systems in a manner that spreads the expense across multiple years
resulting in program with even expenditures patterns in future years when
possible.
Backlog of
infrastructure
elements whose
ages are is beyond
theirits useful livesfe.
Zero Complete long
range Gas and
Water master
infrastructure
plans by end of
CY2015.
Customer Service Excellence
BP4. Serve
customers
promptly and
We will provide customers with the highly responsive service they desire.
We will do this by reviewing and improving our processes for managing
accounts, handling payments, resolving billing issues, responding to
Average phone wait
time
Less than 90
seconds
Utilities Strategic Plan – Strategic Objectives
Approved by Council July 18, 2011 (Staff Report 1880)
Updated by Council August 5, 2013 (Staff Report 3950)
4
Strategic
Objective
Objective Statement Performance
Measure
2015 Target Strategic
Initiative
completely information and field service requests and notifying customers during
service disruptions. We will identify ways to streamline these processes and
implement changes. Specifically, we will review, document and improve
business processes that have been identified as having long customer
response times.
Number of billing
adjustments
10% reduction
from number in
2009.
BP5. Communic
ate clearly and
pro-actively with
all our
stakeholders
We will proactively communicate with all our stakeholders, including all
customer groups, civic leaders, community groups and the press. To achieve
this objective we will provide the information needed for our stakeholders
to effectively access, understand and utilize all utilities services and
programs. In addition, we will design communication vehicles and
dissemination processes that will enable our residents to be educated
owners of their municipal utilities system. For example, Palo Alto’s gas rate
stability is something customers should be educated about as it
differentiates CPAU from PG&E.
Time until informing
the public and local
media of a disruption
affecting at least 500
customers or allany
sensitive major
customers
Less than 60
minutes after
becoming aware
of a disruption
BP6. Offer
programs to
meet the needs
of customers
and the
community
We will assist customers to lower their cost of utilities services and support
the environment. We will assist customers facing economic hardship by
offering bill payment assistance programs. We will educate customers on
the reasons for and their means of compliance with our safety and
regulatory requirements. We will also identify all customer groups, identify
any gaps in service provision to those customers, and propose new
programs or changes to existing programs to close those gaps.
Participant*
satisfaction with
Utilities programs
(*rebate recipients,
workshop attendees,
callers, etc.)
At least 90% of
program
participants
satisfied with their
experience
Utilities Strategic Plan – Strategic Objectives
Approved by Council July 18, 2011 (Staff Report 1880)
Updated by Council August 5, 2013 (Staff Report 3950)
5
Strategic
Objective
Objective Statement Performance
Measure
2015 Target Strategic
Initiative
Reduce Costs
BP7. Negotiate
supply contracts
to minimize
financial risk
We will continue to negotiate supply contracts to acquire supply resources
while managing supply portfolio cost uncertainty to meet rate and reserve
objectives and following sound risk management practices. To ensure that
we are buying commodities at as competitive prices as possible, we will
negotiate contracts with new counterparties to continue to have a sufficient
set of credit-worthy trading partners. We will continue to develop long-
term acquisition policies and plans (LEAP) and update those plans at least
every three years. We will also determine all that is necessary to execute a
gas prepay transaction as that is one clear way to lower the cost of gas
supply resources.
Number of
competitive bids
received for each
fixed-price
transaction.
Minimum of three
bids for electric
power
Pursue gas prepay
transactions to
leverage the City’s
low cost of capital
and tax-exempt
status to acquire
lower cost gas
supply resources
(GULP Strategy).
Participate
actively in
Northern
California Power
Agency’s (NCPA)
on-going
allocation of cost,
including new cost
allocation studies
if undertaken, to
ensure that the
City’s costs are
fair. Evaluate
alternative
providers for
services provided
by NCPA as
appropriate.
Utilities Strategic Plan – Strategic Objectives
Approved by Council July 18, 2011 (Staff Report 1880)
Updated by Council August 5, 2013 (Staff Report 3950)
6
Strategic
Objective
Objective Statement Performance
Measure
2015 Target Strategic
Initiative
BP8. Reduce
cost of delivering
service through
best
management
practices
We will reduce the cost of delivering service to customers. We will identify
opportunities to better coordinate between Utilities and other City
departments to improve efficient delivery of services. We will perform
benchmarking studies to identify potential modifications to procedures,
practices, materials, and plans and to ensure that we are following best
practices. One best practice is to increase calibration and replacement
schedules for gas and water meters since the meters slow over time causing
actual usage to be under-recorded, resulting in lost revenue.
“lost and
unaccounted for”
volumes of gas and
water
80% of 2009
levels.
Complete Water
benchmarking
study by end of FY
2015.
BP9. Maximize
value of existing
generation
assets
Palo Alto owns significant supply resource assets including a portion of the
Calaveras Hydroelectric Project, a contract with the Western Area Power
Administration, a permanent allocation of water from the regional water
system managed by San Francisco, and allocated capacity on a gas
transportation pipeline. We will seek out both daily and operational and
long-term opportunities to optimize the value of these assets to enhance
revenue and/or to reduce costs. We will work with joint-owners of our
resource assets to leverage those resources and advocate to maintain or
improve the value of existing resources into the future (LEAP and GULP
strategies).
Value harvested
from Redwood gas
pipeline capacity
100%
BP10. Manage
implementation
of strategic plan
Completing the strategic plan is only the beginning of getting value from the
strategic planning process. Ongoing management of the strategies and
initiatives and reporting on progress of those initiatives is essential to
achieving positive results from the strategy. We will report to the UAC and
Council on this plan’s progress twice annually and we will review and revise
the objectives and develop new initiatives on an annual basis.
Number of strategic
initiatives completed
100%
Environmental Sustainability
BP11. Increase
the
environmental
sustainability of
all Utilities
activities
Adding sustainable resources to the supply portfolios will help the City meet
its Climate Protection Plan goals by reducing the carbon footprint of the
utility services provided to our customers. We will achieve this by acquiring
renewable resources and promoting the development of local renewable
resources within the rate objectives in the Long-term Electric Acquisition
Plan (LEAP). Sustainable practices will be pursued not just for the supply
portfolios, but across all the Utilities day-to-day operations.
Carbon intensity of
the electric portfolio
Meet the state’s 20%
per capita water use
reduction by 2020
target
80% of baseline
(2005) level
20% by 2020
Complete EIR and
financial plan for
expanding
recycled water
system
Utilities Strategic Plan – Strategic Objectives
Approved by Council July 18, 2011 (Staff Report 1880)
Updated by Council August 5, 2013 (Staff Report 3950)
7
Strategic
Objective
Objective Statement Performance
Measure
2015 Target Strategic
Initiative
BP12. Promote
efficient use of
resources
Resource efficiency programs meet our customers’ desire for environmental
solutions that save money as well as contributing towards the Climate
Protection Plan goals. We will promote resource efficiency by dedicating the
tactical staffing and budgetary resources necessary to reach maximum
deployment of economically feasible resource efficiency. We will revise and
document our long-term efficiency strategies by updating our 10-year
Energy Efficiency goals every three years and updating our water efficiency
goals every five years in the Urban Water Management Plan. To maximize
the savings potential for new development, coordinate with the City’s
Economic Development Manager to ensure that new developments
incorporate energy saving features in the design phase.
Actual electric
energy efficiency
achievement
At least as high as
goals Council set in
May 2010
December 2012
Include all cost
effective water
efficiency
measures in 2015
Urban Water
Management Plan
(UWMP).
Actual gas energy
efficiency
achievement
At least as high as
goals Council set in
January 2011
December 2012
People and Technology Perspective
PT1. Be an
attractive place
to work
We will create a positive values-based work environment which attracts and
retains qualified staff. To achieve this objective we will try to better
understand employees desires and incentives, and will articulate our values
both internally and as we recruit.
Employee
satisfaction rating
Improvement
from baseline level
PT2. Obtain,
develop and
train employees
to ensure an
adequate and
qualified
workforce
A properly sized, trained and certified workforce is essential to our
effectiveness. We will identify skill and staffing gaps at the individual and
organizational levels and seek to fill those gaps through the effective use of
opportunities including hiring, mentorship programs, role rotations,
knowledge transfer opportunities, long-term developmental assignments
and both internal and external training opportunities. We will plan for
workforce succession and provide cross-training opportunities for
employees to improve employee satisfaction and build a more robust work
force.
Percentage of
operations personnel
that has appropriate
certification and
training required for
working in all areas
they may be
assigned
100% Develop Updatea
the 5-year
succession plan
for each division.
Utilities Strategic Plan – Strategic Objectives
Approved by Council July 18, 2011 (Staff Report 1880)
Updated by Council August 5, 2013 (Staff Report 3950)
8
Strategic
Objective
Objective Statement Performance
Measure
2015 Target Strategic
Initiative
PT3. Ensure
employees have
adequate tools
to perform job
duties
As major users of technology assets, we must have access to quality and
timely delivered IT services. We must build and maintain an effective
relationship with the City’s IT division that includes clear, frequent
communication as well as productive coordination. We will collaborate with
IT to identify barriers to providing support for technology projects and
remove them. In those instances in which our immediate technology needs
cannot be addressed by the City’s IT division in a timely or sufficiently-
comprehensive fashion, we will utilize external expertise.
Technology needs
being met based on
Utilities-specific IT
strategic plan
Employees have
adequate tools and
training to perform
their jobs
100% for all
Utilities work
groups100% of
employees
Develop a
Utilities-specific
smart grid and IT
strategic plan.
PT4. Investigate
and adopt
innovative
technologies
Our customers value Utilities embracing new technologies that will help
reduce costs and/or meet Climate Protection Plan goals. We will innovate
by researching technologies and cultivating relationships with entrepreneurs
and academics to identify new cost-effective and environmentally
sustainable technologies to consider adopting. New technologies, programs,
and projects identified in the smart grid strategic plan will be implemented.
Number of new
technologies
evaluated per year
by an in-depth study
or pilot project
Three
Financial Perspective
F1. Maintain
financial
strength
Maintaining a high credit rating reduces the cost of borrowing if needed for
capital projects. We will continue best practices for financial management,
adhere to energy risk management policies and guidelines to minimize
financial risk, and maintain sufficient reserves to cover debt obligations as
required to retain CPAU’s current favorable bond rating so that the cost of
capital is low for any bond funded capital projects.
Credit rating At least AA as
determined by
Fitch Ratings or
Standard and
Poor’s or at least
Aa3 as determined
by Moody’s
Utilities Strategic Plan – Strategic Objectives
Approved by Council July 18, 2011 (Staff Report 1880)
Updated by Council August 5, 2013 (Staff Report 3950)
9
Strategic
Objective
Objective Statement Performance
Measure
2015 Target Strategic
Initiative
F2. Maintain
adequate
reserves
Maintaining adequate cash reserves contributes to maintaining our overall
financial health and retaining our current favorable bond rating. We will
maintain Rate Stabilization Reserves levels within Council-approved
guidelines and sufficient to provide rate stability as desired by ratepayers.
During the annual budget and rate setting process, the risks that each
Utilities fund is exposed to will be identified along with the trajectory of
costs and revenues to allow Council to determine appropriate reserve levels
and rate adjustments.
Rate
StabilizationOperatio
ns Reserve levels
Adequate to cover
cost uncertainties
over a two-year
period while
meeting rate
stability
objectiveWithin
guidelines in
Council-adopted
long-term
Financial Plans
Develop a
comprehensive
Utilities financial
policy by January
2014 to provide
direction for
future cost of
service studies
and rate-setting
priorities.
F3. Implement
rate structures
that balance cost
of service and
resource
conservation
Retail rates should be designed so that the revenues from a customer group
match the cost to serve those customers. Rates consist of fixed charges and
volumetric charges, which are based on usage. Fixed costs consist of
customer-related costs (meter reading, billing, etc.) and costs related to
capital projects and operations while variable costs include the cost of
buying supplies (water, gas, or electricity). When fixed costs are recovered
through charges based on usage, costs will not be recovered if customers
reduce usage more than projected. To address this problem we will
examine alternate rate structures that strike a balance between the two
competing objectives (cost of service and resource efficiency) to ensure that
certain fixed costs are recovered with a fixed charge, but other costs are
recovered with charges that vary depending on usage (volumetric charges).
By the end of
2011, evaluate the
appropriate
fraction of fixed
costs that should
be collected by
fixed charges
versus volumetric
charges.Complete
Electric cost of
service analysis
(COSA) by end of
CY 2015.
Utilities Strategic Plan – Strategic Objectives
Approved by Council July 18, 2011 (Staff Report 1880)
Updated by Council August 5, 2013 (Staff Report 3950)
10
Strategic
Objective
Objective Statement Performance
Measure
2015 Target Strategic
Initiative
F4. Provide a
fair return to the
City
CPAU provides an equity transfer to the City of Palo Alto’s General Fund
which provides a return on the City’s original investment in the Utilities and
reflects the City’s ultimate responsibility for Utilities operations. Council
approved the current equity transfer method in May 2009. The equity
transfer is used by the General Fund as determined by the City Council and
supports activities such as fire, police and library services to the City
residents and businesses. This benefit, along with favorable rates and utility
services, is a key value provided to the community from municipal
ownership of Utilities.
Equity transfer to the
City’s General Fund
100% of the
transfer as
calculated by the
Council-approved
equity transfer
methodology and
permitted by law.
11
Maintain adequate
reserves
Maintain financial
strength
Implement rate structures that balance cost of
service and resource conservation
Financial
Resources
People and
Technology
Be an attractive
place to work
Obtain, develop and train
employees to ensure an
adequate and qualified workforce
Ensure employees have
adequate tools to
perform job duties
Values: Honesty and Integrity Teamwork Accountability Quality of Service
“Be responsive to all
my Utilities services-
related needs”
“I receive safe and
reliable service”
“I expect to pay a
reasonable bill”
“Care for our
environment”
Vision: We Deliver Extraordinary Value to Our Customers
Strategic Destination: We will earn the high satisfaction of our customers with our cost-
competitive provision of safe, reliable and environmentally sustainable utility services
Customer
Operate the
Utilities systems
safely
Reliability and Safety Customer Service
Excellence
Manage Cost Environmental
Sustainability
Serve customers
promptly and
completely
Offer programs to meet
the needs of customers
and the community
Communicate clearly and
proactively with all our
stakeholders
Negotiate supply contracts
to minimize financial risk
Reduce cost of delivering
service through best
management practices
Internal Business Processes
Increase the
environmental
sustainability of all
Utilities operations
Promote efficient
use of resources
Investigate and
adopt innovative
technologies
Ensure a reliable
supply of utility
resources
Replace infrastructure
before the end of its
useful life
Maximize value of existing
generation assets
Manage implementation
of strategic plan
Provide a fair
return to the City
Balanced Scorecard Performance Measure Reults Attachment - B
Measure ID Strategic
Objective Objective Statement Performance Measure 2015 Target Measure Goal
Value FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 July - Dec
FY 2015
Score
(Values: +, -
, TBD)
C1.1
C1. “I receive
safe and reliable
service.”
Customers expect that Utilities services are provided on a continuous basis,
without interruption. In addition, customers expect that the Utilities delivery
systems are safe and will not harm them or put them in any danger. We will listen
to our customers and seek to understand their reliability and safety concerns and
implement programs and projects to address them.
Average time to restore service
per interrupted customer Less than 90 minutes <90 132 min 161 min 113 min 139 min 38.69 114.38 -
C1.2
Number of electric system
interruptions per year for average
customer
Ranks in the top
quartile nationwide (less
than 3)<0.9 0.39 0.41 0.13 0.25 0.41 0.002 +
C2
C2. “Be
responsive to all my
utilities-related
service needs.”
We understand that the customer wants clear, accurate bills with easy methods of
payment; access to usage history and enough understanding to efficiently
manage usage; to feel quickly and completely “taken care of” when they have
concerns, questions or requests and to be communicated with effectively both as
individuals and as CPAU’s owners. One of the ways to achieve this is to elicit
feedback from customers to help improve service.
Customer satisfaction scores on
annual surveys for overall value.Ranking in 85-90%>85%
78%
Commercial
65%
Residential
81%
Commercial
86%
Residential
80% of all Water
Customers
87%
Commercial +
C3.1
C3. “I expect to
pay a reasonable
bill”
We understand that customers expect their bills to be comparable to those in
surrounding communities and do not expect to pay more than PG&E customers.
Customers believe it is reasonable to pay slightly more in exchange for increased
reliability, safety and protection of the environment. However, customers’ overall
bills for Utilities services must remain reasonable and should not increase
significantly in any one year. Customers also want their bills to provide useful
information about their consumption of resources in addition to the rate so that they
can understand how they can influence their total cost for Utilities services.
The average combined residential
customer bill for electricity, water,
gas, and wastewater services.
Less than the average
of bills for comparable
services in nearby
communities (MP, MV,
SC, Hayward, RC,
Roseville, and
Alameda).
Total bill calculation
for each month for
CPAU and for
comparator agencies
- this changes every
year so Measure
Goal Value is not a
constant
CPAU:
E - $42.76
G - $51.03
W - $43.89
WW - $24.65
Tot - $162.33
Nearby
community
average: $142.34
CPAU:
E - $42.76
G - $51.03
W - $43.89
WW - $24.65
Tot - $162.33
Nearby
community
average:
$152.00
CPAU:
E - $42.76
G - $51.03
W - $51.19
WW - $27.91
Tot - $172.89
Nearby
community
average:
$158.93
CPAU:
E - $42.76
G - $37.49
W - $62.16
WW - $29.31
Tot - $171.72
Nearby
community
average: $166.35
CPAU:
E - $42.76
G - $38.89
W - $67.35
WW - $29.31
Tot - $178.31
Nearby
community
average:
$177.06
CPAU:
E - $42.76
G - $37.39
W - $67.35
WW - $29.31
Tot - $176.81
Nearby
community
average:
$187.05 +
C3.2 Annual rate change
Maximum of 10% per
year for electric, gas,
and wastewater Utilities
service.
Maximum of 20% per
year for water Utility
service.
<10% for E, G,
WWC
<20% for W
Effective 7/1/09:
E +10%
G -10%
W +5%
WW +5%
Effective 7/1/10:
E 0%
G 0%
W 0%
WW 0%
Effective 7/1/11:
E 0%
G 0%
W 12.5%
WW 0%
Effective 7/1/12:
E 0%
G -10%*
W 15%
WW 5%
*Gas supply rates
change monthly
Effective 7/1/13:
E 0%
G 0%*
W 7%
WW 0%
*Gas supply
rates change
monthly
Effective 7/1/14:
E 0%
G 0%*
W 0%
WW 0%
*Gas supply
rates change
monthly +
C4
C4. “Care for our
environment”
Our community wants its customer-owned utility to offer choices for them to
manage their resource use in ways that reflect their environmental values. Utilities
will improve existing programs and develop new programs to meet customer
needs and allow customers to manage their own environmental footprint.
Percentage of customers
participating in the PaloAltoGreen
program Top rank nationally Top rank nationally 22%21%24%
18% - top rank
nationally
18% - top rank
nationally N/A N/A
Customer and Community Perspective
1
Balanced Scorecard Performance Measure Reults Attachment - B
Measure ID Strategic
Objective Objective Statement Performance Measure 2015 Target Measure Goal
Value FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 July - Dec
FY 2015
Score
(Values: +, -
, TBD)
BP1.1
BP1. Ensure a
reliable supply of
utility resources
We will implement strategies that ensure the reliable supply of utility resources to
meet present and future needs. To provide opportunities for economic
development within Palo Alto, we must provide sufficient resources that meet the
short and long-term needs of our customers. To achieve this we will maintain the
utility system components, and provide for adequate utility resource supplies to our
current and future customers. We will also develop new management practices
and organizational structure to ensure compliance with regulatory requirements.
Duration of electric system
interruption per year for average
customer
Ranks in the top
quartile nationwide (less
than 60 minutes per
customer) <60 52 min 66 min 15 min 34 min 15.78 min 23 min +
BP1.2
Response time to all emergency
calls Under 30 minutes <30m 31 min 27 min 22 min 23 min 22 min 20 min +
BP2.1
BP2. Operate the
utility systems safely
We will continue to ensure the safety of our customers, employees and the
community by the ongoing implementation of a safety programs. Protecting
customers and employees from injury and customer’s property from damage is
essential for delivering quality utility services to our customers. The safety
programs will be implemented by updating safety procedures, educating customers
via outreach materials and workshops, correcting system deficiencies, operating in
accordance with existing safety rules, and ensuring that products delivered to
customers are safe.
AGA (American Gas Association)
Incidence Rate Zero reportable
incidents
0 0 1 0 0 0 0 +
BP2.2
Customer awareness of gas
safety issues
90% of customers
responding to annual
gas customer safety
awareness survey >90%97.70%97.50%96.70%96%96%94.6%+
BP3
BP3. Replace
infrastructure before
the end of its useful
life
We will continue to implement a long-term strategy for replacing infrastructure
before the end of its useful life. Reliable delivery of electric service to our
customers is critical for the success of business and the quality of life for our
residents. To accomplish this, we will focus on reducing the backlog and replaces
infrastructure systems in a manner that spreads the expense across multiple years
resulting in program with even expenditures patterns in future years.
Backlog of infrastructure elements
whose age is beyond its useful life Zero
E - $0
G - $0
W - $0
WWC - $0 NA
E - $6M
G - $12M
W - $3.1M
WW - $8.5M
E - $7M
G - $1M
W - $3M
WW - $5M
E $7M
G $0M
W $7M
WC $5M
E $6.4M
G $0M
W $4M
WW $3M Annual Measure N/A
Internal Business Process Perspective
Safety and Reliability
2
Balanced Scorecard Performance Measure Reults Attachment - B
Measure ID Strategic
Objective Objective Statement Performance Measure 2015 Target Measure Goal
Value FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 July - Dec
FY 2015
Score
(Values: +, -
, TBD)
BP4.1
BP4. Serve
customers promptly
and completely
We will provide customers with the highly responsive service they desire. We will
do this by reviewing and improving our processes for managing accounts, handling
payments, resolving billing issues, responding to information and field service
requests and notifying customers during service disruptions. We will identify ways
to streamline these processes and implement changes. Specifically, we will
review, document and improve business processes that have been identified as
having long customer response times.Average phone wait time 90 seconds or less <90 sec 70 sec 90 sec 134 sec 107 sec 63 sec 61 sec +
BP4.2 Number of billing adjustments
10% reduction from
number in 2009
FY09 - 3286
90% - 2,958 2,313 909 1,365 1,340 2,743 849 +
BP5
BP5.
Communicate
clearly and pro-
actively with all our
stakeholders
We will proactively communicate with all our stakeholders, including all customer
groups, civic leaders, community groups and the press. To achieve this objective
we will provide the information needed for our stakeholders to effectively access,
understand and utilize all utilities services and programs. In addition, we will design
communication vehicles and dissemination processes that will enable our residents
to be educated owners of their municipal utilities system.
Time until informing the public and
local media of a disruption
affecting at least 500 customers
or any sensitive major customers
Less than 60 minutes
after becoming aware
of a disruption <60m < 90 min < 90 min < 90 min <30 Min <30 Min <30 Min +
BP6
BP6. Offer
programs to meet
the needs of
customers and the
community
We will assist customers to lower their cost of utilities services and support the
environment. We will assist customers facing economic hardship by offering bill
payment assistance programs. We will educate customers on the reasons for and
their means of compliance with our safety and regulatory requirements. We will
also identify all customer groups, identify any gaps in service provision to those
customers, and propose new programs or changes to existing programs to close
those gaps.
Participant* satisfaction with
Utilities programs (*rebate
recipients, workshop attendees,
callers, etc.)
At least 90% of
program participants
satisfied with their
experience >90%N/A 95%
Average of all
workshops:
94%
Average of all
workshop: 95%
Average of all
workshop: 95%
Average of all
workshop: 95%+
BP7
BP7. Negotiate
supply contracts to
minimize financial
risk
We will continue to negotiate supply contracts to acquire supply resources while
managing supply portfolio cost uncertainty to meet rate and reserve objectives and
following sound risk management practices. To ensure that we are buying
commodities at as competitive prices as possible, we will negotiate contracts with
new counterparties to continue to have a sufficient set of credit-worthy trading
partners. We will continue to develop long-term acquisition policies and plans
(LEAP) and update those plans at least every three years. We will also determine
all that is necessary to execute a gas prepay transaction as that is one clear way to
lower the cost of gas supply resources.
Number of competitive bids
received for each fixed-price
transaction.
Minimum of three
electric bids > 3
E - 3.0 bids
G - 2.7 bids
E - 2.5 bids
G - 1.9 bids E - 2.75 bids E - 2.4 E - 3.5 bids E - 5.0 bids +
BP8
BP8. Reduce
cost of delivering
service through best
management
practices
We will work towards reducing the cost of delivering service to customers. We will
identify opportunities to better coordinate between Utilities and other City
departments to improve efficient delivery of services. We will perform
benchmarking studies to identify potential modifications to procedures, practices,
materials, and plans and to ensure that we are following best practices. One best
practice is to increase calibration and replacement schedules for gas and water
meters since the meters slow over time so that the actual usage is under-recorded,
resulting in lost revenue.
“lost and unaccounted for”
volumes of gas and water 80% of 2009 levels.
2009
G - 2.6%
W - 5.0%
G - 3.2%
W - 7.6%
G - 2.9%
W - 8.2%
G - 2.8%
W - 8.2%
G-2.1%
W-7.8%
G-2.5%
W-8.6% Annual Measure N/A
Reduce Costs
Customer Service Excellence
3
Balanced Scorecard Performance Measure Reults Attachment - B
Measure ID Strategic
Objective Objective Statement Performance Measure 2015 Target Measure Goal
Value FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 July - Dec
FY 2015
Score
(Values: +, -
, TBD)
BP9
BP9. Maximize
value of existing
generation assets
Palo Alto owns significant supply resource assets including a portion of the
Calaveras Hydroelectric Project, a contract with the Western Area Power
Administration, a permanent allocation of water from the regional water system
managed by San Francisco, and allocated capacity on a gas transportation
pipeline. We will seek out both daily and operational and long-term opportunities to
optimize the value of these assets to enhance revenue and/or to reduce costs.
We will work with joint-owners of our resource assets to leverage those resources
and advocate to maintain or improve the value of existing resources into the future
(LEAP and GULP strategies).
Value harvested from Redwood
gas pipeline capacity 100%100%97%99%99%100%100%100%+
BP10
BP10. Manage
implementation of
strategic plan
Completing the strategic plan is only the beginning of getting value from the
strategic planning process. Ongoing management of the strategies and initiatives
and reporting on progress of those initiatives is essential to achieving positive
results from the strategy. We will report to the UAC and Council on plan progress
twice annually and we will review and revise the objectives and develop new
initiatives on an annual basis.
Number of strategic initiatives
completed 100%100%N/A 3 8 8 10 13 -
BP11
BP11. Increase
the environmental
sustainability of the
supply portfolios
Adding sustainable resources to the supply portfolios will help the City meet its
Climate Protection Plan goals by reducing the carbon footprint of the utility services
provided to our customers. We will achieve this by acquiring renewable resources
and promoting the development of local renewable resources within the rate
objectives in the Long-term Electric Acquisition Plan (LEAP).
Carbon intensity of the electric
portfolio
80% of baseline (2005)
level (320.9)256.7 331.9 159.8 182.1 249.9
0 (due to
implementation
of Carbon
Neutral Plan)
0 (due to
implementation
of Carbon
Neutral Plan)+
BP12
BP12. Promote
efficient use of
resources
Resource efficiency programs meet our customers’ desire for environmental
solutions that save money as well as contributing towards the Climate Protection
Plan goals. We will promote resource efficiency by dedicating the tactical staffing
and budgetary resources necessary to reach maximum deployment of
economically feasible resource efficiency. We will revise and document our long-
term efficiency strategies by updating our 10-year Energy Efficiency goals every
three years and updating our water efficiency goals every five years in the Urban
Water Management Plan.
Actual annual energy efficiency
achievement as percentage of
electric and gas load
E - At least as high as
annual electric
efficiency goal
G - At least as high as
annual gas efficiency
goal
E - 0.60%
G - 0.50%
E - 0.47%
G - 0.28%
E - 0.55%
G - 0.40%
E - 1.52%
G - 0.73%
E - .85%
G - 1.13%
E - .87%
G - 1.16%Annual Measure N/A
Environmental Sustainability
4
Balanced Scorecard Performance Measure Reults Attachment - B
Measure ID Strategic
Objective Objective Statement Performance Measure 2015 Target Measure Goal
Value FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 July - Dec
FY 2015
Score
(Values: +, -
, TBD)
PT1
PT1. Be an
attractive place to
work
We will create a positive values-based work environment which attracts and retains
qualified staff. To achieve this objective we will try to better understand employees
desires, work with City management to establish sufficient compensation, benefits,
and incentives, and will articulate our values both internally and as we recruit.Employee satisfaction rating
Improvement from
2011 basline level 100%N/A N/A
62.7% -
Satisfied
12.7% - Neutral
66.3% - Satisfied
12.5% - Neutral
72.5%- Satisfied
5%- Neutral
62.4%- Satisfied
15.6%- Neutral -
PT2
PT2. Develop and
train employees to
ensure a qualified
workforce
A properly trained and certified workforce is essential to our effectiveness. We will
identify skill gaps at the individual and organizational levels and seek to fill those
gaps through the effective use of opportunities including mentorship programs, role
rotations, knowledge transfer opportunities and both internal and external training
opportunities. We will plan for workforce succession and provide cross-training
opportunities for employees to improve employee satisfaction and build a more
robust work force
Percentage of operations
personnel that has appropriate
certification and training required
for working in all areas they may
be assigned 100%100%100%100%100%100%100%100%+
PT3
PT3. Ensure
employees have
adequate tools to
perform job duties
As major users of technology assets, we must have access to quality and timely
delivered IT services. We must build and maintain an effective relationship with the
City’s IT division that includes clear, frequent communication as well as productive
coordination. We will collaborate with IT to identify barriers to providing support for
technology projects and remove them. In those instances in which our immediate
technology needs cannot be addressed by the City’s IT division in a timely or
sufficiently-comprehensive fashion, we will utilize external expertise.Technology needs being met
100% for all Utilities
work groups 100%N/A N/A N/A N/A N/A N/A -
PT4
PT4. Investigate
and adopt
innovative
technologies
Our customers value Utilities embracing new technologies that will help reduce
costs and/or meet Climate Protection Plan goals. We will innovate by researching
technologies and cultivating relationships with entrepreneurs and academics to
identify new cost-effective and environmentally sustainable technologies to
consider adopting. Review of Utilities Technology needs was completed in 2014
and a technology strategic plan is expected to be completed by the end of CY
2015. New technologies, programs, and projects identified in the plan will be
implemented in the subsequent years.
Number of new technologies
evaluated per year Three >3 N/A N/A N/A 13 15 7 +
People and Technology Perspective
5
Balanced Scorecard Performance Measure Reults Attachment - B
Measure ID Strategic
Objective Objective Statement Performance Measure 2015 Target Measure Goal
Value FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 July - Dec
FY 2015
Score
(Values: +, -
, TBD)
F1
F1. Maintain
financial strength
Maintaining a high credit rating reduces the cost of borrowing if needed for capital
projects. We will continue best practices for financial management, adhere to
energy risk management policies and guidelines and maintain sufficient reserves to
cover debt obligations as required to retain CPAU’s current favorable bond rating
so that the cost of capital is low for any bond funded capital projects.Credit rating
At least AA as
determined by Fitch
Ratings or Standard
and Poor’s or at least
Aa3 as determined by
Moody’s <=AA or <=Aa3
S&P = AAA
Moody's = Aa3
S&P = AAA
Moody's = Aa2
S&P = AAA
Moody's = Aa2
S&P = AAA
Moody's = Aa2
S&P = AAA
Moody's = Aa2
S&P = AAA
Moody's = Aa2 +
F2
F2. Maintain
adequate reserves
Maintaining adequate cash reserves contributes to maintaining our overall financial
health and retaining our current favorable bond rating. We will maintain Rate
Stabilization Reserves levels within Council-approved guidelines and sufficient to
provide rate stability as desired by ratepayers. During the annual budget and rate
setting process, the risks that each Utilities fund is exposed to will be identified
along with the trajectory of costs and revenues to allow Council to determine
appropriate reserve levels and rate adjustments. Rate Stabilization Reserve levels
Adequate to cover
expected costs over a
two-year period while
meeting rate stability
objective
Above rate
stabilization reserve
levels
All RSRs are
above mininum
guideline levels.
All RSRs are
above mininum
guideline levels.
All RSRs are
above mininum
guideline levels.
All RSRs are
above mininum
guideline levels.
All RSRs are
above mininum
guideline levels.
All reserves are
within Operations
reserve guideline
levels.+
F3
F3. Implement
rate structures that
balance cost of
service and
resource
conservation
Retail rates should be designed so that the revenues from a customer group
match the cost to serve those customers. Rates consist of fixed charges and
volumetric charges, which are based on usage. Fixed costs consist of customer-
related costs (meter reading, billing, etc.) and costs related to capital projects and
operations while variable costs include the cost of buying supplies (water, gas, or
electricity). When fixed costs are recovered through charges based on usage,
costs will not be recovered if customers reduce usage more than projected. To
address this problem we will implement rate structures that strike a balance
between the two competing objectives (cost of service and resource efficiency) to
ensure that certain fixed costs are recovered with a fixed charge, but other costs
are recovered with charges that vary depending on usage (volumetric charges).Fixed charges on Utilities rates
By 2013, adequate to
cover 100% of the fixed
costs of meter reading,
billing, and other
customer-related costs
E - 100%
G - 100%
W - 100%
WWC - 100%N/A
E - NA
G - NA
W - 50%
WWC - 100%
E - NA
G - 100%
W - 100%
WWC - 100%
E - NA
G - 100%
W - 100%
WWC - 100%
E - NA
G - 100%
W - 100%
WWC - 100%
E - NA
G - 100%
W - 100%
WWC - 100%-
F4
F4. Provide a fair
return to the City
CPAU provides an equity transfer to the City of Palo Alto's General Fund which
provides a return on the City's original investment in the Utilities and reflects the
City's ultimate responsibility for Utilities operations. Council approved the current
equity transfer method in May 2009. The equity transfer is used by the General
Fund as determined by the City Council and supports activities such as fire, police
and library services to the City residents and businesses. This benefit, along with
favorable rates and utility services, is a key value provided to the community from
municipal ownership of Utilities.
Equity transfer to the City's
General Fund
100% of the transfer as
calculated by the
Council-approved
equity transfer
methodology and
permitted by law.100%100%100%100%100%100%100%+
Financial Perspective
6
5
MEMORANDUM
TO: UTILITIES ADVISORY COMMISSION
FROM: UTILITIES DEPARTMENT
DATE: March 4, 2015
SUBJECT: Staff Recommendation that the Utilities Advisory Commission Recommend
that the City Council Adopt: (1) a Resolution Approving the Fiscal Year 2016
Wastewater Collection Financial Plan and Amending the Wastewater Collection
Utility Reserve Management Practices, and (2) a Resolution Amending Rate
Schedules S-1 (Residential Wastewater Collection and Disposal), S-2
(Commercial Wastewater Collection and Disposal), S-6 (Restaurant Wastewater
Collection and Disposal) and S-7 (Commercial Wastewater Collection and
Disposal – Industrial Discharger)
RECCOMENDATION
Staff requests that the Utilities Advisory Commission (UAC) recommend that the Council:
1.Adopt a resolution (Attachment A) approving the fiscal year (FY) 2016 Wastewater
Collection Financial Plan (Attachment C) and amending the Wastewater Utility Reserve
Management Practices (Attachment B); and
2.Adopt a resolution (Attachment D) Amending Rate Schedules S-1 (Residential
Wastewater Collection and Disposal), S-2 (Commercial Wastewater Collection and
Disposal), S-6 (Restaurant Wastewater Collection and Disposal) and S-7 (Commercial
Wastewater Collection and Disposal – Industrial Discharger) (Attachment E).
EXECUTIVE SUMMARY
The FY 2016 Wastewater Collection Utility Financial Plan includes projections of the utility’s
costs and revenues through FY 2020. Costs are projected to rise substantially for the next
several years due primarily to increasing treatment costs. As a result, staff projects the need
for 9% rate increases each year from FY 2016 through FY 2019. Rates for FY 2020 are projected
to increase by 6%.
Staff also recommends changes to the Wastewater Collection Utility Reserves Management
Practices to accommodate a change in City budgeting practices for Capital Improvement (“CIP”)
projects.
BACKGROUND
Every year staff presents the UAC with Financial Plans for its Electric, Gas, Water, and
Wastewater Collection Utilities and recommends any rate adjustments required to maintain
their financial health. These Financial Plans include a comprehensive overvie w of the utility’s
operations, both retrospective and prospective, and are intended to be a reference for UAC and
Council members as they review the budget and staff’s rate recommendations.
Each Financial Plan also contains a set of Reserves Management Practices describing the
reserves for each utility and the management practices for those reserves. Staff may propose
amendments to these reserves as part of the Financial Plans.
The UAC reviewed preliminary financial forecasts at its February 4, 2015 meeting.
DISCUSSION
Proposed Actions for FY 2015
Council approved several transfers between reserves as part of the FY 2015 Financial Plan.
Funds were transferred out of the Emergency Plant Replacement and Rate Stabilization Reserve
into the newly-created Operations Reserve. These transfers were mainly related to setting up
the new reserves structure approved as part of that Financial Plan. Staff proposes an additional
transfer of $264,000 for FY 2015 from the Rate Stabilization Reserve to the Operations Reserve
in order to cover additional expected expenses, to keep the Operations Reserve at the target
level.
Proposed Actions for FY 2016
This year’s Wastewater Collection Utility Financial Plan includes the following proposed actions
for FY 2016:
1. Amend the CIP Reserve to accommodate a change in City capital budgeting practices.
These amendments are summarized below, but for a more in-depth description of the
reasons for these changes, see Section 4C of the Financial Plan:
a. Amend the Reserves Management Practices to modify the purpose of the CIP
Reserve to enable it to act as a cash flow and contingency reserve for capital
investment projects.
b. Transfer the funds that are projected to be released from the Re-appropriations
Reserve at the beginning of FY 2016 to the CIP Reserve.
c. Exceed the proposed maximum CIP Reserve guidelines through the end of
FY 2017.
2. Transfer $2 million from the Rate Stabilization Reserve to the Operations Reserve. This
transfer will enable staff to maintain Operations Reserve levels while spreading the
required rate increases for the wastewater collection utility over several years.
These proposed actions are described in more detail in the FY 2016 W astewater Collection
Financial Plan (Attachment B).
Proposed Rate Adjustments Effective July 1, 2015
In addition, staff proposes to adjust rates as shown in Table 1 below, effective July 1, 2015. The
adjustments will increase the system average rate by roughly 9%. These rate changes are
included in the amended rate schedules in Attachment E.
Table 1: Current and Proposed (as of July 1, 2015) Wastewater Collection Charges
Rate
Schedule
Customer
Class
Current Rates Proposed Rates Rate Change
Monthly
Charge (1)
($/month)
Quantity
Charge
($/ccf)
Monthly
Charge (1)
($/month)
Quantity
Charge
($/ccf)
Monthly
Charge (1)
Quantity
Charge
$/mo % $/ccf %
S-1 Residential 29.31 N/A 31.95 N/A 2.64 9% N/A N/A
S-2 Commercial 29.31 5.65 31.95 6.16 2.64 9% 0.51 9%
S-6 Restaurant 29.31 8.73 31.95 9.52 2.64 9% 0.79 9%
S-7 Industrial
Dischargers
(2)
2.60 2.83 0.23 9%
(1) Monthly charges for S-1 are fixed monthly charges, and those for S-2 and S-6 are
minimum monthly charges.
(2) Currently there are no customers on this rate schedule, however, CPAU continues to
maintain it in case there is a need for the rate schedule in the future.
Projected Rate Adjustments over the Forecast Period
Table 2 shows the projected rate adjustments included in the Wastewater Collection Utility
Financial Plans and their impact on the median residential wastewater bill.
Table 2: Projected Rate Adjustments and Residential Bill Impact, FY 2016 to FY 2020
FY 2016 FY 2017 FY 2018 FY 2019 FY 2020
Wastewater Utility 9% 9% 9% 9% 6%
Estimated Bill Impact for
Residential Customers ($/mo) $2.64 $2.88 $3.13 $3.42 $2.48
Staff’s annual assessment of the financial position of the City’s utilities is completed to ensure
adequate revenue to fund operations, in compliance with the cost of service requirements set
forth in the California Constitution (Proposition 218). This includes making long-term
projections of market conditions, the physical condition of the system, and other factors that
could affect utility costs, and setting rates adequate to recover these costs. The current rate
proposals are also based on the methodology from the 2011 Wastewater Collection Utility cost
of Service and Rate Study completed by Utility Financial Solutions (Staff Report 1399).
The main drivers for the increase in the Wastewater Collection Utility’s costs (and therefore
rates) over the next several years are the cost for treatment, which is projected to go up by 5%
per year as the Regional Water Quality Control Plant makes several upgrades to their facilities,
as well as capital improvement costs for the wastewater collection system. Operating and CIP
costs are projected to rise roughly 2%-4% annually.
There is uncertainty related to capital costs for the Wastewater Collection Utility in coming
years. Wastewater main replacement costs have risen substantially in recent years, and it is
possible higher CIP expenditures will be required in the future. The Financial Pla n includes rate
projections for a “High CIP Cost” scenario. Staff plans to perform an updated master plan for
the wastewater collection system, and expects better information about future main
replacement costs when that plan is completed. Staff does not anticipate this study to
commence until sometime in 2016.
NEXT STEPS
After receiving the UAC's recommendation, the Finance Committee will review staffs
recommendations in April. Assuming the Finance Committee supports the proposed rate
adjustments, notification of the potential rate increases will be sent to customers as required
by Article XIIID of the State Constitution (added by Proposition 218). The proposed Financial
Plans and amended rate schedules will be considered by the City Council with the FY 2016
budget, at which time the public hearing required by Article XIIID of the State Constitution will
be held.
RESOURCE IMPACT
Normal year sales revenues for the Wastewater Collection Utility are projected to increase by
roughly 9% ($1.35 million) as a result of these rate increases. See the attached FY 2016
Wastewater Collection Utility Financial Plan for a more comprehensive overview of projected
cost and revenue changes for the next five years.
POLICY IMPLICATIONS
The attached FY 2016 Wastewater Collection Utility Financial Plan includes amended Reserve
Management Practices that will modify Council policy with respect to the structure of the
Wastewater Collection Utility financial reserves. These Reserve Management Practices replace
the current Reserve Management Practices, which were last updated by Council in June 2014
(Resolution 9423).
ENVIRONMENTAL REVIEW
The UAC's review and recommendation to Council on the proposed Financial Plan and rate
adjustments do not meet the definition of a project, pursuant to Section 21065 of the California
Environmental Quality Act, thus no environmental review is required.
ATTACHMENTS
A. Resolution of the Council of the City of Palo Alto Approving the FY 2016 Wastewater
Collection Utility Financial Plan and Amending the Wastewater Collection Utility
Reserves Management Practices
B. Amended Wastewater Collection Utility Reserves Management Practices
C. Proposed FY 2016 Wastewater Collection Utility Financial Plan
D. Resolution of the Council of the City of Palo Alto Adopting a Wastewater Collection Rate
Increase and Amending Rate Schedules S-1, S-2, S-6 and S-7
E. Amended Rate Schedules 5-1, 5-2, 5-6 and 5-7
PREPARED BY:
REVIEWED BY:
APPROVED BY:
JONATHAN ABENDSCHEIN, Senior Resource Planner pi
ERIC KENISTON, Resource Planner c L—
ANE RATCHYE, Assistant Director, Resource Management
VALERIE n . FO
Director of Utih es
Attachment A
* NOT YET APPROVED *
150223 mf 6053247
Resolution No. _____
Resolution of the Council of the City of Palo Alto Approving the
FY 2016 Wastewater Utility Financial Plan and Amending the
Wastewater Utility Reserves Management Practices
R E C I T A L S
A. Each year the City of Palo Alto (“City”) assesses the financial position of its
utilities with the goal of ensuring adequate revenue to fund operations. This includes making
long-term projections of market conditions, the physical condition of the system, and other
factors that could affect utility costs, and setting rates adequate to recover these costs. It does
this with the goal of providing safe, reliable, and sustainable utility services at competitive
rates. The City adopts Financial Plans to summarize these projections.
B. The City uses reserves to protect against contingencies and to manage other
aspects of its operations, and regularly assesses the adequacy of these reserves and the
management practices governing their operation. The status of utility reserves and their
management practices are included in Reserves Management Practices attached to and made a
part of the Financial Plans.
C. The City intends to make changes to its Wastewater Utility Reserves
Management Practices to amend the purpose and management practices of the Wastewater
Utility’s Capital Improvement Program (CIP) Reserve.
The Council of the City of Palo Alto RESOLVES, as follows:
SECTION 1. The Council hereby approves the FY 2016 Wastewater Utility Financial
Plan, including the amended Wastewater Utility Reserves Management Practices. These
Reserves Management Practices replace the Reserves Management Practices previously
approved for the Wastewater Utility as part of the FY 2015 Wastewater Utility Financial Plan
(Resolution 9423).
SECTION 2. The Council hereby approves the transfer of $2.164 million in FY 2015
from the Rate Stabilization Reserve to the Operations Reserve, the transfer of all funds released
from the Reappropriations Reserve at the end of FY 2015 to the CIP Reserve, and the
exceedance of the maximum CIP Reserve guidelines through the end of FY 2017, as described in
the FY 2016 Wastewater Utility Financial Plan approved via this resolution.
//
//
//
Attachment A
* NOT YET APPROVED *
150223 mf 6053247
SECTION 3. The Council finds that the adoption of this resolution does not meet the
California Environmental Quality Act’s definition of a project under Public Resources Code
Section 21065, and therefore, no environmental assessment is required.
INTRODUCED AND PASSED:
AYES:
NOES:
ABSENT:
ABSTENTIONS:
ATTEST:
___________________________ ___________________________
City Clerk Mayor
APPROVED AS TO FORM: APPROVED:
___________________________ ___________________________
Senior Deputy City Attorney City Manager
___________________________
Director of Utilities
___________________________
Director of Administrative Services
Proposed Amendments to Wastewater Collection Utility Reserves Management Practices
6053248
APPENDIX B : W ASTEW ATER COLLECTION UTILITY RESERVES MANAGEMENT
PRACTICES
The following reserves management practices shall be used when developing the Wastewater
Collection Utility Financial Plan:
Section 1. Definitions
a)“Financial Planning Period” – The Financial Planning Period is the range of future fiscal
years covered by the Financial Plan. For example, if the Financial Plan delivered in
conjunction with the FY 2015 budget includes projections for FY 2015 to FY 2019, FY
2015 to FY 2019 would be the Financial Planning Period.
b)“Fund Balance” – As used in these Reserves Management Practices, Fund Balance refers
to the Utility’s Unrestricted Net Assets.
c)“Net Assets” - The Government Accounting Standards Board defines a Utility’s Net
Assets as the difference between its assets and liabilities.
d)“Unrestricted Net Assets” - The portion of the Utility’s Net Assets not invested in capital
assets (net of related debt) or restricted for debt service or other restricted purposes.
Section 2. Reserves
The Wastewater Collection Utility’s Fund Balance is reserved for the following purposes:
a)For existing contracts, as described in Section 3 (Reserve for Commitments)
b)For operating and capital budgets re-appropriated from previous years, as described in
Section 4 (Reserve for Re-appropriations)
c)For future year expenditure on the Wastewater Collection Utility’scash flow
management and contingencies related to the Wastewater Collection Utility’s Capital
Improvement Program (CIP), as described in Section 5 (CIP Reserve)
d)For rate stabilization, as described in Section 6 (Rate Stabilization Reserve)
e)For operating contingencies, as described in Section 7 (Operations Reserve)
f)Any funds not included in the other reserves will be considered Unassigned Reserves
and shall be returned to ratepayers or assigned a specific purpose as described in
Section 8 (Unassigned Reserves).
Section 3. Reserve for Commitments
At the end of each fiscal year the Reserve for Commitments will be set to an amount
equal to the total remaining spending authority for all contracts in force for the
Wastewater Collection Utility at that time.
Section 4. Reserve for Re-appropriations
At the end of each fiscal year the Reserve for Re-appropriations will be set to an amount
equal to the amount of all remaining capital and non-capital budgets, if any, that will be
re-appropriated to the following fiscal year in accordance with Palo Alto Municipal Code
Section 2.28.090.
ATTACHMENT B
Proposed Amendments to Wastewater Collection Utility Reserves Management Practices
6053248
Section 5. CIP Reserve
Funds may be added to or withdrawn from the CIP Reserve by action of the City Council
and held for future year expenditure on the Wastewater Collection Utility’s CIP
Program. Withdrawal of funds from the CIP Reserve requires Council action. If there are
funds in the CIP Reserve at the end of any fiscal year, any subsequent Wastewater
Collection Utility Financial Plan must result in the withdrawal of all funds from this
Reserve by the end of the Financial Planning Period.
The CIP Reserve is used to manage cash flow for capital projects and acts as a reserve
for capital contingencies. Staff will manage the CIP Reserve according to the following
practices:
a) The following guideline levels are set forth for the CIP Reserve. These guideline levels
are calculated for each fiscal year of the Financial Planning Period based on the levels of
CIP expense budgeted for that year.
Minimum Level 12 months of budgeted CIP expense
Maximum Level 24 months of budgeted CIP expense
b) Changes in Reserves: Staff is authorized to transfer funds between the CIP Reserve and
the Reserve for Commitments when funds are added or removed from to that reserve
as a result of a change in contractual commitments related to CIP projects. Any other
additions to or withdrawals from the CIP reserve require Council action .
c) Minimum Level:
i) Funds held in the Reserve for Commitments may be counted as part of the CIP
Reserve for the purpose of determining compliance with the CIP Reserve minimum
guideline level.
ii) If, at the end of any fiscal year, the minimum guideline is not met, staff shall present
a plan to the City Council to replenish the reserve. The plan shall be delivered by the
end of the following fiscal year, and shall, at a minimum, result in the reserve
reaching its minimum level by the end of the next fiscal year. For example, if the CIP
Reserve is below its minimum level at the end of FY 2017, staff must present a plan
by June 30, 2018 to return the reserve to its minimum level by June 30, 2019. In
addition, staff may present, and the Council may adopt, an alternative plan that
takes longer than one year to replenish the reserve, or that does so in a shorter
period of time.
d) Maximum Level: If, at any time, the CIP Reserve reaches its maximum level, no funds
may be added to this reserve. If there are funds in this reserve in excess of the
maximum level staff must propose to transfer these funds to another reserve or return
them to ratepayers in the next Financial Plan. Staff may also seek City Council to
approve holding funds in this reserve in excess of the maximum level if they are held for
a specific future purpose related to the CIP.
Proposed Amendments to Wastewater Collection Utility Reserves Management Practices
6053248
Section 6. Rate Stabilization Reserve
Funds may be added to the Rate Stabilization Reserve by action of the City Council and
held to manage the trajectory of future year rate increases. Withdrawal of funds from
the Rate Stabilization Reserve requires Council action. If there are funds in the Rate
Stabilization Reserve at the end of any fiscal year, any subsequent Wastewater
Collection Utility Financial Plan must result in the withdrawal of all funds from this
Reserve by the end of the Financial Planning Period.
Section 7. Operations Reserve
The Operations Reserve is used to manage normal variations in costs and as a reserve for
contingencies. Any portion of the Wastewater Collection Utility’s Fund Balance not
included in the reserves described in Section 3-Section 6 above will be included in the
Operations Reserve unless this reserve has reached its maximum level as set forth in Section
7(d) below. Staff will manage the Operations Reserve according to the following practices:
a) The following guideline levels are set forth for the Operations Reserve. These guideline
levels are calculated for each fiscal year of the Financial Planning Period based on the
levels of Operations and Maintenance (O&M) and commodity expense forecasted for
that year in the Financial Plan.
Minimum Level 60 days of O&M and commodity expense
Target Level
105 days of O&M and commodity expense
Maximum Level
150 days of O&M and commodity expense
b) Minimum Level: If, at the end of any fiscal year, the funds remaining in the Operations
Reserve are lower than the minimum level set forth above, staff shall present a plan to
the City Council to replenish the reserve. The plan shall be delivered within six months
of the end of the fiscal year, and shall, at a minimum, result in the reserve reaching its
minimum level by the end of the following fiscal year. For example, if the Operations
Reserve is below its minimum level at the end of FY 2014, staff must present a plan by
December 31, 2014 to return the reserve to its minimum level by June 30, 2015. In
addition, staff may present, and the Council may adopt, an alternative plan that takes
longer than one year to replenish the reserve.
c) Target Level: If, at the end of any fiscal year, the Operations Reserve is higher or lower
than the target level, any Financial Plan created for the Wastewater Collection Utility
shall be designed to return the Operations Reserve to its target level within four years.
d) Maximum Level: If, at any time, the Operations Reserve reaches its maximum level, no
funds may be added to this reserve. Any further increase in the Wastewater Collection
Utility’s Fund Balance shall be automatically included in the Unassigned Reserve
described in Section 8, below.
Section 8. Unassigned Reserve
Proposed Amendments to Wastewater Collection Utility Reserves Management Practices
6053248
If the Operations Reserve reaches its maximum level, any further additions to the
Wastewater Collection Utility’s Fund Balance will be held in the Unassigned Reserve. If
there are any funds in the Unassigned Reserve at the end of any fiscal year, the next
Financial Plan presented to the City Council must include a plan to assign them to a
specific purpose or return them to the Wastewater Collection Utility ratepayers by the
end of the first fiscal year of the next Financial Planning Period. For example, if there
were funds in the Unassigned Reserves at the end of FY 2015, and the next Financial
Planning Period is FY 2016 through FY 2020, the Financial Plan shall include a plan to
return or assign any funds in the Unassigned Reserve by the end of FY 2016. Staff may
present an alternative plan that retains these funds or returns them over a longer
period of time.
WASTEWATER COLLECTIO N
UTILITY FINANCIAL PLAN
FY 2016 TO FY 20 20
TABLE OF CONTENTS
Section 1. Definitions and Abbreviations ................................................................................ 2
Section 2. Executive Summary and Recommendations ........................................................... 3
Section 2a. Executive Summary ................................................................................................... 3
Section 2b. Summary of Proposed Actions .................................................................................. 4
Section 3. Rate and Reserve Proposals ................................................................................... 4
Section 3a. Current and Proposed Rates ..................................................................................... 4
Section 3b. Reserves Management Practices, Proposed Change ................................................ 5
Section 3c. Proposed Reserve Transfers ...................................................................................... 6
Section 4. Current State of the Utility ..................................................................................... 7
Section 4a. Utility Overview ......................................................................................................... 7
Section 4b. Current Rates And Competitiveness .......................................................................... 7
Section 4c. Current Utility Financial Status .................................................................................. 9
Section 4d. Status of Reserves ................................................................................................... 10
Section 4e. Debt Service ............................................................................................................. 10
Section 5. Looking Back ....................................................................................................... 10
Section 5a. Background ............................................................................................................. 10
Section 5b. Historical Expenses and Revenues .......................................................................... 11
Section 6. Looking Forward .................................................................................................. 12
ATTACHMENT C
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Section 6a. Five Year Financial Forecast .................................................................................... 12
1. Overview ...................................................................................................................... 12
2. Treatment Costs ........................................................................................................... 13
3. Operations .................................................................................................................... 14
4. Capital Improvement Program (CIP) ............................................................................ 14
Section 6b. Revenue Requirement and Sources ......................................................................... 16
Section 6c. Risk Assessment and Reserves Adequacy ................................................................ 17
Section 6d. Alternate Scenarios ................................................................................................. 19
Section 6e. Long Term Outlook .................................................................................................. 19
Section 6f. Communications Plan .............................................................................................. 20
Appendices ......................................................................................................................... 21
Appendix A: Wastewater Collection Financial Forecast Detail .................................................. 22
Appendix B: Wastewater Collection Utility Capital Improvement Program (CIP) Detail .......... 23
Appendix C: Wastewater Collection Utility Reserves Management Practices .......................... 24
Appendix D: Wastewater Collection Debt Service Details ......................................................... 25
Appendix E: Sample of Wastewater Collection Outreach Materials ......................................... 27
SECTION 1. DEFINITIONS AND ABBR EVIATIONS
CCF The standard unit of measurement for water delivered to water customers, equal to
one hundred cubic feet, or roughly 748 gallons. When water usage is used to assess
wastewater charges for commercial customers, it is measured in CCF.
CIP Capital Improvement Program
CPAU City of Palo Alto Utilities Department
FOG Fats, oils, and grease. When flushed into the sewer system, these materials
accumulate in parts of the sewer system and create blockages.
RWQCP Regional Water Quality Control Plant, the wastewater treatment plant owned and
operated by the City of Palo Alto that serves Palo Alto and several surrounding
communities.
WASTEWATER COLLECTION UTILITY FINANCIAL PLAN
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SECTION 2. EXECUTIVE SUMMARY AND R ECOMMENDATIONS
SECTION 2A. EXECUTIV E SUMMARY
This document presents a Financial Plan for the City of Palo Alto’s Wastewater Collection Utility
for the next five years. It provides revenues to cover the costs of operating the utility safely
over that time while adequately investing for the future. It also addresses the financial risks
facing the utility over the short term and long term, and includes measures to mitigate and
manage those risks.
Over the next five fiscal years staff projects that the Wastewater Collection Utility will see
wastewater treatment costs rising 5% per year and other costs rising at roughly 3% to 4% per
year. In addition, capital improvement project costs have increased as the economy has
improved. These costs are shown in Table 1 below.
Table 1: Expenses for FY 2014 to FY 2020
Expenses
($000)
FY 2014
(actual)
FY 2015
(est.)
FY 2016 FY 2017 FY 2018 FY 2019 FY 2020
Treatment Costs 6,863 8,589 9,018 9,469 9,943 10,440 10,962
Operations, Rent, Debt, Other 5,959 5,981 6,161 6,375 6,596 6,824 7,062
Capital Projects 989 4,067 4,985 5,106 5,221 5,341 5,353
TOTAL 13,811 18,637 20,164 20,950 21,760 22,605 23,377
As shown in Table 1, overall costs are expected to rise by about 5% per year from FY 2015 to FY
2020. While expenses are currently larger than revenues, staff has been drawing down the Rate
Stabilization Reserve in lieu of having rate increases. To ensure that revenues cover these rising
costs, the financial plan includes the rate trajectory shown in Table 2. For FY 2016 to FY 2019
rates are projected to increase 9% per year followed by a 6% increase in FY 2020.
Table 2: Projected Wastewater Collection Rate Trajectory for FY 2016 to FY 2020
FY 2016 FY 2017 FY 2018 FY 2019 FY 2020
9% 9% 9% 9% 6%
These projected rate increases result in an increase of $2.48 to $3.42 per month for a
residential customer’s sewer bill. The Wastewater Collection Utility’s Rate Stabilization
Reserves are being used to spread the projected cost increases over several years. This
Financial Plan projects that these reserves will be exhausted by FY 2017.
In addition, this Financial Plan includes updates to the Wastewater Collection Utility Reserves
Management Practices to amend the purpose of the CIP Reserve, as described below.
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SECTION 2B. SUMMARY OF PROPOSED ACTIONS
Staff proposes the following action for the Wastewater Collection Utility in FY 2015:
1.Transfer an additional $264,000 from the Rate Stabilization Reserve to the Operations
Reserve. (Note that $1.9 million was already transferred from the Rate Stabilization
Reserve for FY 2015 in the FY 2015 Financial Plan.)
Staff proposes the following actions for the Wastewater Collection Utility in FY 2016:
1.Increase the Wastewater Collection rates as shown in Section 3A. The changes are
projected to increase average system revenues by 9% effective July 1, 2015.
2.Amend the Reserves Management Practices to modify the purpose of the CIP Reserve,
enabling it to act as a cash flow contingency reserve for capital investment projects as
outlined in Section 3B.
3.Transfer all funds released from the Re-appropriations Reserve at the end of FY 2015 to
the CIP Reserve, as outlined in Section 3B.
4.Transfer $2 million from the Rate Stabilization Reserve to the Operations Reserve. See
Section 3C for more details.
SECTION 3. RATE AND RESERVE PRO POSALS
SECTION 3A. CURRENT AND PROPOSED RATES
The current rates were adopted July 1, 2012, when the City increased sewer rates by 5%. The
rate change included a revenue-neutral change to the billing methodology for commercial
customers. CPAU’s sewer rates for commercial customers are based on the previous winter’s
water use. This closely approximates non-irrigation water consumption, which represents
actual sewer use.
CPAU has three sewer rate schedules: one for residents (S-1), one for commercial customers
(S-2), and a special schedule for restaurants (S-6), which discharge higher than average amounts
of grease and oil and, therefore, have a greater impact on the sewer system. CPAU also
maintains a rate schedule for industrial dischargers (S-7), but there are currently no customers
required to be on this rate schedule.
Table 3, below, summarizes the current and proposed rates for all customer classes.
Comparisons with neighboring communities are discussed later in Section 4B.
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Table 3: Sewer Rates (Current and Proposed)
Current
(7/1/2012)
Proposed
(7/1/2015)
Change
$/mo. %
Monthly Service and Minimum Charges ($/month)
S-1 (Residential) Service charge $29.31 $31.95 $2.64 9%
S-2 (Commercial),
S-6 (Restaurant)
Minimum $29.31 $31.95 $2.64 9%
Quantity Rates
S-1 (Residential) $/CCF N/A N/A - -
S-2 (Commercial) $/CCF 5.65 6.16 0.51 9%
S-6 (Restaurant) $/CCF 8.73 9.52 0.79 9%
S-7 (Industrial) $/CCF 2.60 2.83 0.23 9%
The Wastewater Collection Utility’s rates are evaluated and implemented in compliance with
the cost of service requirements and procedural rules set forth in the California Constitution
(Proposition 218). Current rates were structured based on staff’s annual assessment of the
wastewater utility’s financial position, as well as the methodology from the January 2011
Wastewater Collection Utility Cost of Service & Rate Study completed by Utility Financial
Solutions1. Staff tentatively plans to review and update this cost of service study in 2 to 3 years,
unless any major changes occur to the utility’s operations or customer base that would
necessitate an earlier study. Before conducting any new cost of service study, staff will review
current rates and the scope of the study with the Utilities Advisory Commission (UAC) and
Council to determine the City’s policy priorities.
SECTIO N 3B. RESERVES MANAG EMENT PRACTICES, PRO POSED CHANGE
Staff proposes one change to the Wastewater Collection Utility Reserves Management Practices
(Appendix C) in this Financial Plan. Staff recommends changing the CIP Reserve definition and
management practices so that it becomes a cash flow and contingency reserve for CIP projects.
Currently these purposes are served by a combination of the Operations and Re-appropriations
Reserves, while the CIP Reserve acts as a sinking fund to accumulate funds for large one -time
future CIP expenditures (which are rare). The City is chan ging its budgeting practices starting
with FY 2016, and will no longer re-appropriate CIP budgets each year. Instead, CIP budgets for
long-term or ongoing projects will be renewed each year through the annual budget process.
This means that the funds in the Re-appropriations Reserve ($6.9 million as of June 30, 2014)
will be released after June 30, 2015. These funds acted as a cash flow reserve for CIP projects,
and some or all of it should be retained for that purpose. Staff proposes to retain these funds in
the CIP reserve, and the proposed changes to the Reserves Management Practices will enable
CPAU to do that.
Staff proposes to initially set a minimum and maximum guideline for the CIP reserve that will
enable it to hold similar amounts to what has typically been held within the Re-appropriations
1 Staff Report 1399, Finance Committee, March 1, 2011
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Reserve. Staff intends to review the capital management practices at other agencies and revisit
these guideline levels, but initially, staff proposes a minimum guideline level of 12 to 24 months
of CIP expenditure. CIP-related funds in the Commitments Reserve would be allowed to count
toward that guideline. The CIP-related funds in the Commitments Reserve are equal to the total
remaining balance of all CIP contracts currently in progress, and these funds should be taken
into account when determining whether CIP cash flow and contingency reserves are adequate.
The initial maximum guideline level would be 24 months of CIP expenditures, but the maximum
guideline could be exceeded with Council approval.
Figure 1 shows the Re-appropriations Reserve level as of June 30, 2014, as well as the CIP
portion of the Reserve for Commitments.
Figure 1: Capital Reserve
SECTION 3C. PROPOSED RESERVE TRANSFERS
In the FY 2015 Financial Plan several transfers between reserves were approved. Funds were
transferred out of the Emergency Plant Replacement and Rate Stabilization Reserve into the
newly-created Operations Reserve. These transfers were mainly related to setting up the new
approved reserves structure, but a transfer from the Rate Stabilization Reserve to the
Operations Reserve of $1.9 million was also approved. This was a planned drawdown so that a
rate increase would not be necessary. As costs have changed in FY 2015, an additional transfer
of $264,000 is proposed from the Rate Stabilization Reserve to the Operations Reserve.
For FY 2016, staff proposes a $2 million transfer from the Rate Stabilization Reser ve. This
transfer is included in the financial projections in this Financial Plan. It will enable CPAU to
maintain adequate Operations Reserve levels while moderating the pace of increase in
Wastewater Collection rates. In addition, staff proposes transfers from the Re-appropriations
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Reserve to the CIP Reserve as described in the previous section. The impact of these transfers
on reserves levels can be seen in Appendix A.
SECTION 4. CURRENT STATE OF THE UTILITY
SECTION 4A. UTILITY OVERVIEW
The City of Palo Alto’s Wastewater Collection Utility provides sewer service to the residents and
businesses of Palo Alto. It is distinct from the Wastewater Treatment Utility, which provides
treatment services for surrounding communities in addition to Palo Alto. Nearly 23,300
customers are connected to the sewer system, approximately 21,450 (92%) of which are
residential and 1,850 (8%) of which are non-residential. Residential customers pay a flat fee for
service. Non-residential customers are billed for sewer service based on their metered winter
water usage. There is little variability in revenues for this utility.
The Wastewater Collection Utility delivers all the wastewater it collects to the Regional Water
Quality Control Plant (RWQCP) operated by the City of Palo Alto under a partnership agreement
with several surrounding communities. Palo Alto is responsible for 37% to 40% of the
wastewater sent to the RWQCP. The cost of running the RWQCP is contained in the
Wastewater Treatment Utility and is not described in detail in this Financial Plan, but since
these costs are a major driver of CPAU’s sewer rates, there is some discussion of future trends
in treatment costs in Section 6A. Treatment costs make up nearly half of the Wastewater
Collection Utility’s expenses as shown in Table 1 above.
To collect wastewater from its customers and deliver it to the RWQCP, CPAU owns roughly
18,100 sewer laterals (which collect wastewater from customers’ plumbing systems) and 217
miles of sewer mains (which transport the waste to the treatment plant). These laterals and
mains, along with the associated manholes and cleanouts, represent the vast majority of
infrastructure used to collect wastewater in Palo Alto. CPAU conducts a sewer rehabilitation
and replacement program to replace mains over time as they deteriorate or to increase
capacity. For more discussion of this program, see Section 6A. CIP expense accounts for
roughly a quarter of the utility’s expenditures.
In addition to its CIP, CPAU performs various maintenance activities on the sewer system.
These include inspecting and repairing sewer laterals, responding to sewer overflows, regularly
cleaning sections of the system heavily impacted by fats, oils, and grease (FOG), and building
and replacing sewer laterals for new or redeveloped buildings. The utility also shares the costs
of other operational activities (such as customer service, billing, equipment maintenance, and
street restoration) with the City’s other utilities. These maintenance and operations expenses ,
as well as associated administration, debt service, rent, and other costs, make up another
quarter of the utility’s expenses.
SECTION 4B. CURRENT RATES AN D COMPETITIVENESS
Table 3 shows the sewer bills for residential customers compared to what they would be under
surrounding communities’ rate schedules. The annual sewer bill for a Palo Alto customer is
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$351.72 under current rates, 34% lower than the average neighboring community. Palo Alto
has the third lowest monthly rate of the group.
Table 3: Residential Monthly Sewer Bill Comparison
Palo Alto
Neighboring Communities Neighboring
Community
Average
Menlo
Park
Redwood
City
Mountain
View Los Altos
Santa
Clara Hayward
29.31 74.42 68.77 27.15 33.95 34.65 28.09 44.51
Based on rates as of January 1, 2015
If the proposed rate change as discussed in Section 3A is adopted by Council, and assuming
other agencies do not change their sewer rates, Palo Alto would be 28% lower than the average
neighboring community and retain the third lowest bill.
Table 4 compares the sewer bills for two classes of commercial customers to what they would
be under surrounding communities’ rate schedules. Note that other communities often have
specific rates for industrial customers that discharge high intensity wastewater, such as food
processors or chemical or electronics manufacturers, but Palo Alto does not currently have any
customers that require these special rates. The annual bill for the median Palo Alto commercial
customer is $949, or 2% above the average neighboring community. For the average restaurant
the annual bill is $5,867, or 1% above the average neighboring community.
Table 4: Commercial Monthly Sewer Bill Comparison
Palo Alto
Neighboring Communities Neighboring
Community
Average
Menlo
Park
Redwood
City
Mountain
View Los Altos
Santa
Clara Hayward
General
Commercial
$79.10 $131.68 $90.40 $56.80 $52.29 $56.45 $76.48 $77.35
Restaurant $488.88 $575.12 $767.20 $389.20 $209.16 $442.01 $514.64 $482.89
Based on rates as of January 1, 2015
If the proposed rate change as discussed in Section 3A is adopted by Council, and assuming
other agencies do not change their sewer rates, bills for Palo Alto restaurants would be about
10% higher than the average neighboring community’s restaurants, and bills for other Palo Alto
commercial customers would be about 11% higher than the average neighboring community’s
commercial customers.
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SECTION 4C. CURRENT UTILITY FINANCIAL ST ATUS
In FY 2014, treatment costs represented nearly half of the Wastewater Collection Utility’s costs,
followed by administration, overhead, and other costs (22%) and Operations (21%). CIP costs
were lower than usual (7% of costs) due to a temporary hold on new funding until existing
projects were completed. These expenditures are shown in Figure 3. They are also displayed
by category of expenditure in Figure 2. The utility’s revenue in FY 2014 came primarily from
sewer charges (86%), with the remainder coming from capacity and connection fees (10%), and
other sources (4%).
Table 5 contains a summary of the Wastewater Collection Utility’s financial outlook for FY 2015.
Sales are very stable since roughly 60% of sales are to residential customers, whose rate
consists of fixed monthly service charges. A component of business sales revenues is based on
winter water use levels, which are fairly stable as well. For FY 2015, no appreciable variances in
sales revenues from budget are projected. Connection and capacity fees associated with new
development and redevelopment continue to be higher than budget, increasing other
revenues. Operations and maintenance costs are projected to be slightly higher, based on
historical trends. Net withdrawals from reserves are projected to be $1.7 million, slightly lower
than the budgeted $1.8 million.
Table 5: Projected Net Revenue, FY 2015
Wastewater Collection -
Operating Activity
All figures in thousands ($000’s)
Adopted
Budget
FY 2015
Projected
FY 2015
Activity
Variance
to
Budget
Net Sales to date 15,010 15,010 -
Other revenues to date 1,565 1,971 406
Treatment costs to date (8,589) (8,589) -
Other expenses to date (9,823) (10,048) (587)
Total (1,837) (1,656) 181
Figure 3: FY 2014 Costs by Activity
Treatment,
50%
CIP, 7%
Operations,
21%
Admin/
Overhead,
18%
Other, 4%
Figure 2: FY 2014 Costs by Category
Treatment,
50%
CIP, 7%
Supplies/
Materials /
Other, 6%
Salaries/
Benefits,
21%
Admin/
Overhead,
16%
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SECTION 4 D . STATUS OF RESERVES
Appendix A shows the projected status of the Wastewater Collection Utility’s reserves at the
end of FY 2015. Total reserves at year end (6/30/2015) are projected to be $14.9 million, with
$2.3 million remaining in the Rate Stabilization Reserve for future years and $4.3 million in the
Operations Reserve, which is at the Reserve Target level. As detailed in Appendix C:
Wastewater Collection Utility Reserves Management Practices and in Section 3B, this plan
includes a change to the structure of the utility’s CIP Reserve to make it a cash flow and
contingency reserve for CIP projects .
SECTION 4E. DEBT SER VICE
The Wastewater Collection Utility’s annual debt service is roughly $128,000 per year. This is
related to one bond issuance that will require payments through 2024. This issuance, the 1999
Utility Revenue Bonds, Series A, is a joint issuance between the Storm Drain, Wastewater
Treatment, and Wastewater Collection Utilities refinancing several different earlier bond
issuances. The City is in compliance with all covenants on that bond . Additional detail is
provided in Appendix D.
SECTION 5. LOOKING B ACK
SECTION 5A. BACKGROU ND
The Wastewater Utility commenced operation in 1899 to serve Palo Alto and Stanford. In its
first three decades the system grew to 60 miles of sewers. Raw sewage was discharged into
Mayfield Slough at the edge of the Bay. In the 1930s, at the behest of the State Department of
Health, Palo Alto built the South Bay’s first wastewater treatment plant. At that time the sewer
system served 20,500 Stanford and Palo Alto residents and a cannery. The plant was upgraded
twice in the 1940s and 1950s to increase capacity.2 At the same time, the postwar population
and industrial boom in the 1950s required rapid expansion of the sewer system. In the first half
of the 1960s Palo Alto’s area doubled, as did wastewater flows, overwhelming the capacity of
several of the utility’s “trunk lines,” which are the largest diameter main sewer lines carrying
wastewater to the treatment plant. This prompted the City, in 1965, to perform the first of its
sewer master plans to identify needed capacity improvements. At that point the Wastewater
Utility’s system comprised more than 150 miles of sewer mains.3
In 1968 the City signed agreements with the Cities of Mountain View and Los Altos to build a
new regional treatment plant, the RWQCP, which is still in operation today. Since 1940 the City
had been providing treatment services to the East Palo Alto Sanitary District through an existing
agreement, and was also serving Stanford University by transporting wastewater across the
City’s sewer system to the treatment plant. Both of these organizations became partners in the
RWQCP as well. At the same time the Town of Los Altos Hills became the sixth partner as it
2 Long Range Facilities Plan for the Regional Water Quality Control Plant, August 2012, Carollo Engineers, pp 2-1
through 2-2
3 Wastewater Collection and Storm Drainage, 1965, Brown and Caldwell Consulting Engineers, pp 4, 6-7, 143
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signed an agreement with the City to connect the Town’s sewer system to the City’s sewer
system to carry wastewater to the new RWQCP. The current agreements for the RWQCP
extend through 2035.4
In the 1980s the City directed increased attention to the condition of its sewer system,
performing a series of studies of groundwater inflow and infiltration into the system. The study
found high rates of infiltration, estimating that as much as 40% of the water going to the
RWQCP from Palo Alto’s system was groundwater and stormwater rather than wastewater.5 In
some parts of Palo Alto the land surface had subsided due to groundwater pumping by the
water utility, and though that practice had ceased many years earlier as the water utility
switched to the Hetch Hetchy system, parts of the city had already subsided two to five feet.
This subsidence had damaged several parts of the sewer collection system, leading to reduced
slopes for sewer mains that caused reductions in capacity. In response to these studies the City
commenced an accelerated sewer system rehabilitation program.6 At that point the sewer
system comprised over 190 miles of mains.7
A Master Plan study in 1988 recommended a variety of capacity expansions, and in the 1990s
the City completed about half of them. However, a 2004 Master Plan update found that the
accelerated sewer rehabilitation plan started in the early 1990s had substantially reduced
infiltration, easing the capacity problems that had led the to the recommended capacity
increases in the 1988 study. Several of the outstanding projects were canceled and replaced
with a different set of projects.8 At the same time the City updated its hydraulic model and
developed greater capacity to do system planning in house.
Today, with a system comprising 217 miles of sewer mains, the Wastewater Collection Utility
continues to serve over 23,300 Palo Alto residences and businesses, and transports wastewater
to the RWQCP for Stanford University and the Town of Los Altos Hills.
SECTION 5B. HISTORIC AL EXPENSES AND RE VENUES
Table 6 shows the Wastewater Collection Utility’s expenses and revenues for the past five
years. Treatment charges made up 41% of total expenses in FY 2010 and have been increasing
by 8% per year on average. FY 2014 treatment costs were lower than average due to a one
time change in accounting for encumbrances. While FY 2014 treatment charges were 50% of
total cost, this was mainly due to a one-year delay in new capital improvement budgeting for
main replacements. Excluding treatment and CIP, costs for this utility have increased by about
8% on average since 2010.
Sales revenues increased in FY 2013, primarily due to rate increases, but the largest item to
note are the continued increases in connection and capacity fees from new construction . These
have increased 38% since FY 2010. Also notable is the negative interest earned in FY 2013,
4 Long Range Facilities Plan for the Regional Water Quality Control Plant, August 2012, Carollo Engineers, pg 2-2
5 Wastewater Collection System Master Plan – Capacity Assessment, January 2004, MWH Americas, Inc., pg ES-2
6 CMR 183:90, Infrastructure Review and Update, March 1, 1990
7 Master Plan of the Wastewater Collection System, December 1988, Camp Dresser & McKee, Inc., pg 1-2
8 Wastewater Collection System Master Plan – Capacity Assessment, January 2004, MWH Americas, Inc., pg ES-3
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which represents a decrease in the market value of the City’s investment portfolio that
accounting rules require the City to recognize at the end of each fiscal year . Given that the City
holds its investments to maturity these “mark to market” gains and losses do not impact the
utility’s long term financial position.
Table 6: Historical Expenses, Wastewater Collection Utility
SECTION 6 . LOOKING FORWARD
SECTION 6A. FIVE YEA R FINANCIAL FORECAST
1. OVERVIEW
Staff has prepared a forecast of costs and revenues through FY 2020. As shown in Table 7 (and
Appendix A), the Wastewater Collection Utility’s total costs are projected to increase by 4.6%
per year on average for FY 2016 through FY 2020. The utility’s sales revenue will need to
increase by 8% annually, on average, through FY 2020 since revenues are currently below costs
in a normal year.
Over the last several years actual costs for operations, maintenance, and CIP have been
relatively low. The cost of maintaining and replacing the distribution system in FY 2013 was
almost the same as it was in FY 2009, and this has offset the rising cost of treatment. This was
2010 2011 2012 2013 2014
5 RETAIL SALES REVENUE 14,490 14,287 14,094 15,019 14,588
6 CONNECTION AND CAPACITY FEES 469 1,081 989 1,609 1,703
7 OTHER / TRANSFERS IN 278 307 264 545 361
8 INTEREST 674 454 494 (211) 339
9 TOTAL SOURCES OF FUNDS 15,910 16,129 15,841 16,963 16,991
10
11 PURCHASES/CHARGES OF UTILITIES (TREATMENT)6,519 7,414 8,895 8,314 6,863
12 ALLOCATED CHARGES (CIP&OPERATING)1,535 1,787 791 1,926 2,359
13 CUSTOMER SERVICE 239 281 72 1 133
14 DISTRIBUTION OPERATIONS 1,997 2,227 2,466 2,617 2,570
15 ENGINEERING (OPERATING)220 195 258 271 310
16 DEBT SERVICE 128 128 128 128 129
17 RENT 115 115 106 110 217
18 OTHER/ TRANSFERS OUT 168 267 88 147 241
19 CAPITAL IMPROVEMENT FUNDING 4,935 4,630 4,274 4,094 989
20 ALLOWANCE FOR UNSPENT CAPITAL FUNDS -
21 TOTAL USES OF FUNDS 15,856 17,044 17,079 17,610 13,811
22
23 INTO / (OUT OF) RESERVES 54 (914) (1,238) (647) 3,180
Fiscal Year
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likely due to the economic downturn, which led to lower costs for services and materials. Staff
has seen indications that this trend has reversed. Prices are rising for contract services and
materials, and this means that the utility is more likely to see rising costs in the future. If costs
for operations, maintenance, and CIP increase more quickly than projected in this plan, either
due to the improving economy or other factors, larger rate increases may be required.
Table 7: Five Year Financial Forecast Summary
2. TREATMENT COSTS
Treatment expenses represent the Wastewater Collection Utility’s share of the costs of
operating the RWQCP. Per the partnership agreements between Palo Alto and its partner
agencies, these charges are assessed based on a formula that takes into account the total
amount of wastewater delivered, the amount of organic material in it, its ammonia content,
and the total suspended solids it is carrying. The Wastewater Collection Utility’s assessed share
of the RWQCP’s revenue requirement fluctuates in the 38% to 40% range. Mountain View is
the other large agency served by the RWQCP (39% of the revenue requirement for FY 2014)
with the smaller agencies (Stanford, Los Altos, East Palo Alto, and Los Altos Hills) making up the
remainder of the flow to the treatment plant.
In the next five years treatment costs are expected to rise by 5% per year, primarily due to
increased CIP spending by the RWQCP. In the longer term, treatment costs are expected to
continue to rise at that rate as major upgrade and replacement projects are undertaken at the
plant. These costs are described in more detail in Section 6E.
Actual Adopted Projected
2014 2015 2015 2016 2017 2018 2019 2020
1
2 % CHANGE IN RETAIL RATE 0.0%0.0%0.0%9.0%9.0%9.0%9.0%6.0%
3 PROJECTED CHANGE IN RETAIL SALES REVENUE - - 1,352 1,473 1,606 1,751 1,272
4
5 RETAIL SALES REVENUE 14,588 15,010 15,010 16,305 17,774 19,374 21,119 22,411
6 CONNECTION AND CAPACITY FEES 1,703 954 1,360 1,402 1,445 1,487 1,519 1,578
7 OTHER / TRANSFERS IN 361 302 302 302 302 302 302 302
8 INTEREST 339 309 309 309 309 309 309 309
9 TOTAL SOURCES OF FUNDS 16,991 16,575 16,981 18,319 19,830 21,473 23,249 24,600
10
11 PURCHASES/CHARGES OF UTILITIES (TREATMENT)6,863 8,589 8,589 9,018 9,469 9,943 10,440 10,962
12 ALLOCATED CHARGES (CIP&OPERATING)2,359 1,844 2,576 2,646 2,725 2,807 2,891 2,978
CUSTOMER SERVICE 133 268 147 155 166 177 188 200
13 DISTRIBUTION OPERATIONS 2,570 2,816 2,875 2,960 3,064 3,174 3,286 3,403
ENGINEERING (OPERATING)310 369 325 335 347 360 373 387
14 DEBT SERVICE 129 128 128 128 128 128 128 128
15 RENT 217 223 223 229 236 243 251 258
16 OTHER/ TRANSFERS OUT 241 108 108 108 108 108 108 108
17 CAPITAL IMPROVEMENT FUNDING 989 4,067 4,067 4,985 5,106 5,221 5,341 5,353
ALLOWANCE FOR UNSPENT CAPITAL FUNDS - - (400) (400) (400) (400) (400) (400)
18 TOTAL USES OF FUNDS 13,811 18,412 18,637 20,164 20,950 21,760 22,605 23,377
19
20 INTO / (OUT OF) RESERVES 3,180 (1,837) (1,656) (1,845) (1,120) (287) 644 1,223
Fiscal Year
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3. OPERATIONS
Operations costs include the Customer Service, Distribution Operations, Engineering, and
Allocated Charges categories in Table 7, above. Debt service, rent, and transfers are also
included in this category. Customer Service costs are primarily related to the call center and
collections on delinquent accounts. The Distribution Operations category includes preventative
and corrective maintenance on sewer mains and laterals, investigation of sewer overflows,
regular cleaning of heavily impacted sections of the sewer system, and services shared with
other utilities (such as street restoration and equipment maintenance). Allocated Charges
include the costs of accounting, purchasing, legal, and other administrative functions provided
by the City’s General Fund staff, as well as shared communications ser vices and Utilities
Department administrative overhead and billing system maintenance costs.
Operations costs are projected to increase by 3% per year, on average, over the forecast period.
Underlying these projections are salary and benefit, consumer price index, and other cost
projections used in the City’s long-range financial forecast.
4. CAPITAL IMPROVEMENT PROGRAM (CIP)
The Wastewater Collection Utility’s CIP consists of the following programs:
The Sewer System Replacement/Rehabilitation Program, under which the Wastewater
Collection Utility replaces aging sewer mains.
Customer Connections, which covers the cost when the Wastewater Collection Utility
installs new services or upgrades existing services at a customer’s request in response
to development or redevelopment. CPAU charges a fee to these customers to cover
the cost of these projects.
Ongoing Projects, which covers the cost of replacing degraded manholes and sewer
laterals, as well as the cost of capitalized tools and equipment.
The Sewer System Replacement and Rehabilitation Program funds the replacement of
deteriorating sewer mains and projects to increase capacity in various parts of the sewer
system. The sewer system consists of over 217 miles of mains, and CPAU uses a variety of tools
to establish which sections are in need of replacement. Maintenance statistics (such as records
of the location and number of sewer overflows on the system) and videotape of sewer mains
during regular cleaning can reveal areas with large amounts of deteriorating pipe. CPAU uses a
scoring system to prioritize which mains to replace first, and coordinates with the Public Works
street maintenance program to avoid cutting into newly repaved streets. A major goal of the
program is to minimize groundwater and rainwater infiltration. As mains deteriorate they
begin to allow groundwater and rainwater to infiltrate the system. Some level of infiltration is
expected on any sewer system, but if there is too much, the c ombined flow of wastewater and
groundwater/rainwater can overwhelm the capacity of various parts of the sewer system.
Reducing infiltration can reduce the need to expand the system to accommodate increased
flow. To achieve this goal, deteriorating mains are either repaired with a plastic lining or
replaced. CPAU replaces or repairs approximately 25,000 feet of main per year, or 2.5% of the
system.
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The CIP program also funds sewer capacity improvements. CPAU uses a hydraulic model, data
from various flow meters on the system, and land use data to identify sections of the system
that are being overloaded. When sewer mains are operating at or above their capacity on a
regular basis it will increase the likelihood of sewer overflows. CPAU also does occasional
comprehensive master planning studies to identify necessary capacity improvements. The
most recent study, in 2004, identified eight projects, three of which have been completed. The
remaining four projects are low priority projects and will be scheduled and planned as the need
arises.
Over the last few years, main replacement costs have been increasing, for Wastewater as well
as the Gas and Water utilities. The replacement cost per linear foot has increased by between
25 and 50% in some cases. Several factors may be contributing to this. Economic recovery in
the Bay Area, as well as a greater focus on infrastructure improvement by many municipal
agencies and utilities could be creating high demand for contractors in this field. There may be
ongoing greater costs for newer, more leak resistant pipe materials. Should these trends prove
to be less than short-term phenomena, wastewater main replacement budgets may need to be
increased by $1.5 to $1.7 million more per year to keep up the current pace of replacement.
As the last master plan study was updated over a decade ago, and due to these escalating costs,
staff is considering a new master plan study, tentatively planned for 2016, to evaluate the
current state of the sewer system and determine the necessary rate of main replacement in
future years. The process may reveal a need for a higher or lower replacement, or possibly
target areas for more urgent focus. In the case that prices remain high and the updated plan
shows a need for similar rates of replacement that CPAU had previously planned, CIP costs will
rise. Staff analyzed this “High CIP Cost” scenario in Section 6D.
Ongoing Projects and Customer Connections are projected to cost approximately $1.27 million
in FY 2016 and increase by 2.8% each year through the end of the forecast period. Actual
expenses for these projects fluctuate annually depending on how many defective laterals and
manholes are discovered during routine maintenance, as well as how much development and
redevelopment is going on that prompts the replacement or upgrade of sewer laterals. It is
worth noting that property owners pay a fee for sewer lateral replacement or expansion during
redevelopment, so when the number of projects increase, so does fee revenue.
Projected CIP spending is displayed in Table 8 for the 5-year financial forecast period.
Table 8: Projected CIP Spending
Project Category
Current
Budget*
Spending,
Curr. Yr
Remain.
Budget**Committed FY 2016 FY 2017 FY 2018 FY 2019 FY 2020
Sewer Rehab/Augmentation 10,338 (334) 10,005 8,828 3,420 3,523 3,620 3,722 3,833
Ongoing Projects 1,510 (272) 1,238 860 882 907 932 958 985
Customer Connections 530 (89) 441 5 383 394 405 416 429
TOTAL 12,379 (695) 11,684 9,692 4,685 4,824 4,957 5,096 5,246
*Includes unspent funds from previous years carried forward or reappropriated into the current fiscal year
**Equal to CIP Reserves (Reserve for Reappropriations + Reserve for Commitments).
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Aside from customer connections, the CIP plan for FY 2016 to FY 2020 is funded by sewer rates
and capacity fees. The details of the plan are shown in Appendix B: Wastewater Collection
Utility Capital Improvement Program (CIP) Detail.
SECTION 6 B . REVENUE REQUIREMENT AND SOURCES
The revenue requirement is the total amount of revenue that must be collected from
customers in order to meet the planned expenditures for the Wastewater Collection Utility.
Costs for the Wastewater Collection Utility are projected to increase by nearly 5% per year
through FY 2020. Without rate increases, by FY 2020 costs would exceed revenues by nearly
$6.2 million per year. Matching costs to revenues by FY 2020 will require 9% increases in sales
revenues each year for FY 2016 to FY 2019, as shown in Figure 4, below. There was no rate
increase in FY 2015. Instead, there was a one-time cost savings since there was no new sewer
main replacement project in FY 2014, and there was a one-time decrease in treatment costs
related to a change in billing methodology by the RWQCP. The utility has seen substantial
increases in connection and capacity fee revenues in recent years, offsetting the need for
increased sales revenue, and these are assumed to continue, albeit slightly reduced from
current levels. Each of the projected FY 2016 to FY 2019 rate increases will increase residential
sewer bills by $2.64 to $3.42 per month.
Figure 4: Wastewater Collection Fund Revenue and Cost Projections
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Figure 5 shows the reserve reallocations that implement the current and proposed Reserves
Management Practices.
Figure 5: Wastewater Collection Reserves Projections
SECT ION 6 C . RISK ASSESSMENT AND RESERVES ADEQUACY
The Wastewater Collection Utility currently has one contingency reserve, the Operations
Reserve, and this Financial Plan maintains reserves within their approved guideline levels
throughout the forecast period, as shown in Figure 6 below. Reserve levels also exceed the
short term risk assessment for the utility.
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Figure 6: Operations Reserve Adequacy
Staff performs an annual assessment of risks for the Wastewater Collection Utility. For this
evaluation, staff estimates the revenue shortfall due to:
1.the maximum observed budget-to-actual variance in one year during the past five years;
2.an increase of 10% in system improvement CIP expenditures for the year; and
3.an increase of 10% in treatment costs.
Table 9 summarizes the risk assessment calculation for the Wastewater Collection Utility. The
Operations Reserve is projected to be adequate to manage these levels of risk over the entire
forecast period.
Table 9: Wastewater Collection Risk Assessment
FY 2016 FY 2017 FY 2018 FY 2019 FY 2020
Total Revenue ($000) 15,020 16,315 17,784 19,384 21,129
Max. Historical Budget-to-Actual variance 10% 10% 10% 10% 10%
Budget-to-Actual Risk ($000) 1,502 1,632 1,778 1,938 2,113
System Rehabilitation CIP Budget ($000) 3,695 4,602 4,712 4,816 4,925
CIP Contingency @10% ($000) 370 460 471 482 493
Treatment Budget ($000) 8,589 9,018 9,469 9,943 10,440
Treatment Cost Contingency @10% ($000) 859 902 947 994 1,044
Total risk assessment value ($000) 2,731 2,994 3,196 3,414 3,650
Projected Operations Reserve Level ($000) 4,482 3,663 3,376 4,019 5,242
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SECTION 6 D . ALTERNATE SCENARIOS
The forecast described in the previous sections assumes that wastewater main replacement
costs are about the same as they were in previous years. There is substantial uncertainty about
this assumption. Staff has created a separate CIP scenario in which main replacement budgets
are 50% higher than the base forecast. As described in Section 6A (Five Year Financial Forecast)
prices for the most recent main replacement projects have been nearly 50% higher than
previous projects. The current forecast assumes that these prices have been temporary spikes
due to the economy picking up, but that may not be the case. The “High CIP Cost” scenario
assumes that CPAU continues its current pace of main replacement and prices remain at these
higher levels.
Figure 7 shows the rate increases under the High CIP Cost scenario and the base case
(inflationary increases in CIP budgets). If this scenario becomes reality, it may be possible to
phase in the increase in CIP budgets over several years to defer the rate impact into later years.
CPAU will be developing a Wastewater Collection System Master Plan, planned for 2016. It will
give CPAU the information it needs to determine the feasibility of these types of strategies.
Figure 7: Rate increases for High CIP Cost scenario
SECTION 6 E . LONG TERM OUTLOOK
In the longer term (5 to 35 years) the primary factor that could lead to increased costs for the
Wastewater Collection Utility are major upgrades at the RWQCP, a share of which will be
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allocated to the utility as part of treatment costs. These upgrades includes replacement or
rehabilitation of the parts of the facility that pump raw sewage to the main treatment works
(the headworks), separate out primary sludge (the primary settling tank), process sludge (the
bio-solids facility), and treat wastewater (the fixed film reactors). Upgrades to the laboratories
and operational buildings are planned as well. In addition, the 72-inch regional trunk sewer line
flowing into the plant needs to be evaluated and rehabilitated. Based on detailed project cost
projections provided by RWQCP staff, treatment costs are likely to continue to increase by
roughly 5% per year through at least 2030. Two of Palo Alto’s comparison cities, Mountain
View and Los Altos, are partners in the RWQCP and will see similar increases, but other
comparison agencies may not.
SECTION 6 F . COMMUNICATIONS PLAN
The FY 2016 Wastewater Collection Utility communications strategy covers three primary areas:
rates, operations and infrastructure, and safety. Communication about wastewater rate
adjustments will highlight the important infrastructure and operations upgrades that are
occurring at the Regional Water Quality Control Plant to improve wastewater collection utility
services. To keep customers apprised of the status and accomplishments of CIP projects, a
network of project web pages are maintained and updated as needed. Traffic is driven to the
website via ads in publications, newspaper inserts, social media and email blasts.
An important communications topic for the wastewater utility is avoiding sewer back-ups due
to FOG (fats, oil and grease) and trash being dumped down drains and toilets. Safety topics are
emphasized year-round. Staff continues its outreach goal of educating customers about the
utility’s gas-sewer line cross-bore inspection program, including the importance of calling
Utilities first when there is a sewer back-up. Staff ran a successful campaign featuring one of
our primary sewer repair crewmen to highlight this issue.
Promotional activity about wastewater utility maintenance and safety operations includes use
of bill inserts, ads in local print publications, website pages, email blasts and social
media. While print materials and website pages feature prominently, CPAU is increasing the
outreach emphasis on use of direct mail, social media and digital advertising including videos
and short commercials on the local television channels. Staff is also attending more community
safety/emergency preparation events and neighborhood meetings.
WASTEWATER COLLECTION UTILITY FINANCIAL PLAN
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APPENDICES
Appendix A: Wastewater Collection Financial Forecast Detail
Appendix B: Wastewater Collection Utility Capital Improvement Program (CIP)
Detail
Appendix C: Wastewater Collection Utility Reserves Management Practices
Appendix D: Wastewater Collection Debt Service Details
Appendix E: Sample of Wastewater Collection Outreach Materials
WASTEWATER COLLECTION UTILITY FINANCIAL PLAN
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APPENDIX A : WASTEWATER COLLECTIO N FINANCIAL FORECAST D ETAIL
Actual Adopted Projected
2014 2015 2015 2016 2017 2018 2019 2020
1
2 % CHANGE IN RETAIL RATE 0.0%0.0%0.0%9.0%9.0%9.0%9.0%6.0%
3 PROJECTED CHANGE IN RETAIL SALES REVENUE - - 1,352 1,473 1,606 1,751 1,272
4
5 RETAIL SALES REVENUE 14,588 15,010 15,010 16,305 17,774 19,374 21,119 22,411
6 CONNECTION AND CAPACITY FEES 1,703 954 1,360 1,402 1,445 1,487 1,519 1,578
7 OTHER / TRANSFERS IN 361 302 302 302 302 302 302 302
8 INTEREST 339 309 309 309 309 309 309 309
9 TOTAL SOURCES OF FUNDS 16,991 16,575 16,981 18,319 19,830 21,473 23,249 24,600
10
11 PURCHASES/CHARGES OF UTILITIES (TREATMENT)6,863 8,589 8,589 9,018 9,469 9,943 10,440 10,962
12 ALLOCATED CHARGES (CIP&OPERATING)2,359 1,844 2,576 2,646 2,725 2,807 2,891 2,978
CUSTOMER SERVICE 133 268 147 155 166 177 188 200
13 DISTRIBUTION OPERATIONS 2,570 2,816 2,875 2,960 3,064 3,174 3,286 3,403
ENGINEERING (OPERATING)310 369 325 335 347 360 373 387
14 DEBT SERVICE 129 128 128 128 128 128 128 128
15 RENT 217 223 223 229 236 243 251 258
16 OTHER/ TRANSFERS OUT 241 108 108 108 108 108 108 108
17 CAPITAL IMPROVEMENT FUNDING 989 4,067 4,067 4,985 5,106 5,221 5,341 5,353
ALLOWANCE FOR UNSPENT CAPITAL FUNDS - - (400) (400) (400) (400) (400) (400)
18 TOTAL USES OF FUNDS 13,811 18,412 18,637 20,164 20,950 21,760 22,605 23,377
19
20 INTO / (OUT OF) RESERVES 3,180 (1,837) (1,656) (1,845) (1,120) (287) 644 1,223
21
24 ENDING COMMITMENTS & REAPPROPRIATIONS 8,312 8,312 1,454 1,454 1,454 1,454 1,454 1,454
23 ENDING PLANT REPLACEMENT RESERVE - - - - - - - -
ENDING CIP RESERVE - - 6,858 6,858 6,858 6,858 6,858 6,858
22 ENDING RATE STABILIZATION RESERVE 4,556 2,322 2,322 301 - - - -
ENDING OPERATIONS RESERVE 3,728 4,127 4,306 4,482 3,663 3,376 4,019 5,242
25 UNASSIGNED RESERVES - - - - - - - -
26 RISK ASSESSMENT VALUE 2,230 2,722 2,722 2,876 3,043 3,221 3,409 3,598
27
28 OPERATIONS RESERVE GUIDELINES
29 MIN (60 DAYS TREATMENT/O&M EXP)1,915 2,358 2,461 2,561 2,670 2,785 2,904 3,029
TARGET (105 DAYS TREATMENT/O&M EXP)3,352 4,127 4,306 4,482 4,673 4,873 5,082 5,300
30 MAX (150 DAYS TREATMENT/O&M EXP)4,788 5,895 6,152 6,402 6,675 6,961 7,260 7,571
31
Fiscal Year
WASTEWATER COLLECTION UTILITY FINANCIAL PLAN
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APPENDIX B : WASTEWATER COLLECTIO N UTILITY CAPITAL IMPROVEMENT PROGRAM (CIP) DETAIL
Project #Project Name
Reappropriated /
Carried Forward from
Previous Years
Current Year
Funding
Budget
Amendments
Spending,
Current Year
Remaining in
CIP Reserve
Fund Commitments FY 2016 FY 2017 FY 2018 FY 2019 FY 2020
SEWER SYSTEM REHABILITATION AND AUGMENTATION (SSR/A) PROGRAM
WC-07004 SSR/A - Project 20 39,293 - - - 39,293 - - - - - -
WC-08012 SSR/A - Project 21 188,809 - - (23,087) 165,722 - - - - - -
WC-09001 SSR/A - Project 22 (37,132) - - (43,777) (80,909) 6,087 - - - - -
WC-10002 SSR/A - Project 23 1,187,290 - - (95,978) 1,091,312 1,160,999 - - - - -
WC-11000 SSR/A - Project 24 2,512,435 - - (67,577) 2,444,858 2,282,801 - - - - -
WC-12001 SSR/A - Project 25 2,854,977 - - (74,366) 2,780,611 2,296,851 - - - - -
WC-13001 SSR/A - Project 26 272,550 3,000,000 - (28,745) 3,243,805 3,040,000 - - - - -
WC-14001 SSR/A - Project 27 - 320,000 - - 320,000 40,950 3,090,000 - - - -
WC-15001 SSR/A - Project 28 - - - - - - 330,000 3,183,000 - - -
WC-16001 SSR/A - Project 29 - - - - - - - 340,000 3,270,000 - -
WC-17001 SSR/A - Project 30 - - - - - - - - 350,000 3,362,000 -
WC-19001 SSR/A - Project 31 - - - - - - - - - 360,000 3,462,500
WC-20000 SSR/A - Project 32 - - - - - - - - - - 370,000
Subtotal, Sewer Rehab./Augmentation 7,018,222 3,320,000 - (333,530) 10,004,692 8,827,688 3,420,000 3,523,000 3,620,000 3,722,000 3,832,500
ONGOING PROJECTS
WC-13002 Fusion & Gen. Equip./Tools 28,132 50,000 - - 78,132 - 50,000 50,000 50,000 50,000 50,000
WC-15002 WW System Improvements 281,702 225,000 - (48,054) 458,648 75,653 232,000 239,000 246,000 253,000 260,000
WC-99013 Sewer / Manhole Rehab.825,516 100,000 - (224,261) 701,255 784,358 600,000 618,000 636,000 655,000 675,000
Subtotal, Ongoing Projects 1,135,350 375,000 - (272,315) 1,238,035 860,011 882,000 907,000 932,000 958,000 985,000
CUSTOMER CONNECTIONS (FEE FUNDED)
WC-80020 Sewer System Extensions 158,227 372,000 - (89,334) 440,893 4,572 383,000 394,000 405,000 416,000 428,500
Subtotal, Customer Connections 158,227 372,000 - (89,334) 440,893 4,572 383,000 394,000 405,000 416,000 428,500
GRAND TOTAL 8,311,799 4,067,000 - (695,179) 11,683,620 9,692,271 4,685,000 4,824,000 4,957,000 5,096,000 5,246,000
Funding Sources
Connection/Capacity Fees 750,000 - 871,000 894,000 917,000 940,000 986,534
Funded by Rates and Other Revenue 3,695,000 - 3,814,000 3,930,000 4,040,000 4,156,000 4,259,466
CIP-RELATED RESERVES DETAIL
6/30/2014
(Actual)12/31/2014
Reappropriations 6,858,799 1,991,349
Commitments 1,453,000 9,692,271
WASTEWATER COLLECTION UTILITY FINANCIAL PLAN
J u n e 1 6 , 2 0 1 4 24 | P a g e
APPENDIX C : WASTEWATER COLLECTIO N UTILITY RESERVES
MANAGEMENT PRACTICES
(Amendments to this section are proposed. See the proposed resolution adopting this Financial
Plan. This section will be added to the Financial Plan following adoption of any amendments to
this section.)
WASTEWATER COLLECTION UTILITY FINANCIAL PLAN
J u n e 1 6 , 2 0 1 4 25 | P a g e
APPENDIX D : WASTEWATER COLLECTIO N DEBT SERVICE DETAILS
The Wastewater Collection Utility currently makes payment on its share of one bond issuance,
the 1999 Utility Revenue Bonds, Series A, which is due to be retired in 2024. This $17.7 million
issuance refinanced various earlier Storm Drain, Wastewater Treatment, and Wastewater
Collection Utility bond issuances. The Wastewater Collection Utility’s share of the issuance was
roughly $1.9 million, which represented the second refinancing of the remaining principal of a
1990 bond issuance that itself was a refinancing of a 1985 issuance that financed a variety of
improvements to the sewer system. The cost of debt service for the Wastewater Collection
Utility’s share of this bond issuance for the financial forecast period is as follows:
Table 100: Wastewater Collection Utility Debt Service ($000)
FY 2015 FY 2016 FY 2017 FY 2018 FY 2019 FY 2020
1999 Utility
Revenue Bonds,
Series A
128 128 128 128 128 128
The 1999 Utility Revenue Bonds include two covenants stating that 1) the Wastewater
Collection Utility will maintain a debt coverage ratio of 125% of debt service, and 2) that the
City will maintain “Available Reserves”9 equal to five times the annual debt service. The current
financial plan maintains compliance with both covenants throughout the forecast period.
Compliance with covenant one is shown below in Table 11, below. Due to the small size of the
annual debt service payment for these bonds, the Wastewater Collection Utility’s Operations
Reserve alone more than satisfies the second covenant at more than 30 times annual debt
service throughout the forecast period.
Table 111: Debt Service Coverage Ratio ($000)
FY 2015 FY 2016 FY 2017 FY 2018 FY 2019 FY 2020
Revenues 16,981 18,319 19,830 21,473 23,249 24,600
Expenses (Excl. CIP
and Debt Service) (14,842) (15,451) (16,115) (16,811) (17,537) (18,296)
Net Revenues 2,139 2,868 3,715 4,662 5,712 6,304
Debt Service 128 128 128 128 128 128
Coverage Ratio 1671% 2241% 2902% 3642% 4463% 4925%
The Wastewater Collection Utility’s reserves (but not its net revenues) are also considered
security for the Storm Drain and Wastewater Treatment Utilities’ shares of the debt service on
the 1999 bonds. Throughout the term of the bonds there remains a small risk that the
Wastewater Collection Utility’s reserves could be called upon to make a debt service payment
on behalf of one of those utilities if it cannot meet its debt service obligations. Staff does not
foresee this occurring based on the current financial condition of those utilities. If the
9 Available Reserves as defined in the 1999 Utility Revenue Bonds included reserves for the Water, Wastewater
Treatment, Wastewater Collection, Refuse, Storm Drain, Electric, and Gas Utilities
WASTEWATER COLLECTION UTILITY FINANCIAL PLAN
J u n e 1 6 , 2 0 1 4 26 | P a g e
Wastewater Collection Utility’s reserves were used this way, any amounts advanced would
have to be repaid by the borrowing utility.
One other bond series is secured by the net revenues (but not the reserves) of the Wastewater
Collection Utility. The 1995 Series A Utility Revenue Bonds issued for the Storm Drain utility
was secured by the net revenues of the City’s “Enterprise,” which was defined as the City’s
water, gas, wastewater, storm drain, and electric utilities, and are senior to the 1999 bonds
referenced above. Debt service payments of roughly $680,000 per year are made on the 1995
Series A bonds by the City’s Storm Drain Utility, and staff does not currently foresee any risk of
that utility being unable to make payment.
WASTEWATER COLLECTION UTILITY FINANCIAL PLAN
APPENDIX E : SAMPLE OF WASTEWATER COLLECTIO N OUTREACH MA TERIALS
Attachment D
* NOT YET APPROVED *
150223 mf 6053246
Resolution No. _____
Resolution of the Council of the City of Palo Alto Amending Rate
Schedules S-1 (Residential Wastewater Collection and Disposal), S-2
(Commercial Wastewater Collection and Disposal), S-6 (Restaurant
Wastewater Collection and Disposal) and S-7 (Commercial
Wastewater Collection and Disposal – Industrial Discharger)
R E C I T A L S
A. Pursuant to Chapter 12.20.010 of the Palo Alto Municipal Code, the Council of
the City of Palo Alto may by resolution adopt rules and regulations governing utility services,
fees and charges.
B. Pursuant to Article XIIID Sec. 6 of the California Constitution, on ________, 2015,
the City of Palo Alto held a public hearing to consider all protests against the proposed
wastewater collection rate amendments.
C. The total number of written protests presented by the close of the public
hearing was less than fifty percent (50%) of the total number of customers and property
owners subject to the proposed wastewater collection rate amendments.
The Council of the City of Palo Alto RESOLVES, as follows:
SECTION 1. Pursuant to Section 12.20.010 of the Palo Alto Municipal Code, Utility
Rate Schedule S-1 (Residential Wastewater Collection and Disposal) is hereby amended to read
as attached and incorporated. Utility Rate Schedule S-1, as amended, shall become effective
July 1, 2015.
SECTION 2. Pursuant to Section 12.20.010 of the Palo Alto Municipal Code, Utility
Rate Schedule S-2 (Commercial Wastewater Collection and Disposal) is hereby amended to read
as attached and incorporated. Utility Rate Schedule S-2, as amended, shall become effective
July 1, 2015.
SECTION 3. Pursuant to Section 12.20.010 of the Palo Alto Municipal Code, Utility
Rate Schedule S-6 (Restaurant Wastewater Collection and Disposal) is hereby amended to read
as attached and incorporated. Utility Rate Schedule S-6, as amended, shall become effective
July 1, 2015.
SECTION 4. Pursuant to Section 12.20.010 of the Palo Alto Municipal Code, Utility
Rate Schedule S-7 (Commercial Wastewater Collection and Disposal – Industrial Discharger) is
hereby amended to read as attached and incorporated. Utility Rate Schedule S-7, as amended,
shall become effective July 1, 2015.
Attachment D
* NOT YET APPROVED *
150223 mf 6053246
SECTION 5. The Council finds that the revenue derived from the adoption of this
resolution shall be used only for the purpose set forth in Article VII, Section 2, of the Charter of
the City of Palo Alto.
SECTION 6. The Council finds that the fees and charges adopted by this resolution are
charges imposed for a specific government service or product provided directly to the payor
that are not provided to those not charged, and do not exceed the reasonable costs to the City
of providing the service or product.
SECTION 7. The Council finds that the adoption of this resolution changing
wastewater collection rates to meet operating expenses, purchase supplies and materials, meet
financial reserve needs and obtain funds for capital improvements necessary to maintain
service is not subject to the California Environmental Quality Act (CEQA), purs uant to California
Public Resources Code Sec. 21080(b)(8) and Title 14 of the California Code of Regulations Sec.
15273(a). After reviewing the staff report and all attachments presented to Council, the
Council incorporates these documents herein and finds that sufficient evidence has been
presented setting forth with specificity the basis for this claim of CEQA exemption.
INTRODUCED AND PASSED:
AYES:
NOES:
ABSENT:
ABSTENTIONS:
ATTEST:
___________________________ ___________________________
City Clerk Mayor
APPROVED AS TO FORM: APPROVED:
___________________________ ___________________________
Senior Deputy City Attorney City Manager
___________________________
Director of Utilities
___________________________
Director of Administrative Services
RESIDENTIAL WASTEWATER COLLECTION AND DISPOSAL
UTILITY RATE SCHEDULE S-1
CITY OF PALO ALTO UTILITIES
Issued by the City Council
Supersedes Sheet No S-1-1 Effective 7-1-20125
dated 7-1-20112 Sheet No S-1-1
A. APPLICABILITY:
This schedule applies to each occupied residential dwelling unit.
B. TERRITORY:
This schedule applies everywhere the City of Palo Alto provides wastewater service.
C. RATES:
Per Month
Each domestic dwelling unit ..................................................................................................
$29.3131.95
D. SPECIAL NOTES:
1. Any dwelling unit being individually served by a water, gas, or electric meter will be
considered continuously occupied.
2. For two or more occupied dwelling units served by one water meter, the monthly wastewater
charge will be calculated by multiplying the current wastewater rate by the number of
dwelling units.
3. Each developed separate lot shall have a separate service lateral to a sanitary main or
manhole.
{End}
ATTACHMENT E
COMMERCIAL WASTEWATER COLLECTION AND DISPOSAL
UTILITY RATE SCHEDULE S-2
CITY OF PALO ALTO UTILITIES
Issued by the City Council
Supersedes Sheet No S-2-1 Effective 7-1-20125
dated 7-1-20112 Sheet No S-2-1
A. APPLICABILITY:
This schedule applies to all commercial establishments other than those served under Utility Rate
Schedule S-1 (Domestic Wastewater Collection and Disposal), Rate Schedule S-6 (Restaurant
Wastewater Collection and Disposal) or Rate Schedule S-7 (Commercial Establishments
Wastewater Disposal – Industrial Discharger).
B. TERRITORY:
This schedule applies everywhere the City of Palo Alto provides wastewater services.
C. RATES:
1. Minimum Charge per connection per month .............................................................$29.3131.95
2. Quantity Rates, per 100 cubic feet (See Section D.1) .............................................$5.656.16
D. SPECIAL NOTES:
1. The monthly charge for the quantity rate set forth in Section C.2 of this rate schedule will
be based upon the average water usage for the months of January, February and March,
and applied in the following July. If a water meter is identified as exclusively serving
irrigation landscaping, such meter will be exempted from wastewater charge calculations.
Customers without an applicable usage history will be charged at the minimum monthly
charge until such time as such usage may reasonably be established by the City of Palo
Alto Utilities Department.
2. The City of Palo Alto Utilities Department may require wastewater metering facilities, in
which case service will be governed by terms of a special agreement between the City
and the Customer.
{End}
RESTAURANT WASTEWATER COLLECTION AND DISPOSAL
UTILITY RATE SCHEDULE S-6
CITY OF PALO ALTO UTILITIES
Issued by the City Council
Supersedes Sheet No S-6-1 Effective 7-1-20125
dated 7-1-2012 Sheet No S-6-1
A. APPLICABILITY:
This schedule applies to all restaurants.
B. TERRITORY:
This schedule applies everywhere the City of Palo Alto provides wastewater services.
C. RATES:
1. Minimum charge per connection per month ......................................................... $29.3131.95
2. Quantity Rates, per 100 cubic feet of monthly metered water usage .........................$ 8.739.52
D. SPECIAL NOTES:
1. The City of Palo Alto Utilities Department may require wastewater metering facilities, in
which case service will be governed by terms of a special agreement between the City and
the Customer.
{End}
COMMERCIAL WASTEWATER COLLECTION AND DISPOSAL
–INDUSTRIAL DISCHARGER
UTILITY RATE SCHEDULE S-7
CITY OF PALO ALTO UTILITIES
Issued by the City Council
Supersedes Sheet No S-7-1 Effective 7-1-20125
dated 7-1-2012 Sheet No S-7-1
A. APPLICABILITY:
This schedule applies to any establishment requiring sampling of industrial discharges in excess
of 25,000 gallons per day, or special discharge monitoring, as defined in Rule and Regulation 23,
Section D.
B. TERRITORY:
This schedule applies everywhere the City of Palo Alto provides wastewater services.
C. RATES:
1. Collection System Operation, Maintenance, and Infiltration Inflow:
$2,077.54 per million gallons ($1.5578 per 100 cubic feet of metered water use).
2. Advanced Waste Treatment Operations and Maintenance Charge:
$1,403.74 per million gallons ($1.05 per 100 cubic feet of metered water use
3. $ 247.56 per 1000 pounds (lbs) of COD (Chemical Oxygen Demand)
4. $ 596.62 per 1000 lbs of SS (Suspended Solids)
5. $ 3,983.85 per 1000 lbs of NH3 (Ammonia)
6. $ 14,781.25 per 1000 lbs of toxics (chromium, copper, cyanide, lead, nickel, silver, and zinc)
D. SPECIAL NOTES:
1. Water usage will be determined as defined in Rule and Regulation 23, Section D. If a
water meter is identified as exclusively serving irrigation landscaping, such meter will be
exempted from wastewater charge calculations.
2. The City of Palo Alto Utilities Department may require wastewater metering facilities, in
which case service will be governed by terms of a special agreement between the City of
Palo Alto and the Customer.
3. Charges for large discharges will be determined on the basis of sampling as outlined in
Utilities Rule and Regulation 23, Section D. However, for purposes of arriving at an
accurate flow estimate, discharge meters, if installed, can be utilized to measure outflow
for billing purposes. Annual charges will be determined and allocated monthly for billing
purposes.
{End}
Page 1 of 7
6
MEMORANDUM
TO: UTILITIES ADVISORY COMMISSION
FROM: UTILITIES DEPARTMENT
DATE: March 4, 2015
SUBJECT: Staff Recommendation that the Utilities Advisory Commission Recommend
that the City Council Adopt: (1) a Resolution Approving the Fiscal Year 2016
Water Utility Financial Plan and Amending the Water Utility Reserve
Management Practices; and (2) a Resolution Amending Rate Schedules W-1
(General Residential Water Service), W-2 (Water Service from Fire Hydrants),
W-3 (Fire Service Connections), W-4 (Residential Master-Metered and General
Non-Residential Water Service), and W-7 (Non-Residential Irrigation Water
Service)
Staff requests that the Utilities Advisory Commission (UAC) recommend that the Council:
1. Adopt a resolution (Attachment A) approving the fiscal year (FY) 2016 Water Utility
Financial Plan (Attachment C) and amending the Water Utility Reserve Management
Practices (Attachment B); and
2. Adopt a resolution (Attachment D) Amending Rate Schedules W-1 (General Residential
Water Service), W-2 (Water Service from Fire Hydrants), W-3 (Fire Service Connections),
W-4 (Residential Master-Metered and General Non-Residential Water Service), and W-7
(Non-Residential Irrigation Water Service).
EXECUTIVE SUMMARY
The FY 2016 Water Utility Financial Plan includes projections of the utility’s costs and revenues
for FY 2016 through FY 2023. Costs are projected to rise substantially for the next several years
due primarily to increasing water supply costs. As a result, staff projects the need for a 12%
rate increase on July 1, 2015 and 8% rate increases afterward each year through FY 2019.
Costs are increasing by 14% from FY 2015 to FY 2016, and are also projected to increase by
another 15% by FY 2020. These cost increases are mostly due to water supply costs, which are
increasing by 31% in FY 2016, 9% in FY 2019, and 9% in FY 2020. Staff proposes spreading the
rate increases required to match these costs over several years . This is possible with two
recommended reserves transfers to the Operations Reserve—$2 million from the CIP Reserve
in FY 2015, and $5.5 million from the Rate Stabilization Reserve in FY 2016. This will reduce the
Rate Stabilization Reserve to nearly zero by the end of FY 2016.
Page 2 of 7
Staff also recommends a change to the Water Utility Reserves Management Practices for the
CIP Reserve to accommodate a change in City budgeting practices for CIP projects.
BACKGROUND
Every year staff presents the UAC with Financial Plans for its Electric, Gas, Water, and
Wastewater Collection Utilities and recommends any rate adjustments required to maintain
their financial health. These Financial Plans include a comprehensive overview of the utility’s
operations, both retrospective and prospective, and are intended to be a reference for UAC and
Council members as they review the budget and staff’s rate recom mendations.
Each Financial Plan also contains a set of Reserves Management Practices describing the
reserves for each utility and the management practices for those reserves. Staff may propose
amendments to these reserves as part of the Financial Plans.
The UAC reviewed preliminary financial forecasts at its February 4, 2015 meeting. Staff has
made some changes to the preliminary projections presented at that meeting.
DISCUSSION
Proposed Actions for FY 2015
When Council adopted the FY 2015 Water Utility Financial Plan, it approved several transfers
between reserves. Funds were transferred out of the Emergency Plant Replacement and Rate
Stabilization Reserve into the newly-created CIP and Operations Reserves. These transfers were
mainly related to setting up the new reserves structure approved as part of that Financial Plan.
Now, staff recommends an additional transfer for FY 2015. The final design for the seismic
strengthening and recoating of some of the reservoirs identified some additional work that may
need to be done at a cost of roughly $2 million. As a result, staff proposes a transfer of $2
million from the CIP Reserve to the Operations Reserve, so that it will have $4 million remaining
at the end of FY 2015.
Proposed Actions for FY 2016
This year’s Water Utility Financial Plan includes the following proposed actions for FY 2016:
1. Amend the CIP Reserve to accommodate a change in the City’s capital budgeting practices.
These amendments are summarized below, but for a more in-depth description of the
reasons for these amendments, see Section 4C of the Financial Plan :
a. Modify the purpose of the CIP Reserve to enable it to act as a cash flow and contingency
reserve for capital investment projects by amending the Reserves Management
Practices.
b. Transfer funds projected to be released from the Reappropriations Reserve at the
beginning of FY 2016 due to a change in City capital budgeting practices to the CIP
Reserve.
c. Exceed the proposed maximum CIP Reserve guidelines through the end of FY 2017.
Page 3 of 7
2. Transfer $5.5 million from the Rate Stabilization Reserve to the Operations Reserve. This
transfer will enable staff to maintain Operations Reserve levels while spreading the required
rate increases for the water utility over several years.
These proposed actions are described in more detail in the FY 2016 Water Financial Plan
(Attachment B).
In addition, staff proposes to adjust water rates to the levels shown in Tables 1 and 2, below,
effective July 1, 2015. These changes are projected to increase the system average rate by
roughly 12%. These rate changes are included in the proposed amended rate schedules in
Attachment E.
Staff’s annual assessment of the financial position of the City’s water utility is completed to
ensure adequate revenue to fund operations, in compliance with the cost of service
requirements set forth in the California Constitution (Proposition 218). This includes making
long-term projections of market conditions, the physical condition of the system, and other
factors that could affect utility costs, and setting rates adequate to recover these costs. The
current rate proposals are also based the cost of service methodology from the 2012 Palo Alto
Water Cost of Service & Rate Study by Raftelis Financial Consultants.
Table 1: Water Consumption Charges (Current and Proposed)
Current Rates
(7/1/13)
Proposed Rates
(7/1/15)
Change
$/CCF %
W-1 (Residential) Volumetric Rates ($/CCF)
Tier 1 Rates 4.99 5.70 $0.71 14%
Tier 2 Rates 7.58 8.38 $0.80 11%
W-2 (Construction) Volumetric Rates ($/CCF)
Uniform Rate 6.15 6.97 $0.82 13%
W-4 (Commercial) Volumetric Rates ($/CCF)
Uniform Rate 6.15 6.97 $0.82 13%
W-7 (Irrigation) Volumetric Rates ($/CCF)
Uniform Rate 7.52 8.46 $0.94 13%
Page 4 of 7
Table 2: Current and Proposed Monthly Service Charge
Meter
Size
Monthly Service Charge
($/month based on meter size) Change
Current (7/1/13) Proposed (7/1/15) $/mo %
5/8” 14.67 $16.01 $1.34 9%
3/4” 19.51 $21.48 $1.97 10%
1” 29.18 $32.42 $3.24 11%
1 ½” 53.37 $59.77 $6.40 12%
2” 82.39 $92.60 $10.21 12%
3” 174.29 $196.54 $22.25 13%
4” 309.72 $349.71 $39.99 13%
6” 633.80 $716.24 $82.44 13%
8” 1,165.86 $1,318.01 $152.15 13%
10” 1,843.02 $2,083.89 $240.87 13%
12” 2,423.45 $2,740.37 $316.92 13%
Table 1: Current and Proposed Monthly Fire Service Charges
Meter
Size
Monthly Fire Service Charge
($/month based on meter size) Change
Current (7/1/13) Proposed (7/1/15) $/mo %
2” $3.03 $3.43 $0.40 13%
4” $18.78 $21.21 $2.43 13%
6” $54.55 $61.60 $7.05 13%
8” $116.24 $131.28 $15.04 13%
10” $209.03 $236.09 $27.06 13%
12” $337.65 $381.35 $43.70 13%
Bill Impact of Proposed Rate Changes
Table 3 shows the impact of the proposed July 1, 2015 rate changes on the median residential
bill. This comparison assumes that customers do not decrease consumption. Historically,
however, customers have looked for ways to conserve after their bills have increased, so not all
customers will experience the same bill increase. The average increase is roughly 12%, but
some customers with very low bills may see slightly higher increases due to slight changes in
the composition of the utility’s costs and how that affects the first tier and fixed charges under
the cost of service methodology.
Page 5 of 7
Table 3: Impact of Proposed Rate Changes on Residential Bills
Usage
(CCF/month)
Bill under
Existing Rates
Bill under
Proposed Rates
Change
$/mo. %
4 34.63 38.81 4.18 12%
(Winter median) 7 52.19 58.59 6.40 12%
(Annual median) 9 67.35 75.35 8.00 12%
(Summer median) 14 105.25 117.24 11.99 11%
25 188.63 209.40 20.77 11%
Table 4 shows the impact of the proposed July 1, 2015 rate changes on various representative
commercial customer bills. As with residents, this comparison assumes that customers do not
decrease consumption.
Table 4: Impact of Proposed Rate Changes on Commercial Bills
Usage
(CCF/month)
Bill under
Current
Rates
Bill under
Proposed
Rates
Change
$/mo. %
Commercial (W-4) (5/8” meters)
(Annual median) 12 88.47 99.65 11.18 13%
(Annual average) 64 408.27 462.09 53.82 13%
Irrigation (W-7) (1 ½” meters)
(Winter median) 9 121 136 15 13%
(Summer median) 37 332 373 41 12%
(Winter average) 56 474 534 59 12%
(Summer average) 199 1,550 1743 193 12%
Financial Plan’s Projected Rate Adjustments for the Next Five Fiscal Years
Table 5 shows the projected rate adjustments over the next five years and their impact on the
median residential water bill. As discussed above, for FY 2016 staff is proposing to pass a large
increase in the SFPUC wholesale rate through to customers, and also slightly increase water
distribution rates. Staff projects the need for 8% rate increases through FY 2019, with increases
at the rate of inflation afterward.
Table 5: Projected Rate Adjustments, FY 2016 to FY 2020
FY 2016 FY 2017 FY 2018 FY 2019 FY 2020
Water Utility 12% 8% 8% 8% 3%
Estimated Bill Impact ($/mo)* $8.15 $6.37 $6.79 $7.24 $2.88
* estimated impact on median residential water bill, which is currently $67.35.
The main driver for the increase in the water utility’s costs (and therefore rates) over the next
several years is the cost of water. Wholesale wate r costs are projected to rise 30% in FY 2016
and 9% per year in FY 2019 and FY 2020 as debt is issued to finance the SFPUC’s Water System
Improvement Program (WSIP) (no substantial changes are projected in FY 2017 and FY 2018).
Page 6 of 7
The City will also see a $1 million increase in operating costs for a capital lease for emergency
generators for wells and pump stations. Aside from that, operating and CIP costs are projected
to rise roughly 2% to 4% annually over that time. The Water Utility Financial Plan assumes the
current drought ends in early 2016, but includes projections for alternate scenarios under
which the drought extends for an additional one or two years.
Last year, staff discussed uncertainty in the forecasts of capital costs for the water utility in
coming years. Water main replacement costs have risen substantially in recent years, and it is
possible higher CIP expenditures will be required in the future. The Financial Plan includes rate
projections for an alternate scenario in which higher CIP spending is required. Staff is in the
process of completing a master plan for the water distribution system, and expects better
information about future main replacement costs when that plan is completed. It is currently
expected to be completed in May 2015.
Changes from Preliminary Financial Forecast
In mid-February, after presenting the preliminary financial forecast, staff received an update d
projection of SFPUC’s wholesale water rates. As of July 1, 2015, the wholesale rate is now
forecast to increase from $2.93/per hundred cubic feet (CCF) to $3.83/CCF (a 30.7% increase)
instead of the previously projected $3.42/CCF. This results in the need for a 12% retail rate
increase on July 1, 2015 rather than the 7% rate increase discussed with the UAC on February 4,
2015 when it reviewed the preliminary financial forecast.
Staff also changed its water use forecast and the updated forecast assumes that drought
restrictions will continue through 2015 and that consumption will not return to pre -drought
levels. These changes caused the projected rates to increase by 8% per year for FY 2017
through FY 2019 rather than the 7% per year presented in February in the preliminary forecast.
In addition, after preparing the preliminary financial forecast, staff received the final cost
estimate for a seismic strengthening and recoating project for several reservoirs. Due to some
additional unanticipated required work, $2 million will need to be added to the project budget.
This reduces the reserves available for rate stabilization over the forecast period more than was
assumed when staff presented the preliminary financial forecast to the UAC in February.
NEXT STEPS
The Finance Committee will review the Water Financial Plan on April 7, 2015. Assuming the
Finance Committee supports staff’s recommendation , notification of the rate increases will be
sent to customers as required by Article XIIID of the State Constitution (added by Proposition
218). The Financial Plans and rate schedules will then go to the City Council with the FY 2016
budget for adoption, at which time the public hearing required by Article XIIID of the State
Constitution will be held.
RESOURCE IMPACT
Normal year sales revenues for the Water Utility are projected to increase by roughly 12% ($3.7
million) as a result of these rate increases. The entire revenue increase will be offset by a $4.4
million increase in wholesale water supply costs= See the attached Financial Plans for a more
comprehensive overview of projected cost and revenue changes for the next five years.
POLICY IMPLICATIONS
The attached Financial Plan includes amended Reserve Management Practices that rill modify
Council policy with respect to the structure of the financial reserves Water Utility. These
Reserve Management Practices replace the current Reserve Management Practices, which
were last updated by Council in June 2014 (Resolution 9423).
ENVIRONNIENTAL REVIEW
The UAC's review and recommendation to Council on these Financial Plans and, rate
adjustments does not meet the California Environmental Quality Act's definition of a project,
pursuant to Public Resources Code Section 21065, thus no environmental review is required.
ATTACHMENTS
A. Resolution of the Council of the City of Palo Alto Approving the FY 2016 Water Utility
Financial Plan and Amending the Water Utility Reserves Management Practices
Amended Water Utility Reserves Management Practices
Proposed FY 2016 Water Utility Financial Plan
Resolution of the Council of the City of Palo Alto Adopting a Water Rate
Amending Rate Schedules W-, W-2, W-, W-4 and W-7
Amended Rate Schedules W-1, W-2,
B.
PREPARED BY:
REVIEWED BY:
APPROVED BY:
VALERI,O. FONG'
Director of Utilities
JONATHAN ABENDSCHEIN, Senior Resource Planner.
ERIC KENISTON, Resource Planner
ncrease and
ector, Resource Management
Page 7 of 7
Attachment A
* NOT YET APPROVED *
150220 mf 6053256 1
Resolution No. ____
Resolution of the Council of the City of Palo Alto Approving the
FY 2016 Water Utility Financial Plan and Amending the Water Utility
Reserves Management Practices
R E C I T A L S
A. Each year the City of Palo Alto (“City”) regularly assesses the financial position of
its utilities with the goal of ensuring adequate revenue to fund operations. This includes
making long-term projections of market conditions, the physical condition of the system, and
other factors that could affect utility costs, and setting rates adequate to recover these costs. It
does this with the goal of providing safe, reliable, and sustainable utility services at competitive
rates. The City adopts Financial Plans to summarize these projections.
B. The City uses reserves to protect against contingencies and to manage other
aspects of its operations, and regularly assesses the adequacy of these reserves and the
management practices governing their operation. The status of utility reserves and their
management practices are included in Reserves Management Practices attached to and made
part of the Financial Plans.
C. The City intends to make changes to its Water Utility Reserves Management
Practices to amend the purpose and management practices of the Water Utility’s Capital
Improvement Program (CIP) Reserve.
The Council of the City of Palo Alto RESOLVES, as follows:
SECTION 1. The Council hereby approves FY 2016 Water Utility Financial Plan,
including the amended Water Utility Reserves Management Practices. These Reserves
Management Practices replace the Reserves Management Practices previously approved for
the Water Utility as part of the FY 2015 Water Utility Financial Plan (Resolution 9423).
SECTION 2. The Council hereby approves the transfer of $2 million in FY 2015 from
the CIP Reserve to the Operations Reserve, the transfer of all funds released from the
Reappropriations Reserve at the end of FY 2015 to the CIP Reserve, the transfer of $5.5 million
from the Rate Stabilization Reserve to the Operations Reserve, and the exceedance of the
maximum CIP Reserve guidelines through the end of FY 2017, as described in the FY 2016
Water Utility Financial Plan approved via this resolution.
//
//
//
Attachment A
* NOT YET APPROVED *
150220 mf 6053256 2
SECTION 3. The Council finds that the adoption of this resolution does not meet the
California Environmental Quality Act’s (CEQA) definition of a project under Public Resources
Code Section 21065, and therefore, no environmental assessment is required.
INTRODUCED AND PASSED:
AYES:
NOES:
ABSENT:
ABSTENTIONS:
ATTEST:
___________________________ ___________________________
City Clerk Mayor
APPROVED AS TO FORM: APPROVED:
___________________________ ___________________________
Senior Deputy City Attorney City Manager
___________________________
Director of Utilities
___________________________
Director of Administrative Services
DRAFT Proposed Amendments to Water Utility Reserves Management Practices
APPENDIX A C : WATER UTILITY RESERVES MANAGEMENT PRACTICES
The following reserves management practices shall be used when developing the W ater Utility
Financial Plan:
Section 1. Definitions
a)“Financial Planning Period” – The Financial Planning Period is the range of future fiscal
years covered by the Financial Plan. For example, for the Water Utility Financial Plan
delivered in conjunction with the FY 2015 budget, FY 2015 to FY 2021 is the Financial
Planning Period.
b)“Fund Balance” – As used in these Reserves Management Practices, Fund Balance refers
to the Utility’s Unrestricted Net Assets.
c)“Net Assets” - The Government Accounting Standards Board defines a Utility’s Net
Assets as the difference between its assets and liabilities.
d)“Unrestricted Net Assets” - The portion of the Utility’s Net Assets not invested in capital
assets (net of related debt) or restricted for debt service or other restricted purposes.
Section 2. Reserves
The Water Utility’s Fund Balance is reserved for the following purposes:
a)For existing contracts, as described in Section 3 (Reserve for Commitments)
b)For operating and capital budgets re-appropriated from previous years, as described in
Section 4 (Reserve for Re-appropriations)
c)For future year expenditure on the Water Utility’scash flow management and
contingencies related to the Water Utility’s Capital Improvement Program (CIP), as
described in Section 5 (CIP Reserve)
d)For rate stabilization, as described in Section 6 (Rate Stabilization Reserve)
e)For operating contingencies, as described in Section 7 (Operations Reserve)
f)Any funds not included in the other reserves will be considered Unassigned Reserves
and shall be returned to ratepayers or assigned a specific purpose as described in
Section 8 (Unassigned Reserves).
Section 3. Reserve for Commitments
At the end of each fiscal year the Reserve for Commitments will be set to an amount equal
to the total remaining spending authority for all contracts in force for the Water Utility at
that time.
Section 4. Reserve for Re-appropriations
At the end of each fiscal year the Reserve for Re-appropriations will be set to an amount
equal to the amount of all remaining capital and non-capital budgets, if any, that will be re-
appropriated to the following fiscal year in accordance with Palo Alto Municipal Code
Section 2.28.090.
ATTACHMENT B
DRAFT Proposed Amendments to Water Utility Reserves Management Practices
Section 5. CIP Reserve
Funds may be added to or withdrawn from the CIP Reserve by action of the City Council and
held for future year expenditure on the Water Utility’s CIP Program. If there are funds in the
CIP Reserve at the end of any fiscal year, any subsequent Water Utility Financial Plan must
result in the withdrawal of all funds from this Reserve by the end of the next Financial
Planning Period.
The CIP Reserve is used to manage cash flow for capital projects and acts as a reserve for
capital contingencies. Staff will manage the CIP Reserve according to the following
practices:
a) The following guideline levels are set forth for the CIP Reserve. These guideline levels
are calculated for each fiscal year of the Financial Planning Period based on the levels of
CIP expense budgeted for that year.
Minimum Level 12 months of budgeted CIP expense
Maximum Level 24 months of budgeted CIP expense
b) Changes in Reserves: Staff is authorized to transfer funds between the CIP Reserve and
the Reserve for Commitments when funds are added or removed from to that reserve
as a result of a change in contractual commitments related to CIP projects. Any other
additions to or withdrawals from the CIP reserve require Council action.
c) Minimum Level:
i) Funds held in the Reserve for Commitments may be counted as part of the CIP
Reserve for the purpose of determining compliance with the CIP Reserve minimum
guideline level.
ii) If, at the end of any fiscal year, the minimum guideline is not met, staff shall present
a plan to the City Council to replenish the reserve. The plan shall be delivered by the
end of the following fiscal year, and shall, at a minimum, result in the reserve
reaching its minimum level by the end of the next fiscal year. For example, if the CIP
Reserve is below its minimum level at the end of FY 2017, staff must present a plan
by June 30, 2018 to return the reserve to its minimum level by June 30, 2019. In
addition, staff may present, and the Council may adopt, an alternative plan that
takes longer than one year to replenish the reserve, or that does so in a shorter
period of time.
d) Maximum Level: If, at any time, the CIP Reserve reaches its maximum level, no funds
may be added to this reserve. If there are funds in this reserve in excess of the
maximum level staff must propose to transfer these funds to another reserve or return
them to ratepayers in the next Financial Plan. Staff may also seek City Council to
approve holding funds in this reserve in excess of the maximum level if they are held for
a specific future purpose related to the CIP.
Section 6. Rate Stabilization Reserve
Funds may be added to the Rate Stabilization Reserve by action of the City Council and
held to manage the trajectory of future year rate increases. Withdrawal of funds from
DRAFT Proposed Amendments to Water Utility Reserves Management Practices
the Rate Stabilization Reserve requires Council action. If there are funds in the Rate
Stabilization Reserve at the end of any fiscal year, any subsequent Water Utility
Financial Plan must result in the withdrawal of all funds from this Reserve by the end of
the next Financial Planning Period.
Section 7. Operations Reserve
The Operations Reserve is used to manage normal variations in costs and as a reserve for
contingencies. Any portion of the Water Utility’s Fund Balance not included in the reserves
described in Section 3-Section 6 above will be included in the Operations Reserve unless this
reserve has reached its maximum level as set forth in Section 7(d) below. Staff will manage
the Operations Reserve according to the following practices:
a) The following guideline levels are set forth for the Operations Reserve. These guideline
levels are calculated for each fiscal year of the Financial Planning Period based on the
levels of Operations and Maintenance (O&M) and commodity expense forecasted for
that year in the Financial Plan.
Minimum Level 60 days of O&M and commodity expense
Target Level 90 days of O&M and commodity expense
Maximum Level 120 days of O&M and commodity expense
b) Minimum Level: If, at the end of any fiscal year, the funds remaining in the Operations
Reserve are lower than the minimum level set forth above, staff shall present a plan to
the City Council to replenish the reserve. The plan shall be delivered within six months
of the end of the fiscal year, and shall, at a minimum, result in t he reserve reaching its
minimum level by the end of the following fiscal year. For example, if the Operations
Reserve is below its minimum level at the end of FY 2014, staff must present a plan by
December 31, 2014 to return the reserve to its minimum leve l by June 30, 2015. In
addition, staff may present, and the Council may adopt, an alternative plan that takes
longer than one year to replenish the reserve.
c) Target Level: If, at the end of any fiscal year, the Operations Reserve is higher or lower
than the target level, any Financial Plan created for the Water Utility shall be designed
to return the Operations Reserve to its target level within four years.
d) Maximum Level: If, at any time, the Operations Reserve reaches its maximum level, no
funds may be added to this reserve. Any further increase in the Water Utility’s Fund
Balance shall be automatically included in the Unassigned Reserve described in Section
8, below.
Section 8. Unassigned Reserve
If the Operations Reserve reaches its maximum level, any further additions to the Water
Utility’s Fund Balance will be held in the Unassigned Reserve. If there are any funds in the
Unassigned Reserve at the end of any fiscal year, the next Financial Plan presented to the
City Council must include a plan to assign them to a specific purpose or return them to the
Water Utility ratepayers by the end of the first fiscal year of the next Financial Planning
Period. For example, if there were funds in the Unassigned Reserves at the end of FY 2015,
DRAFT Proposed Amendments to Water Utility Reserves Management Practices
and the next Financial Planning Period is FY 2016 through FY 2021, the Financial Plan shall
include a plan to return or assign any funds in the Unassign ed Reserve by the end of
FY 2016. Staff may present an alternative plan that retains these funds or returns them over
a longer period of time.
WATER UTILITY
FINANCIAL PLAN
FY 2016 TO FY 20 23
CONTENTS
Section 1: Definitions and Abbreviations ............................................................................................................... 2
Section 2: Introduction .......................................................................................................................................... 2
Section 3: Executive Summary and Recommendations .......................................................................................... 2
Section 3A: Overview of Financial Position ................................................................................................................ 2
Section 3B: Summary of Proposed Actions ................................................................................................................ 3
Section 4: Detail of FY 2016 Rate and Reserves Proposals ...................................................................................... 4
Section 4A: Current and Proposed Rates ................................................................................................................... 4
Section 4B: Bill Impact of Proposed Rate Changes .................................................................................................... 5
Section 4C: Reserves Management Practices, Proposed Change .............................................................................. 6
Section 4D: Proposed Reserve Transfers .................................................................................................................... 8
Section 5: Utility Overview .................................................................................................................................... 8
Section 5A: Water Utility History ............................................................................................................................... 8
Section 5B: Customer Base ........................................................................................................................................ 9
Section 5C: Distribution System ................................................................................................................................. 9
Section 5D: Cost Structure and Revenue Sources..................................................................................................... 10
Section 5E: Reserves Structure ................................................................................................................................. 10
Section 5F: Competitiveness .................................................................................................................................... 11
Section 6: Utility Financial Projections ................................................................................................................. 12
Section 6A: Load Forecast ........................................................................................................................................ 12
Section 6B: FY 2009 to FY 2014 Cost and Revenue Trends ....................................................................................... 14
Section 6C: FY 2014 Results ..................................................................................................................................... 15
Section 6D: FY 2015 Projections ............................................................................................................................... 16
Section 6E: FY 2016 – FY 2023 Projections ............................................................................................................... 16
Section 6F: Risk Assessment and Reserves Adequacy .............................................................................................. 18
Section 6G: Alternate Scenarios ............................................................................................................................... 19
Section 6H: Long-Term Outlook ............................................................................................................................... 20
Section 7: Details and Assumptions ..................................................................................................................... 21
Section 7A: Water Purchase Costs ........................................................................................................................... 21
Section 7B: Operations............................................................................................................................................. 22
Section 7C: Capital Improvement Program (CIP) ..................................................................................................... 24
Section 7D: Debt Service .......................................................................................................................................... 26
Section 7E: Other Revenues ..................................................................................................................................... 26
Section 7F: Sales Revenues ...................................................................................................................................... 27
Section 8: Communications Plan .......................................................................................................................... 27
Appendices .......................................................................................................................................................... 28
Appendix A: Water Utility Financial Forecast Detail ................................................................................................ 29
Appendix B: Water Utility Capital Improvement Program (CIP) Detail .................................................................... 33
Appendix C: Water Utility Reserves Management Practices ................................................................................... 35
Appendix D: Rate Design.......................................................................................................................................... 36
Appendix E: Water Utility Debt Service Details ........................................................................................................ 37
Appendix G: Description of Water Utility Operational Activities ............................................................................. 39
Appendix H: Sample of Water Utility Outreach Communications ........................................................................... 40
ATTACHMENT C
WATER UTILITY FINANCIAL PLAN
J u n e 1 6 , 2 0 1 4 2 | P a g e
SECTION 1 : DEFINITIONS AND ABBR EVIATIONS
BAWSCA: Bay Area Water Supply and Conservation Agency
CCF: one hundred cubic feet, the standard unit of measurement for water delivered to water
customers. Equal to roughly 748 gallons.
CIP: Capital Improvement Program
CPAU: City of Palo Alto Utilities Department
O&M: Operations and Maintenance
SFPUC: San Francisco Public Utilities Commission
SFWD: San Francisco Water Department
WSIP: the SFPUC’s Water System Improvement Program to seismically strengthen the
transmission lines of the Hetch Hetchy regional water system.
SECTION 2 : INTRODUCTION
This document presents a Financial Plan for the City’s Water Utility for the next eight years. This
Financial Plan provides revenues to cover the costs of operating the utility safely over that time
while adequately investing for the future. It also addresses the financial risks facing the utility
over the short term and long term, and includes measures to mitigate and manage those risks.
SECTION 3 : EXECUTIVE SUMMARY AND RECOMMENDATIONS
SECTION 3 A : OVERVIEW OF FINANC IAL POSITION
By FY 2020, costs for the Water Utility will increase 30% over FY 2015 levels, as shown in Table
1. Most of increase from FY 2015 to FY 2020 is related to the cost of water supplied by the San
Francisco Public Utilities Commission (SFPUC), which is rising 50% in that time due to the
issuance of long term debt to finance major seismic improvements to the Hetch Hetchy
transmission system. The cost of replacing the water mains in the City’s water distribution
system has also increased substantially from the low costs seen during the recent recession.
Staff projects only inflationary increases to most other costs over the forecast period.
Table 1: Expenses for FY 2014 to FY 2023
Expenses
($000)
FY 2014
(actual)
FY 2015
(est.)
FY
2016
FY
2017
FY
2018
FY
2019
FY
2020
FY
2021
FY
2022
FY
2023
Water
Purchases 15,705 16,013 20,451 20,498 20,225 22,764 24,080 22,922 23,013 24,123
Operations 15,730 16,386 17,279 17,727 18,199 18,677 19,174 19,630 20,062 20,508
Capital Projects 8,336 8,554 8,724 9,089 9,099 9,388 9,666 9,951 10,245 10,548
TOTAL 39,771 41,478 46,193 46,903 49,430 52,136 53,801 53,170 53,977 55,249
WATER UTILITY FINANCIAL PLAN
J u n e 1 6 , 2 0 1 4 3 | P a g e
To cover these increases in costs, revenues (and therefore rates) need to increase over the next
several years to balance costs and revenues, as shown in Table 2. This rate trajectory assumes
that the drought continues through 2015 and that consumption does not return to its pre -
drought levels. Because of reductions in consumption, customers who conserve will see lower
bill increases than what is shown in Table 2. Projected average residential bill increases are
shown in Appendix A (Water Utility Financial Forecast Detail).
Table 2: Projected Water Rate Trajectory for FY 2016 to FY 2023
FY 2016 FY 2017 FY 2018 FY 2019 FY 2020 FY 2021 FY 2022 FY 2023
12% 8% 8% 8% 3% 1% 2% 3%
The Water Utility has Rate Stabilization Reserves that can be used to spread these increases
over several years. This Financial Plan projects that these reserves will be exhausted by the end
of FY 2020. The utility also has a Capital Improvement Program (CIP) Reserve that can be used
to offset one-time unanticipated capital costs. This Financial Plan assumes that the CIP Reserve
will be used for unanticipated capital expenses or returned to the Operations Reserve by the
end of FY 2017. At that point the Emergency Water Supply and Storage Project and the Water
System Master Plan will have been completed, so capital costs will be known with more
certainty. Table 3 shows the projected reserve transfers over the forecast period.
Table 3: Transfers To/(From) Reserves for FY 2016 to FY 2023 ($000)
Reserve FY 2016 FY 2017 FY 2018 FY 2019 FY 2020 FY 2021 FY 2022 FY 2023
Capital
Improvement - (4,000) - - - - - -
Rate
Stabilization (5,500) 0 (567) - (500) - - -
Operations 5,500 4,000 567 - 500 - - -
SECTION 3 B : SUMMARY OF PROPOSED ACTIONS
Staff proposes the following actions for the Water Utility in FY 2015:
1. Transfer $2 million from the CIP Reserve to the Operations Reserve in FY 2015 due to
higher than projected expenses for the seismic strengthening of reservoirs and turnouts.
See Section 4D (Proposed Reserve Transfers) for more details.
Staff proposes the following actions for the Water Utility in FY 2016:
1. Increase rates as shown in Section 4A (Current and Proposed Rates). These changes are
projected to increase the system average rate by roughly 12%.
2. Take the following measures with respect to the CIP Reserve (see Section 4C (Reserves
Management Practices, Proposed Change) for more details):
a. Amend the Reserves Management Practices to modify the purpose of the CIP
Reserve to enable it to act as a cash flow and contingency reserve for capital
investment projects.
WATER UTILITY FINANCIAL PLAN
J u n e 1 6 , 2 0 1 4 4 | P a g e
b. Transfer all funds released from the Reappropriations Reserve at the beginning
of FY 2016 to the CIP Reserve.
c. Request Council approval to exceed the proposed maximum CIP Reserve
guidelines through the end of FY 2017.
3. Transfer $5.5 million from the Rate Stabilization Reserve to the Operations Reserve. See
Section 4D (Proposed Reserve Transfers) for more details.
SECTION 4 : DETAIL OF FY 2016 RA TE AND RESERVES PROP OSALS
SECTION 4 A : CURRENT AND PROPOSED RATES
The current rates were adopted July 1, 2013, when CPAU increased water rates by 7%. CPAU
has five rate schedules: one for separately metered residents (W-1), one for commercial and
master-metered multi-family residential customers (W-4), and specific schedules for irrigation-
only services (W-7), services to fire sprinkler systems in buildings and private hydrants (W -3),
and for service to fire hydrant rental meters used for construction (W -2). All customers pay a
monthly service charge, based on the size of their inlet meter. This charge represents meter
reading, billing, and other customer service costs, but also the cost of maintaining the capability
to deliver a peak flow for that customer corresponding to their meter size. All customers are
also charged for each CCF (one hundred cubic feet) of water used. Separately metered
residential customers are charged on a tiered basis, with the first 0.2 CCF per day (6 CCF for a
30 day billing period) charged a base price per CCF, and all additional units charged a higher
price per CCF. Commercial customers pay a uniform price for each CCF used, and a higher price
for separately metered irrigation service.
Table 4 shows the current and proposed monthly service charges for all rate schedules. Table 5
shows the consumption charges. The basis for calculating these charges is staff’s annual
assessment of the water utility’s financial position, as well as the cost of service methodology
from the 2012 Palo Alto Water Cost of Service & Rate Study by Raftelis Financial Consultants.
Table 4: Current and Proposed Monthly Service Charge
Meter
Size
Monthly Service Charge
($/month based on meter size) Change
Current (7/1/13) Proposed (7/1/15) $/mo %
5/8” 14.67 $16.01 $1.34 9%
3/4” 19.51 $21.48 $1.97 10%
1” 29.18 $32.42 $3.24 11%
1 ½” 53.37 $59.77 $6.40 12%
2” 82.39 $92.60 $10.21 12%
3” 174.29 $196.54 $22.25 13%
4” 309.72 $349.71 $39.99 13%
6” 633.80 $716.24 $82.44 13%
8” 1,165.86 $1,318.01 $152.15 13%
10” 1,843.02 $2,083.89 $240.87 13%
12” 2,423.45 $2,740.37 $316.92 13%
WATER UTILITY FINANCIAL PLAN
J u n e 1 6 , 2 0 1 4 5 | P a g e
SECTION 4 B : BILL IMPACT OF PROPO SED RATE CHANGES
Table 7 shows the impact of the proposed July 1, 2015 rate changes on the median residential
bill. This comparison assumes that customers do not decrease consumption. Historically,
however, customers have looked for ways to conserve after their bills have increased, so not all
customers will experience the same bill increase. The average increase is roughly 12%, but
some customers with very low bills may see slightly higher increases due to slight changes in
the composition of the utility’s costs and how that affects the first tier and fixed charges under
the cost of service methodology.
Table 6: Water Consumption Charges (Current and Proposed)
Current Rates
(7/1/13)
Proposed Rates
(7/1/15)
Change
$/CCF %
W-1 (Residential) Volumetric Rates ($/CCF)
Tier 1 Rates 4.99 5.70 $0.71 14%
Tier 2 Rates 7.58 8.38 $0.80 11%
W-2 (Construction) Volumetric Rates ($/CCF)
Uniform Rate 6.15 6.97 $0.82 13%
W-4 (Commercial) Volumetric Rates ($/CCF)
Uniform Rate 6.15 6.97 $0.82 13%
W-7 (Irrigation) Volumetric Rates ($/CCF)
Uniform Rate 7.52 8.46 $0.94 13%
Table 5: Current and Proposed Monthly Fire Service Charges
Meter
Size
Monthly Fire Service Charge
($/month based on meter size) Change
Current (7/1/13) Proposed (7/1/15) $/mo %
2” $3.03 $3.43 $0.40 13%
4” $18.78 $21.21 $2.43 13%
6” $54.55 $61.60 $7.05 13%
8” $116.24 $131.28 $15.04 13%
10” $209.03 $236.09 $27.06 13%
12” $337.65 $381.35 $43.70 13%
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Table 7: Impact of Proposed Water Rate Changes on Residential Bills
Usage
(CCF/month)
Bill under
Existing Rates
Bill under
Proposed
Rates (7/1/15)
Change
$/mo. %
4 34.63 38.81 4.18 12%
(Winter median) 7 52.19 58.59 6.40 12%
(Annual median) 9 67.35 75.35 8.00 12%
(Summer median) 14 105.25 117.24 11.99 11%
25 188.63 209.40 20.77 11%
Table 8 shows the impact of the proposed July 1, 2015 rate changes on various representative
commercial customer bills. As with residents, this comparison assumes that customers do not
decrease consumption.
Table 8: Impact of Proposed Water Rate Changes on Commercial Bills
Usage
(CCF/month)
Bill under
Current
Rates
Bill under
Proposed
Rates (7/1/15)
Change
$/mo. %
Commercial (W-4) (5/8” meters)
(Annual median) 12 88.47 99.65 11.18 13%
(Annual average) 64 408.27 462.09 53.82 13%
Irrigation (W-7) (1 ½” meters)
(Winter median) 9 121 136 15 13%
(Summer median) 37 332 373 41 12%
(Winter average) 56 474 534 59 12%
(Summer average) 199 1,550 1743 193 12%
SECTION 4 C : RESERVES MANAGEMENT PRACTICES, PROPOSED CHANGE
Staff is proposing one change to the Water Utility Reserves Management Practices (Appendix C)
in this Financial Plan. Staff recommends changing the CIP Reserve definition and management
practices so that it becomes a cash flow and contingency reserve for CIP projects. Currently
these purposes are served by a combination of the Operations and Reappropriations Reserves,
while the CIP Reserve acts as a sinking fund to accumulate funds for large one -time future CIP
expenditures (which are rare). The City is changing its budgeting practices starting with FY 2016,
and will no longer reappropriate CIP budgets each year. Instead, CIP budgets for long-term or
ongoing projects will be renewed each year through the annual budget process. This means
that the funds in the Reappropriations Reserve ($10.4 million as of June 30, 2014) will be
released after June 30, 2015. These funds acted as a cash flow reserve for CIP projects, and
some or all of it should be retained for that purpose. Staff proposes to retain these funds in the
CIP reserve, and the proposed changes to the Reserves Management Practices will enable CPAU
to do that.
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Staff proposes to initially set a minimum and maximum guideline for the CIP reserve that will
enable it to hold similar amounts to what has typically been held in the Reappropriations
Reserve. Staff then intends to review capital reserve management practices at other agencies
and revisit these guideline levels. Initially, staff proposes a minimum guideline level of 12
months of CIP expenditures. CIP-related funds in the Commitments Reserve would be allowed
to count toward that guideline. The CIP-related funds in the Commitments Reserve are equal to
the total remaining balance of all CIP contracts currently in progress, and these funds should be
taken into account when determining whether CIP cash flow and contingency reserves are
adequate. The initial maximum guideline level would be 24 months of CIP expenditures, but the
maximum guideline could be exceeded with Council approval.
Figure 1 shows the Reappropriations Reserve level as of June 30, 2014, as well as the CIP
portion of the Reserve for Commitments. The proposed minimum and maximum guidelines
over the forecast period are also shown. The total funds held for CIP cash flow and
contingencies exceed the maximum guidelines in the short term because of the $4 million
already in the CIP reserve. Staff recommends holding that $4 million in the CIP Reserve until the
end of FY 2017 for unanticipated CIP expenditures associated with seismic upgrades to various
reservoirs. At that point, any funds remaining of that $4 million would be returned to the
Operations Reserve.
Figure 1: Capital Reserve
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SECTION 4 D : PROPOSED RESERVE TRA NSFERS
In the FY 2015 Financial Plan several transfers between reserves were approved . Funds were
transferred out of the Emergency Plant Replacement and Rate Stabilization Reserve into the
newly-created CIP and Operations Reserves. These transfers were mainly related to setting up
the new approved reserves structure. Now, in addition to these previously approved transfers,
staff recommends an additional transfer for FY 2015. The final design for the seismic
strengthening and recoating of some of the reservoirs identified some additional work that may
need to be done at a cost of roughly $2 million. As a result, staff proposes a transfer of $2
million from the CIP Reserve, leaving it with $4 million remaining at the end of FY 2015.
For FY 2016, staff proposes a $5.5 million transfer from the Rate Stabilization Reserve. This
transfer is included in the financial projections in this Financial Plan. It will enable CPAU to
maintain adequate Operations Reserve levels while moderating the pace of increase in water
rates. In addition, staff is proposing transfers from the Reappropriations Reserve to the CIP
Reserve as described in the previous section. The impact of these transfers on reserves levels
can be seen in Figure 7 and Appendix A (Water Utility Financial Forecast Detail).
SECTION 5 : UTILITY OVERVIEW
This section provides an overview of the utility and its operations. It is intended as general
background information to help readers better understand the forecasts in Sections 6 and 7.
SECTION 5 A : WATER UTILITY HIST ORY
The Water Utility was established on May 9, 1896, two years after the city was incorporated.
Voters of the 750 person community approved a $40,000 bond to buy local, private water
companies who operated one or more shallow wells to serve the nearby residents. The city
grew and the well system expanded until nine wells were in operation in 1932. Palo Alto began
receiving water from the San Francisco Water Department (SFWD) in 1937 to supplement these
sources.
A 1950 engineering report noted, “the capricious alternation of well waters and the San
Francisco Water Department water… has made satisfactory service to the average customer
practically impossible”. By 1950, only eight wells were still in operation. Despite this,
groundwater production increased in the 1950’s leading to lower groundwater tables and water
quality concerns. In 1962, a survey of water softening costs to CPAU customers determined that
CPAU should purchase 100% of its water supply needs from the SFWD. A 20-year contract was
signed with San Francisco, and CPAU’s wells were placed in standby condition. The SFWD later
became known as the SFPUC. Since 1962 (except for some very short periods) CPAU’s entire
supply of potable water has come from the SFPUC.
As the city grew, so did the number of mains in the water system. The system of mains
expanded along with the town, while existing sections of the system continued to age. In the
mid-1980s, the number of breaks in cast iron mains installed during the 1940s and earlier
started to accelerate. In FY 1994, to combat deterioration of older sections of the system, an
analysis of cost effective system improvements was performed and the rate of main
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replacement was increased from one mile per year to three. A plan to replace 75 miles of
deficient mains within 25 years was begun.
In 1999, a study of system reliability concluded that major upgrades were needed to the
distribution system to provide adequate water supply during a natural disaster. This ultimately
resulted in the $40 million Emergency Water Supply and Storage Project, still underway, which
involved a new underground reservoir in El Camino Park, the siting and construction of several
emergency supply wells, and the upgrade of several existing wells and the Mayfield pump
station.
At the same time that CPAU was evaluating the reliability of its own system, the SFPUC, in
consultation with BAWSCA members, was evaluating the reliability of the Hetch Hetchy water
system, which crosses two major fault lines between the Sierras and the Bay Area. That
evaluation concluded that major upgrades to the system were required. This planning process
culminated in the SFPUC’s $4.6 billion Water System Improvement Project (WSIP), which is
ongoing.
SECTION 5 B : CUSTOMER BASE
CPAU’s Water Utility provides water service to the residents and businesses of Palo Alto, plus a
handful of residential customers not in Palo Alto (Los Altos Hills, primarily). Nearly 20,300
customers are connected to the water system, approximately 16,500 (81%) of which are
separately metered residential customers and 3,800 (19%) of which are commercial, master-
metered residential, irrigation and fire service customers.
Customers use water for drinking, cooking, bathing, cleaning, irrigation, and other commercial
use. Judging from seasonal consumption patterns, between 35% and 50% of Palo Alto’s water is
used for irrigation, and that consumption is heavily weather dependent . It also varies
significantly by season. As a result of these two factors , there is significant variability in the
amount of water that is demanded from the system month to month and year to year.
SECT ION 5 C : DISTRIBUTION SYSTEM
To deliver water to its customers, the utility owns roughly 233 miles of mains (which transport
the water from the SFPUC meters at the city’s borders to the customer’s service laterals and
meters), eight wells (to be used in emergencies), five water storage reservoirs (also for
emergency purposes) and several tanks used to moderate pressure and deal with peaks in flow
and demand (due to fire suppression, heavy usage times, etc.). These represent the vast
majority of the infrastructure used to distribute water in Palo Alto.
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Figure 2: Cost Structure (FY 2014)
Figure 3: Revenue Structure (FY 2014)
SECTION 5 D : COST STRUCTURE AND R EVENUE SOURCES
As shown in Figure 2, water purchase
costs accounted for roughly 40% of the
Water Utility’s costs in FY 2014.
Operational costs also represented
roughly 40%, and capital investment was
responsible for the remaining 21%.
Water purchase costs are projected to
rise to roughly 46% of costs by FY 2020.
The Water Utility receives 91% of its
revenue from sales of water and the
remainder from capacity and connection
fees, interest on reserves, and other
sources. As rates increase over the next
several years, the percentage of revenue
from sales of water is expected to
increase as well. Appendix A (Water
Utility Financial Forecast Detail) shows
more detail on the utility’s cost and
revenue structures. Roughly 15% of the
utility’s revenues come from fixed service charges, though most of its costs are fixed. This is
typical for California water utilities, and conforms to the Best Management Practices (BMPs) of
the California Urban Water Conservation Council (CUWCC), a statewide conservation council of
environmental groups, state agencies, and water utilities to which the City is a signatory. One
of CUWCC’s BMPs is that a utility’s revenue from fixed service charges constitute at most 30%
of the utility’s total revenue from all charges1.
SECTION 5 E : RESERVES STRUCTURE
CPAU maintains six reserves for its Water Utility to manage various types of contingencies.
These are summarized below, but see Appendix C (Water Utility Reserves Management
Practices) for more detailed definitions and guidelines for reserve management:
1 See http://www.cuwcc.org/Resources/Memorandum-of-Understanding/Exhibit-1-BMP-
Definitions-Schedules-and-Requirements/BMP-1-Utility-Operations-Programs
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Reserve for Commitments: A reserve equal to the utility’s outstanding contract
liabilities for the current fiscal year. Most City funds, including the General Fund, have a
Commitments Reserve.
Reserve for Reappropriations: A reserve for funds dedicated to projects reappropriated
by the City Council, nearly all of which are capital projects. Most City funds, including
the General Fund, have a Reappropriations Reserve. This is currently an important
reserve for all utility funds, but changes in budgeting practices will change that in future
years, as described in Section 4C (Reserves Management Practices, Proposed Change).
Capital Improvement Program (CIP) Reserve: The CIP reserve can be used to
accumulate funds for future expenditure on CIP projects and is anticipated to be empty
unless a major one-time CIP expenditure is expected in future years. This Financial Plan
proposes adding an additional purpose, making it a contingency reserve for the CIP. This
would change the way the reserve is managed, as described in Section 4C (Reserves
Management Practices, Proposed Change). This type of reserve is used in other utility
funds (Electric, Gas, and Wastewater Collection) as well.
Rate Stabilization Reserve: This reserve is intended to be empty unless one or more
large rate increases are anticipated in the forecast period. In that case, funds can be
accumulated to spread the impact of those future rate increases across multiple years.
This type of reserve is used in other utility funds (Electric, Gas, and Wastewater
Collection) as well.
Operations Reserve: This is the primary contingency reserve for the Water Utility, and is
used to manage yearly variances from budget for operational water supply costs. This
type of reserve is used in other utility funds (Electric, Gas, and Wastewater Collection)
as well.
Unassigned Reserve: This reserve is for any funds not assigned to the other reserves
and is normally empty.
SECTION 5 F : COMPETITIVENESS
Table 8 shows the current water bills for residential customers compared to what they would
be under surrounding communities’ rate schedules. CPAU has the highest monthly bills of the
group, although bills for smaller water users are less than in some surrounding communities .
Table 9: Residential Monthly Water Bill Comparison
Residential monthly bill comparison ($/month) *
As of February 1, 2015
Usage
(CCF/month)
Palo
Alto
Menlo
Park
Mountain
View Hayward
Redwood
City
Santa
Clara
4 34.63 35.38 27.56 24.65 40.10 15.20
(Winter median) 7 52.19 51.10 42.74 41.49 52.43 26.60
(Annual median) 9 67.35 61.58 52.86 52.71 61.27 34.20
(Summer median) 14 105.25 89.01 78.16 82.65 87.59 53.20
25 188.63 150.02 164.22 158.14 167.12 95.00
* All comparisons using 5/8” meter size
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Table 9 shows the annual average monthly water bill for commercial customers for variou s
water usage levels. Redwood City is notable in that their irrigation rates are set on a budget
basis, and as such each parcel has a unique baseline value. For purposes of this comparison, the
budget was assumed to be equal to the usage amount.
SECTION 6 : UTILITY FINANCIAL PROJECTIONS
SECTION 6 A : LOAD FORECAST
Figure 4 shows 40 years of water consumption history. Average water use has trended
downward over time even as Palo Alto’s population has grown. Significant water use reductions
over the 40-year history were in response to requests to reduce water use in the 1976-77 and
1988-92 drought periods. During these periods, customers invested in efficient equipment and
modified behavior to achieve the water reduction goals. More recently, water sales decreased
substantially after the 2007-2009 recession and have not increased since, despite the fact that
economic activity in Palo Alto and the Bay Area has revived. The factors driving this are not
clear, but may include an increased awareness of the need for water conservation since
precipitation has been low for five of the seven years since 2007 . Water use is down by similar
amounts among both commercial and residential customers. Both summertime use, which
includes irrigation, and wintertime use, which includes far less irrigation, have decreased for all
customer classes.
Table 10: Commercial Monthly Water Bill Comparison
Commercial/Multi-Family and Irrigation bill comparison ($/month)
As of February 1, 2015
Usage
(CCF/month)
Palo
Alto
Menlo
Park
Mountain
View Hayward
Redwood
City
Santa
Clara
Commercial (W-4) (5/8” meters)
(Annual median) 12 88.47 83.34 71.82 72.00 81.82 45.60
(Annual average) 64 408.27 359.77 334.94 371.00 484.96 243.20
Irrigation (W-7) (1 ½” meters)
(Winter median) 9 121 146 90 65 186 34
(Summer median) 37 332 294 232 226 391 141
(Winter average) 56 474 395 328 335 540 213
(Summer average) 199 1,550 1,156 1,051 1,158 1,666 756
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Figure 5 shows the forecast of water consumption through FY 2023. The forecast assumes that
current trends continue and sales through the forecast period decline slightly. This represents a
significant change from the prior year forecasts. Since the 2007-2009 recession, staff has
forecasted that water sales would grow as economic activity picked up, but that has not
occurred.
Palo Alto is currently experiencing drought conditions with 10% voluntary wat er use restrictions
in effect. The current forecast assumes current conditions continue through 2015, with the
drought ending in spring of 2016. It also assumes consumption only returns to 50% of its pre-
drought levels, which is consistent with patterns se en in prior droughts. It is highly unlikely the
state will exit the drought in 2015 given precipitation to date, but for informational purposes
Figure 5 shows the load forecast if the drought ends in 2015 and consumption returns to
normal.
Figure 4: Historical Water Consumption
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Figure 5: Forecasted Water Consumption
SECTION 6 B : FY 2009 TO FY 2014 COST AND REVENU E TRENDS
The annual expenses for the water utility rose substantially between 2009 and 2014, though
the increase is difficult to discern from Figure 6 and the tables in Appendix A (Water Utility
Financial Forecast Detail) due a variety of major budget adjustments and transfers that took
place during that time. These adjustments and transfers were mainly related to the Emergency
Water Supply and Storage Project, a debt-financed project costing over $40 million. The project
involved seismically strengthening reservoirs, rehabilitating the five existing wells, drilling three
new wells, building a new reservoir at El Camino Park, and upgrading pumping stations.
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Excluding adjustments and transfers, the normal annual expenses for FY 2009 would have been
roughly $29 million. That includes $8.4 million for water purchases, $15 million for operational
expenses and debt service, and $5.5 million for capital investment. In FY 2014 normal year
annual expenses were $39 million. This was a 35% increase, or 6% per year on average from
FY 2009 to FY 2014. The increases were primarily related to water purchases and capital
investment. Water purchase costs increased from $8.4 million in FY 2009 to $15.7 million in FY
2014, an 87% increase. Average annual capital investment increased from $5.5 million to $7.5
million, primarily due to an increase in water main replacement costs. The reasons for both
increases are discussed in more detail in Section s 7C (Capital Improvement Program) and 7A
(Water Purchase Costs).
SECTION 6 C : FY 2014 RESULTS
In spring of 2013, when proposing rate adjustments to be effective on July 1, 2013, staff
forecasted an $810,000 deficit for FY 2014. Results were better than forecasted, a $3.3 million
surplus. Sales revenues were higher than forecasted due to dry weather (Palo Altans were not
asked to reduce consumption until February 2014, late in the fiscal year). In addition, the SFPUC
wholesale water rate was 9% lower than forecasted, which resulted in savings despite the
higher water consumption. Revenues from connection and capacity fees were high, and there
were savings in operational budgets. These savings were partially offset by increased capital
Figure 6: Water Utility Expenses, Revenues, and Rate Changes:
Actual Costs through FY 2014 and Projections through FY 2023
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investment costs associated with water main replacement. Table 11 summarizes the variances
from forecast.
Table 11: FY 2014, Actual Results vs. 2013 Forecast
Net Cost/
(Benefit)
Type of
change
Savings in Operations budgets ($1,576,000) Cost savings
Sales volumes were 5% higher than forecasted ($2,227,000) Revenue increase
SFPUC rate was 9% lower than projected (partially
offset by purchase volumes that were 5% higher)
($648,000) Cost savings
Other revenues (interest income, capacity fees)
were higher than forecasted
($1,590,000) Revenue increase
Transfers out were lower than forecasted ($1,219,000) Cost savings
Capital project costs higher than projected $3,135,000 Cost increase
Net Cost / (Benefit) of Variances ($4,125,000)
SECTION 6 D : FY 2015 PROJECTIONS
In spring of 2014, when preparing the financial forecast, staff forecasted a $3.1 million deficit
for FY 2015. Staff’s current forecast is for a deficit of about $3.7 million. In 2014, staff projected
lower revenues for FY 2015 due to the drought, but revenues are now projected to be even
lower. In addition, the SFPUC wholesale water rate was 5% lower than forecasted, which
resulted in additional savings. And although staff projected higher revenues from connection
and capacity fees, these have been even higher than staff’s projections. Lastly, there were
savings in operational budgets. These savings will be offset by increased capital investment
costs associated with seismic strengthening and re-coating of the reservoirs. Table 12
summarizes the changes from last year’s forecast.
Table 12: FY 2015 Change in Projected Results, 2014 Forecast vs 2015 Forecast
Net Cost/
(Benefit)
Type of
change
Savings in Operations budgets ($925,000) Cost savings
SFPUC rate 5% lower than projected ($1,170,000) Cost savings
Higher misc. revenues (interest income, fees) ($450,000) Revenue increase
lower sales revenue $260,000 Revenue decrease
Capital project costs higher than projected $2,406,000 Cost increase
Other changes in costs/revenue $485,000 Various
Net Cost / (Benefit) of Variances $606,000
SECTION 6 E : FY 2016 – FY 2023 PROJECTIONS
As can be seen in Figure 6 above, costs for the Water Utility are projected to increase by $5.5
million (14%) in FY 2016, then another $2-3 million (6%) in both FY 2019 and FY 2020, but at
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only 1-3% per year in subsequent years. As discussed earlier, water supply costs are the main
reason for the cost increases. Water supply costs are projected to increase by 30% in FY 2016
and 9% per year on average in FY 2019 and FY 2020. Operations costs will increase by $1 million
in FY 2016 for emergency generator leasing and maintenance, but will otherwise roughly match
inflation through the forecast period. Capital investment costs are also expected to increase at
only an inflationary rate, though there is still uncertainty with regard to the utility’s future costs
for main replacement. See Section 7 (Details and Assumptions) for more detail on the costs that
make up these projections, as well as the various assumptions underlying the projections.
Revenues will have to increase at more than 8% per year on average through FY 2019 to keep
up with these cost increases, even with the use of rate stabilization reserves to spread the
increases over multiple years. Costs have already increased substantially over the last few
years, and revenues have not kept pace. Sales revenues were adequate in FY 2014 due to lower
than average CIP expenditures in that year, but starting in FY 2015 the utility will begin to see
deficits. To close this gap, revenues need to increase by 12% in FY 2016, then 8% per year
through FY 2019, then increase at a slower pace after that. To moderate the pace of increase in
the water rates, the utility’s Rate Stabilization Reserve will be drawn down over that period,
with most of it being used in FY 2016.
Customers who reduce consumption over the forecast period will see their bills increase at a
slower rate, and as more customers are added to the utility’s customer base, those customers
will share in paying for the utility’s fixed costs. The combination of these factors means that the
average residential bill is projected to increase at a slightly slower pace than the rates, or about
7% to 9% per year, assuming some growth in the customer base and decreases in the average
amount of water each customer uses. Of course, results will differ for each individual customer
depending on their water use patterns and whether they conserve.
Reserves trends based on these revenue projections are shown in Figure 7, below. The Rate
Stabilization Reserve is projected to be empty by the end of FY 2020, and the CIP Reserve is
projected to decrease by $4 million by the end of FY 2017. Assuming these increases in
revenue, the utility’s reserves will remain adequate through the forecast period. The
Operations Reserve, the utility’s main contingency reserve, will remain comfortably above
minimum levels and will be adequate to meet all identified risks, as discussed in Section 6F (Risk
Assessment and Reserves Adequacy).
These projections assume that drought restrictions end in early 2016, and that the request for
water usage reductions remain at 10%. If the drought worsens or continues longer than
projected, a drought surcharge may need to be developed and put in place. The forecast also
assumes that water main replacement project costs do not increase faster than inflation. This is
a major uncertainty, so staff has included a forecast in Section 6G (Alternate Scenario) involving
an alternate scenario with higher main replacement costs.
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SECTION 6 F : RISK ASSESSMENT AND RESERVES ADEQUAC Y
The Water Utility currently has one contingency reserve, the Operations Reserve, and this
Financial Plan maintains reserves within the approved reserve maximum and minimum
guidelines throughout the forecast period, as shown in Figure 8. Reserve levels also exceed the
short term risk assessment for the utility.
Table 13 summarizes the risk assessment calculation for the Water Utility through FY 2020. The
same methodology is used for FY 2021 through FY 2023 as well . The risk assessment includes
the revenue shortfall that could accrue due to:
1. Lower than forecasted sales revenue; and
2. An increase of 10% of planned system improvement CIP expenditures for the budget year.
Figure 7: Water Utility Reserves:
Actual Reserve Levels through FY 2014 and Projections through FY 2023
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Table 13: Water Risk Assessment ($000)
FY 2016 FY 2017 FY 2018 FY 2019 FY 2020
Total non-commodity revenue $16,789 $20,131 $22,547 $22,998 $22,829
Max. revenue variance, previous ten years 13% 13% 13% 13% 13%
Risk of revenue loss $1,659 $1,989 $2,228 $2,272 $2,256
CIP Budget $8,724 $9,089 $9,099 $9,388 $9,666
CIP Contingency @10% $872 $909 $910 $939 $967
Total Risk Assessment value $2,531 $2,898 $3,138 $3,211 $3,222
This Financial Plan includes a proposal to make the CIP Reserve a contingency reserve as well.
See Section 4C (Reserves Management Practices, Proposed Change) for more details.
SECTION 6 G : ALTERNATE SCENARIO
Staff created an additional scenario in which water main replacement budgets are 50% higher
than the base forecast. As described in Section 7C (Capital Improvement Program), prices for
the most recent water main replacement projects have been nearly 50% higher than previous
projects. The current forecast assumes that these prices have been temporary spikes due to the
Figure 8: Operations Reserve Adequacy
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economy picking up, but that may not be the case. The “High CIP” scenario assumes that CPAU
continues its current pace of water main replacement and prices remain at these higher levels.
Figure 9 shows the rate increases under the high CIP scenario as compared to the base case
(inflationary increases in CIP budgets). The high CIP scenario has a greater impact on rates than
an extended drought because it involves higher ongoing costs rather than a short-term revenue
loss. If this scenario becomes reality, it may be possible to pha se in the increase in CIP budgets
over several years to defer the rate impact into later years. CPAU is developing a Water System
Master Plan, which is expected to be completed in early 2015. It will give CPAU the information
it needs to determine the feasibility of these types of strategies. See Section 7C (Capital
Improvement Program) for more discussion of CIP costs.
SECTION 6 H : LONG -TERM OUTLOOK
CPAU has put its Water Utility on strong footing by investing in its distribution system
infrastructure and emergency water facilities over the last 20 years, so the next 20 to 40 years
after FY 2020 may involve only inflationary cost increases for the utility. The Water System
Master Plan, expected to be completed in May 2015, will give CPAU a better picture of the
long-term outlook for its infrastructure and will result in a plan for an appropriate schedule for
Figure 9: Rate Increases for High CIP Scenario
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infrastructure replacement and upgrades. In addition, CPAU’s water supplier, the SFPUC, has
replaced and seismically strengthened its water transmission infrastructure , which will be a
benefit to Palo Alto and all Hetch Hetchy customers over the long term.
The opportunities for CPAU’s Water Utility over the long term may be in alternative water
supplies such as recycled water, groundwater, and water from the Santa Clara Valley Water
District. These alternatives have been analyzed in the past, and will be analyzed again in an
upcoming update to the Water Integrated Resource Plan. Some of these alternatives may
provide cost savings or increased drought protection.
Climate change may begin to present challenges for the Water Utility over the next 20 to 40
years. Water consumption patterns may change. Consumption could increase due to drier
weather or decrease as customers become even more focused on water conservation.
Droughts may become more frequent. The risk of wildfire in the foothills could increase,
possibly threatening utility infrastructure or placing greater demands on it. Sea level rise could
result in greater exposure of utility infrastructure to saltwater intrusion or the need to protect
infrastructure from inundation, possibly resulting in higher maintenance and replacement
costs. It could also affect the groundwater aquifer that the utility relies on in emergencies. Any
of these could result in increases to the costs o f operating the Water Utility. As part of the
Sustainability/Climate Action Plan, CPAU is currently working on a Climate Change Adaptation
Roadmap that will begin to assess some of these risks.
SECTION 7 : DETAILS AND ASSUMPTI ONS
SECTION 7 A : WATER P URCHASE COSTS
CPAU purchases all of the potable water for its Water Utility from the SFPUC, which owns and
operates the Hetch Hetchy system. CPAU is one of several agencies that purchase water from
the SFPUC, all of whom are members of the Bay Area Water Supply and Conservation Agency
(BAWSCA). Palo Altans use roughly 7% of the water delivered by the SFPUC to BAWSCA
member agencies.
The Hetch Hetchy system begins with a system of reservoirs and tunnels in the high Sierra in
Yosemite County and is transported by a gravity-fed pipeline to the Bay Area. Currently, the
SFPUC is in the midst of a $4.6 billion bond-financed capital improvement program (the Water
System Improvement Program, or WSIP) to seismically retrofit the facilities that transport water
to the Bay Area. This is resulting in large increases in the annual debt service costs assigned to
wholesale customers like Palo Alto. The wholesale customer debt service share of the WSIP is
increasing from $53 million in FY 2010 to over $200 million in FY 2020. As a result, the SFPUC’s
wholesale water rate has already increased from $1.43 per CCF in FY 2009 to $2.93 per CCF in
FY 2015, and is forecasted to increase to $4.50 per CCF by FY 2020. Figure 10 shows the
SFPUC’s actual wholesale water rate since FY 2009 and a projection through FY 2023.
The SFPUC’s water rate projections show rates flattening out in FY 2020 after all of the deb t for
the WSIP has been issued. Some other parts of SFPUC’s system not included in the WSIP also
may need rehabilitation. Some of these projects are already included in the SFPUC’s rate
projections, but the SFPUC is planning to do condition assessments of othe r “up-country”
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facilities, located in the Sierras in the coming years. If the these assessments identify other
facilities that need replacement, it may result in additional rate increases beyond FY 2020 as
new debt is issued to finance the projects.
As shown in Figure 10, this year’s projection of SFPUC wholesale rates has increased from the
previous year’s projection. The current projection assumes that drought restrictions continue
through 2015, ending in the spring of 2016. The SFPUC needed to increase its rates more than
anticipated due to lower consumption during 2014 and 2015 due to the drought, but wholesale
rates are not projected to decrease much (if at al l) after the drought ends. Instead, underlying
costs will have increased enough by then that even if consumption increases after the drought,
the rates are not likely to decrease much. The current wholesale water rate projection assumes
higher rates in the long term than were assumed in last year’s projections. Consumption is
unlikely to return to pre-drought levels even after the drought ends, and the SFPUC will likely
adopt higher rates to recover its costs, which are mostly fixed.
Figure 10: Historical and Projected SFPUC Wholesale Water Rate
SECTION 7 B : OPERATIONS
CPAU’s Water Utility operations include the following activities:
Administration, a category that includes charges allocated to the Water Utility for
administrative services provided by the General Fund and for Utilities Department
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administration, as well as debt service and other transfers. Additional detail on Water
Utility debt service is provided in Section 7D (Debt Service)
Customer Service
Engineering work for maintenance activities (as opposed to capital activities)
Operations and Maintenance of the distribution system; and
Resource Management
Appendix F (Description of Water Utility Operational Activities) includes detailed descriptions of
the work associated with each of these activities.
From FY 2009 to FY 2014 Operations costs (excluding debt service, rent, and transfers)
increased 5% per year on average (see Figure 11). The increases were driven by allocated
charges, which increased by 8% per year on average and increases in other Operations costs,
which increased by roughly 4% per year. Debt service costs increased by $2.4 million per year as
a result of a bond issued to finance the Emergency Water Supply and Storage Project. Transfers
have varied from year to year, but are expected to remain relatively low and stable through the
forecast period.
In FY 2016 Operations costs are projected to increase by $1 million for a capital lease of
emergency generators for various wells and pump stations. This is a new ongoing cost. Aside
from that, only inflationary increases are projected for Operations costs. Underlying these
projections are assumptions for salary and benefit costs, consumer price index, and other cost
projections that match the City’s long-range financial forecast.
Figure 11: Historical and Projected Operational Costs
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SECTION 7 C : CAPITAL IMPROVEMENT PROGRAM (CIP)
The Water Utility’s CIP consists of the following types of projects:
Customer connections, which represents the cost when the Water Utility installs new
services or upgrades existing services at a customer’s request in response to
development or redevelopment. CPAU charges a fee to these customers to cover the
cost of these projects.
Ongoing projects, which represent the cost of replacing aging and under-recording
meters and degraded boxes and covers, minor replacements of various types of
distribution system equipment, and the cost of capitalized tools and equipment.
One time projects, or large, non-recurring replacement of system assets (such as
reservoir rehabilitation)
Water main replacement, which represents the ongoing replacement of aging water
mains, and sometimes the services associated with those mains.
Table 14 shows the FY 2015 adopted budget, with actual spending and remaining budget as of
December 31, 2014. Also included is the five year CIP spending plan, although these figures are
preliminary pending budget discussions starting in May. The ‘committed’ column represents
funds committed to contracts for which work has not yet been completed or invoices paid.
Table 14: Budgeted Water Utility CIP Spending ($000)
*Includes unspent funds from previous years carried forward or reappropriated into the current fiscal
year
**Equal to Reserve for Reappropriations + Reserve for Commitments.
The water main replacement program funds the replacement of deteriorating water mains. The
water system consists of over 236 miles of mains, approximately 2000 fire hydrants, and over
20,000 metered service connections spanning 9 pressure zones ove r a 26 square mile service
area. CPAU utilizes an asset management database in conjunction with hydraulic modeling
software to prioritize capital improvements. Mains are selected by researching the
maintenance history of the system and identifying those that are undersized, corroded, and
subject to recurring breaks. CPAU uses a scoring system based on criticality in order to
prioritize which mains to replace first, and coordinates with the Public Works street
maintenance program to avoid cutting into newly repaved streets. CPAU replaces
approximately 3 miles of main per year, or 1.3% of the system.
Costs for the water main replacement program are increasing for a variety of reasons:
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Fire Code regulations now mandate fire sprinklers for n ew residential units. To
accommodate increased fire flows, new main replacement projects require larger
diameter pipe.
CPAU has switched to high-density polyethylene (HDPE) for its mains. Installation costs
for this material are slightly higher, though lifecycle costs are lower, and the material
performs better. Joints in distribution mains are the most likely place for failure, and
sections of HDPE pipe can be fused together rather than connected with fittings. In the
long run, this will reduce losses and maintenance costs.
To take full advantage of HDPE’s fusibility, CPAU is now replacing the services along
with the water mains with new HDPE services. In the past, the existing services were
reconnected, regardless of the material. This new practice costs more in the short run,
but will provide long term benefits.
Lastly, as the economy begins to recover, costs have begun to escalate.
These factors have created some uncertainty in future water main replacement costs. If the
cost of water main replacement continues at its current levels, water main replacement
budgets will need to be increased by $1M to $2M per year to keep up the current pace of main
replacement. However, CPAU is nearing the end of a long term water main replacement
program initiated in 1993 to replace the oldest and most degraded parts of the system. Roughly
25% of the system has been replaced, and the rate of water leaks has decreased 50%. This
makes it a good time to re-evaluate the program. CPAU initiated a master planning process in
FY 2015 to evaluate the current state of the distribution system and determine the necessary
rate of main replacement in future years. Currently the utility replaces about 1.3% of the
system each year, which is an 80-year replacement cycle. The master planning process may
reveal a need for a higher main replacement rat e, or may reveal that pipes are currently in good
condition and a lower rate of replacement is required. Results are expected in May 2015.
If this study determines that a lower rate of main replacement is acceptable, increases to water
main replacement project budgets may not be necessary. Likewise, if the per-mile costs of main
replacement come down, that would also reduce or eliminate the need to increase main
replacement budgets. A combination of reduced costs and a reduced rate of main replacement
could even allow CPAU to reduce those budgets. However, if per-mile main replacement costs
stay at their current levels and the study reveals the need to maintain the same rate of main
replacement (or a higher rate), CPAU’s CIP costs would rise. The implications for ratepayers of
that scenario are analyzed in Section 6G (Alternate Scenario).
One project not included in this forecast is the seismic strengthening of a large water
transmission line in the foothills. Staff has engaged a consultant to investigate alternatives for
this project. The consultant is analyzing an alternative that involves installing a valve and hose
system that could be used to bypass breaks in the line while they are repaired after an
earthquake. This is a relatively low cost alternative that would not substantially affect the
financial forecast. The study is not finalized yet, however, and if it is determined that the entire
pipeline needs to be replaced, it could cost between $15 million and $20 million, which would
likely require bond financing and would substantially affect the financial forecast. The final
report with recommendations is expected to be available in May 2015.
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Ongoing Projects and Customer Connections are projected to cost approximately $1.9 million in
FY 2016 and increase by 3.5% per year through the end of the forecast period. Actual expenses
for these projects fluctuate annually depending on how many defective meters are discovered
and replaced during routine maintenance, as well as how much development and
redevelopment is going on that prompts the replacement or upgrade of water services. It is
worth noting that property owners pay a fee for water service replacement or expansion during
redevelopment, so when the number of projects go up (meaning higher costs for thi s activity),
so does fee revenue.
Aside from customer connections, the CIP plan for FY 2015 to FY 2019 is funded by utility rates
and capacity fees. The details of the plan are shown in Appendix B (Water Utility Capital
Improvement Program (CIP) Detail).
SECTION 7 D : DEBT SERVICE
The Water Utility’s annual debt service is roughly $3.2 million per year. This is related to two
bond issuances, one requiring payments through 2026, the other through 2035. The first
issuance, the 2011 Utility Revenue Refunding Bond, Series A, was a joint issuance between the
Water and Gas Utilities refinancing the 2002 Utility Revenue Bonds, Series A, which was issued
to finance various capital improvements for both systems. The second, larger issuance is the
2009 Water Revenue Bond, Series A (Direct Payment Build America bond) used to finance
construction of the Emergency Water Supply and Storage project (the El Camino Reservoir, new
wells, rehabilitation of existing wells and tanks, etc.) CPAU is in compliance with all covenants
on both bonds. Additional detail is provided in Appendix E (Water Utility Debt Service Details).
SECTION 7 E : OTHER REVENUES
The Water Utility receives most of its revenues from sales of water, but about 9% comes from
other sources. The largest revenue source is connection and capacity fees, which in FY 2014
represented 52% of revenue from sources other than water sales. The next largest revenue
source in that category was interest on reserves (26%), followed by the interest subsidy from
the Federal government related to the utility’s 2009 Build America Bond issuance (14%), with
the remainder consisting of a variety of miscellaneous charges and transfers.
Revenues from connection and capacity fees have more than doubled since FY 200 9.
Connection fees are charged to new developments that need new or replacement service
connections, while capacity fees are charged to development that put additional demands on
the water distribution system. Revenue from these sources decreased slightly during the
recession, but has increased substantially since then. Staff is forecasting lower revenue from
these sources in subsequent years, but has also proposed increases in connection fees that, if
adopted in early 2015, are expected to offset these reductions to some extent.
Other revenue sources are projected to stay stable through the forecast period, though interest
income always fluctuates depending on changes in interest rates. Some uncertainty also exists
related to the Federal government’s commitment to continuing to pay the interest subsidy on
the Build America Bonds. See Appendix E (Water Utility Debt Service Details) for more
information.
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SECTION 7 F : SALES REVENUES
Sales revenue projections are based on the load forecast in Section 6A (Load Forecast) and the
projected rate changes shown in Figure 6. Except where stated otherwise, these load forecasts
are based on normal precipitation. Precipitation can vary substantially, however, even in non -
drought years, and this can affect revenues substantially. In dry years customers use more
water, increasing revenues, and in wet years they use less. These variations happen in the
winter, since summers have virtually no local precipitation regardless of whether it is a dry or
wet year. The variations are most likely related to winter irrigation demand.
SECTION 8 : COMMUNICATIONS PLAN
In FY 2016, communications will focus on water utility rate increases, including the reasons why
and how rates may change contingent upon continued drought conditions. Rates
communications will include a substantial update to information on a webpage dedicated to
Utilities rates, “breaking news” on the Utility home webpage, discussion in the Prop osition 218
rate adjustment notice, bill inserts, print ads, videos for web and television, social media posts
and frequent educational updates to internal and external stakeholders (customer service,
marketing, City Manager’s Office, UAC, City Council, business and residential customers). Other
communications vehicles will include financial plans, presentations to UAC, Finance Committee,
City Council and any media coverage as a result of the rate increases. CPAU will continue its
outreach about drought conditions and importance of water use efficiency, tying in the
message that although rates are increasing, efficient usage should mean that a cust omer should
not see a significant increase in water utility costs on their bills.
Water conservation outreach will include bill inserts, web updates, email blasts, videos for the
web and television, presentations to customer groups and the use of social media. To keep
customers apprised of the status and accomplishments of CIP projects, a network of project
web pages are maintained. Traffic is driven to the website via ads in publications, newspaper
inserts, and through the comprehensive portfolio of outreach strategies as outlined above.
Safety topics are also emphasized year-round. For all utility outreach, while print materials and
website pages still feature prominently, CPAU is placing more emphasis on digital advertising
content, direct mail, community safety/emergency preparation events and presentations.
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APPENDICES
Appendix A: Water Utility Financial Forecast Detail
Appendix B: Water Utility Capital Improvement Program (CIP) Detail
Appendix C: Water Utility Reserves Management Practices
Appendix D: Rate Design
Appendix E: Water Utility Debt Service Details
Appendix F: Description of Water Utility Operational Activities
Appendix G: Sample of Water Utility Outreach Communications
APPENDIX A : WATER UTILITY FINANCIAL FORECAST D ETAIL
1 FISCAL YEAR FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 FY 2015 FY 2016 FY 2017 FY 2018 FY 2019 FY 2020 FY 2021 FY 2022 FY 2023
2
3 WATER SUPPLY
4 Purchases 5,669,518 5,362,359 5,416,220 5,538,305 5,532,947 5,507,153 4,725,136 4,773,600 4,887,917 4,810,714 4,735,760 4,701,084 4,680,394 4,651,320 4,616,646
5 Sales 5,395,080 4,954,950 4,992,473 5,062,873 5,097,392 5,047,148 4,344,946 4,389,511 4,494,630 4,423,638 4,354,716 4,322,829 4,303,804 4,277,070 4,245,185
6
7 BILL AND RATE CHANGES
8 Variable Charge (Supply)15%38%11%-16%20%31%-2%0%16%7%-5%1%6%
9 Variable Charge (Distribution)-7%-12%17%30%-12%0%23%14%4%0%6%3%1%
10 Service Charge (Distribution)-3%72%75%9%0%0%0%12%2%0%4%2%0%
11 Change in System Average Rate 0%12%22%8%0%12%8%8%8%3%1%2%3%
12 Change in Average Residential Bill -1%12%21%7%-1%9%7%6%6%2%1%1%2%
13
14 STARTING RESERVES
15 Reappropriations (Non-CIP)- - 54,000 20,000 - - - - - - - - - - -
16 Commitments (Non-CIP)267,323 98,000 40,000 765,000 714,000 2,000 347,000 347,000 347,000 347,000 347,000 347,000 347,000 347,000 347,000
17 Restricted for Debt Service 780,000 780,000 3,348,000 3,348,000 3,225,000 3,225,000 3,331,000 3,331,000 3,331,000 3,331,000 3,331,000 3,331,000 3,331,000 3,331,000 3,331,000
18 Emergency Plant Replacement 1,000,000 1,000,000 1,000,000 1,000,000 1,000,000 1,000,000 1,000,000 - - - - - - - -
19 Capital Reserve - - - - - - - 4,000,000 14,847,000 10,847,000 10,847,000 10,847,000 10,847,000 10,847,000 10,847,000
20 Rate Stabilization Reserve 14,089,000 5,400,000 17,037,000 10,639,000 7,996,000 17,272,000 20,133,000 6,567,000 1,067,000 1,067,000 500,000 500,000 - - -
21 Operations Reserve - - - - - - - 6,825,996 7,388,745 9,587,610 10,996,799 11,491,182 11,522,648 11,904,886 12,374,300
22 Unassigned - - - - - - - - - - - - - - -
23 TOTAL STARTING RESERVES 16,136,323 7,278,000 21,479,000 15,772,000 12,935,000 21,499,000 24,811,000 21,070,996 26,980,745 25,179,610 26,021,799 26,516,182 26,047,648 26,429,886 26,899,300
24
25 REVENUES
26 Net Sales 26,640,717 25,839,375 26,133,998 30,673,882 36,647,924 39,008,671 34,066,218 38,321,464 42,263,580 45,061,690 47,965,975 49,037,955 49,414,313 50,256,219 51,432,726
27 Other Revenues and Transfers In 2,833,016 12,104,925 2,812,063 5,892,133 6,811,461 4,074,511 3,146,219 3,195,685 3,249,006 3,303,323 3,358,265 3,413,741 3,471,338 3,533,115 3,598,411
28 TOTAL REVENUES 29,473,733 37,944,300 28,946,061 36,566,015 43,459,385 43,083,182 37,212,437 41,517,150 45,512,586 48,365,013 51,324,240 52,451,696 52,885,651 53,789,333 55,031,137
29
30 EXPENSES
31 Water Purchases 8,443,057 9,061,245 10,677,914 14,889,399 16,605,351 15,705,288 16,012,748 20,450,988 20,497,789 20,224,895 22,764,353 24,080,279 22,921,818 23,012,781 24,123,189
32 Operating Expenses
33 Administration
34 Allocated Charges 1,629,800 1,580,604 1,798,630 2,003,116 2,422,880 2,374,411 2,082,585 2,134,799 2,188,511 2,243,583 2,300,029 2,357,900 2,417,009 2,477,469 2,539,450
35 Rent 1,919,052 2,107,405 2,122,405 2,156,887 1,911,963 2,192,454 2,249,457 2,316,941 2,386,449 2,458,042 2,531,784 2,607,737 2,685,969 2,766,548 2,849,545
36 Debt Service 776,059 1,950,625 3,341,781 3,385,986 3,219,165 3,220,208 3,218,869 3,222,606 3,219,316 3,222,669 3,220,858 3,220,638 3,222,843 3,223,563 3,224,553
37 Transfers and Other Adjustments 4,569,523 (2,551,533) 200,286 301,963 2,241,793 327,474 368,733 376,108 383,630 391,302 399,129 407,111 415,253 423,558 432,030
38 Subtotal, Administration 8,894,435 3,087,100 7,463,102 7,847,952 9,795,801 8,114,546 7,919,644 8,050,454 8,177,906 8,315,596 8,451,799 8,593,386 8,741,074 8,891,138 9,045,577
39 Resource Management 394,281 485,727 575,834 552,972 557,910 570,040 685,688 705,481 729,227 753,931 779,267 805,539 828,660 850,008 872,092
40 Operations and Mtc 4,039,649 4,257,240 4,885,428 4,900,606 4,944,064 4,986,274 6,184,549 6,365,432 6,585,118 6,813,962 7,048,720 7,292,410 7,504,387 7,698,282 7,899,029
41 Engineering (Operating)333,017 262,889 247,488 301,278 338,659 381,502 422,650 435,118 450,380 466,290 482,616 499,574 514,216 527,527 541,317
42 Customer Service 1,435,667 1,371,943 1,476,175 1,544,608 1,584,759 1,677,926 2,097,861 2,159,829 2,235,777 2,314,969 2,396,225 2,480,639 2,553,438 2,619,560 2,688,063
43 Allowance for Unspent Budget - - - - - - (924,743) (436,860) (451,237) (466,183) (481,514) (497,403) (511,532) (524,679) (538,269)
44 Subtotal, Operating Expenses 15,097,049 9,464,900 14,648,027 15,147,415 17,221,192 15,730,288 16,385,649 17,279,453 17,727,171 18,198,565 18,677,112 19,174,145 19,630,244 20,061,837 20,507,809
45 Capital Program Contribution 14,791,950 5,217,154 9,327,120 9,366,201 1,068,841 8,335,605 8,554,044 8,723,959 9,088,761 9,099,364 9,388,392 9,665,805 9,951,351 10,245,303 10,547,961
46 TOTAL EXPENSES 38,332,056 23,743,300 34,653,061 39,403,015 34,895,385 39,771,182 40,952,441 46,454,401 47,313,721 47,522,825 50,829,857 52,920,229 52,503,413 53,319,920 55,178,960
47
48 ENDING RESERVES
49 Reappropriations (Non-CIP)- 54,000 20,000 - - - - - - - - - - - -
50 Commitments (Non-CIP)98,000 40,000 765,000 714,000 2,000 347,000 347,000 347,000 347,000 347,000 347,000 347,000 347,000 347,000 347,000
51 Restricted for Debt Service 780,000 3,348,000 3,348,000 3,225,000 3,225,000 3,331,000 3,331,000 3,331,000 3,331,000 3,331,000 3,331,000 3,331,000 3,331,000 3,331,000 3,331,000
52 Emergency Plant Replacement 1,000,000 1,000,000 1,000,000 1,000,000 1,000,000 1,000,000 - - - - - - - - -
53 Capital Reserve - - - - - - 4,000,000 14,847,000 10,847,000 10,847,000 10,847,000 10,847,000 10,847,000 10,847,000 10,847,000
54 Rate Stabilization Reserve 5,400,000 17,037,000 10,639,000 7,996,000 17,272,000 20,133,000 6,567,000 1,067,000 1,067,000 500,000 500,000 - - - -
55 Operations Reserve - - - - - - 6,825,996 7,388,745 9,587,610 10,996,799 11,491,182 11,522,648 11,904,886 12,374,300 12,226,477
56 Unassigned - - - - - - - - - - - - - - -
57 TOTAL ENDING RESERVES 7,278,000 21,479,000 15,772,000 12,935,000 21,499,000 24,811,000 21,070,996 26,980,745 25,179,610 26,021,799 26,516,182 26,047,648 26,429,886 26,899,300 26,751,477
58
1 FISCAL YEAR FY 2009 FY 2010 FY 2011 FY 2012 FY 2013 FY 2014 FY 2015 FY 2016 FY 2017 FY 2018 FY 2019 FY 2020 FY 2021 FY 2022 FY 2023
2
3 REVENUES
4 Net Sales 90%68%90%84%84%91%92%92%93%93%93%93%93%93%93%
5 Other Revenues and Transfers In 10%32%10%16%16%9%8%8%7%7%7%7%7%7%7%
6 TOTAL REVENUES 100%100%100%100%100%100%100%100%100%100%100%100%100%100%100%
7
8 EXPENSES
9 Water Purchases 22%38%31%38%48%39%39%44%43%43%45%46%44%43%44%
10 Operating Expenses
11 Administration
12 Allocated Charges 4%7%5%5%7%6%5%5%5%5%5%4%5%5%5%
13 Rent 5%9%6%5%5%6%5%5%5%5%5%5%5%5%5%
14 Debt Service 2%8%10%9%9%8%8%7%7%7%6%6%6%6%6%
15 Transfers and Other Adjustments 12%-11%1%1%6%1%1%1%1%1%1%1%1%1%1%
16 Subtotal, Administration 23%13%22%20%28%20%19%17%17%17%17%16%17%17%16%
17 Resource Management 1%2%2%1%2%1%2%2%2%2%2%2%2%2%2%
18 Operations and Mtc 11%18%14%12%14%13%15%14%14%14%14%14%14%14%14%
19 Engineering (Operating)1%1%1%1%1%1%1%1%1%1%1%1%1%1%1%
20 Customer Service 4%6%4%4%5%4%5%5%5%5%5%5%5%5%5%
21 Allowance for Unspent Budget 0%0%0%0%0%0%-2%-1%-1%-1%-1%-1%-1%-1%-1%
22 Subtotal, Operating Expenses 39%40%42%38%49%40%40%37%37%38%37%36%37%38%37%
23 Capital Program Contribution 39%22%27%24%3%21%21%19%19%19%18%18%19%19%19%
24 TOTAL EXPENSES 100%100%100%100%100%100%100%100%100%100%100%100%100%100%100%
25
26 RISK ASSESSMENT DETAIL
27 Distribution Revenue Variance 1,691,676 1,658,926 1,989,201 2,227,905 2,272,463 2,255,824 2,374,042 2,433,393 2,445,560
28 10% CIP Program Contingency 855,404 872,396 908,876 909,936 938,839 966,581 995,135 1,024,530 1,054,796
29 Total Risk Asssessment Value 2,547,081 2,531,322 2,898,077 3,137,842 3,211,303 3,222,404 3,369,177 3,457,923 3,500,356
30 Projected Operations Reserve 6,825,996 7,388,745 9,587,610 10,996,799 11,491,182 11,522,648 11,904,886 12,374,300 12,226,477
31 Operations Reserve, % of Risk Value 268%292%331%350%358%358%353%358%349%
32
33 OPERATIONS RESERVE
34 Min (60 days of non-capital expenses)- - - - - - 5,633,883 6,516,546 6,604,123 6,643,164 7,145,814 7,450,505 7,341,852 7,434,691 7,697,613
35 Target (90 days of non-capital expenses)- - - - - - 9,681,864 9,805,203 9,939,273 10,000,649 10,757,546 11,217,620 11,057,753 11,200,219 11,597,933
36 Max (120 days of non-capital expenses)- - - - - - 13,729,844 13,093,861 13,274,424 13,358,135 14,369,279 14,984,734 14,773,654 14,965,747 15,498,253
37 Risk Assessment Value 2,547,081 2,531,322 2,898,077 3,137,842 3,211,303 3,222,404 3,369,177 3,457,923 3,500,356
38
39 DEBT SERVICE COVERAGE RATIO
40 Net Revenues (125% of Debt Service)2933%850%658%787%951%876%907%1071%1087%1092%1187%1243%1220%1236%1284%
41 Available Reserves (5x Debt Service)*8.2 9.2 3.5 2.7 5.7 6.6 5.4 7.2 6.7 6.9 7.1 6.9 7.1 7.2 7.2
42 *For the purposes of debt covenants, the unrestricted reserves of other utilities may be counted toward the available reserves for meeting this measure. A ratio below 5x means that this utility is relying on the reserves of other utilities to meet its debt covenants.
WATER UTILITY FINANCIAL PLAN
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APPENDIX B : WATER UTILITY CAPITAL IMPROVEMENT PROGRAM (CIP) DETAIL
Project #Project Name
Reappropriated /
Carried Forward from
Previous Years
Current Year
Funding
Budget
Amendments
Spending,
Current Year
Remaining in
CIP Reserve
Fund Commitments FY 2016 FY 2017 FY 2018 FY 2019 FY 2019
ONE TIME PROJECTS
WS-07000 Regulation Station Imp.370,824 - - (15,406) 355,418 895,806 - - - -
WS-07001 Water Recycling Facilities 388,421 - - (37,603) 350,818 106,224 - - - -
WS-08001 Water Reservoir Coating 2,177,560 750,000 - (15,406) 2,912,154 4,376,620 - - - -
WS-09000 Seismic Water System 4,284,420 2,230,000 - (40,620) 6,473,800 6,107,517 - - - -
WS-11001 Vacuum Excavation Equip.- - - - - - - - - -
WS-13003 GPS Equipment Upgrade 200,000 - - - 200,000 - - - - -
WS-13004 Asset Mgmt. Mobile Sys.98,471 - - (3,467) 95,004 - - - - -
WS-13006 Meter Shop Renovations 46,907 - - (10,001) 36,906 - - - - -
WS-15004 Water System Master Plan - - 500,000 - 500,000 255,858
WS-08002 Emergency Water Supply 1,106,738 - - (296,577) 810,161 853,189 - - - -
Subtotal, One-time Projects 8,673,341 2,980,000 500,000 (419,080) 11,734,261 12,595,214 - - - - -
WATER MAIN REPLACEMENT PROGRAM
WS-08017 WMR - Project 22 - - - - - - - - - - -
WS-09001 WMR - Project 23 112,021 - - - 112,021 - - - - - -
WS-10001 WMR-Project 24 208,305 - - - 208,305 - - - - - -
WS-11000 WMR-Project 25 5,238,360 - (55,186) 5,183,174 4,414,466 - - - - -
WS-12001 WMR- Project 26 461,065 - - (1,176) 459,889 - 5,515,195 - - - -
WS-13001 WMR - Project 27 - - - - - - 568,065 5,680,651 - - -
WS-13001 WMR - Project 28 - - - - - - - 585,107 5,851,070 - -
WS-15002 WMR - Project 29 - - - - - - - - 602,600 6,026,602 -
WS-16001 WMR - Project 30 - - - - - - - - - 620,740 6,207,400
WS-16001 WMR - Project 31 - - - - - - - - - - 608,512
Subtotal, Water Main Replacement Prog.6,019,751 - - (56,362) 5,963,389 4,414,466 6,083,260 6,265,758 6,453,670 6,647,342 6,815,912
WATER UTILITY FINANCIAL PLAN
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Appendix B: Water Utility Capital Improvement Program (CIP) Detail (Continued)
Project #Project Name
Reappropriated /
Carried Forward from
Previous Years
Current Year
Funding
Budget
Amendments
Spending,
Current Year
Remaining in
CIP Reserve
Fund Commitments FY 2016 FY 2017 FY 2018 FY 2019 FY 2020
ONGOING PROJECTS
WS-80014 Services/Hydrants 176,771 236,000 - (82,315) 330,456 - 243,080 250,400 263,000 270,000 278,100
WS-80015 Water Meters 256,009 386,000 - (94,025) 547,984 175,669 393,080 400,372 407,000 415,000 427,450
WS-02014 W-G-W Utility GIS Data 130,984 303,000 - (98,684) 335,300 156,505 332,750 366,025 402,628 442,890 456,177
WS-13002 Equipment/Tools 28,132 50,000 - (6,674) 71,458 - 50,000 50,000 50,000 50,000 50,000
WS-11003 Dist. Sys. Improvements 201,515 225,000 - (675,186) (248,671) 35,556 232,000 239,000 247,000 254,000 261,620
WS-11004 Supply Sys. Improvements 157,622 225,000 - (123,401) 259,221 39,773 232,000 239,000 247,000 254,000 261,620
Subtotal, Ongoing Projects 951,033 1,425,000 - (1,080,285) 1,295,748 407,503 1,482,910 1,544,797 1,616,628 1,685,890 1,734,967
CUSTOMER CONNECTIONS (FEE FUNDED)
WS-80013 Water System Extensions 2,553 450,000 - (265,623) 186,930 4,572 460,000 473,000 486,000 500,000 515,000
Subtotal, Customer Connections 2,553 450,000 - (265,623) 186,930 4,572 460,000 473,000 486,000 500,000 515,000
GRAND TOTAL 15,646,678 4,855,000 500,000 (1,821,350)19,180,328 17,421,755 8,026,170 8,283,555 8,556,298 8,833,232 9,065,879
Funding Sources
Connection/Capacity Fees 450,000 - 460,000 473,000 486,000 500,000
Other Utility Funds (Asset Mgmt, GIS Systems)202,000 - 222,000 244,000 268,000 295,000
Utility Rates 4,855,000 500,000 8,026,170 8,283,555 8,556,298 8,833,232 9,065,879
CIP-RELATED RESERVES DETAIL
6/30/2014
(Actual)12/31/20114
Reappropriations (excl. Bond Funded)10,846,585 1,758,573
Commitments (excl. Bond Funded)4,800,093 17,421,755
WATER UTILITY FINANCIAL PLAN
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APPENDIX C : WATER UTILITY RESERVES MANAGEMENT PRACTICES
(Amendments to this section are proposed. See the proposed adopting resolution for this
Financial Plan. This section will be added to the Financial Plan following adoption of any
amendments to this section.)
WATER UTILITY FINANCIAL PLAN
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APPENDIX D : RATE DESIGN
The Water Utility’s rates are evaluated and implemented in compliance with the cost of service
requirements and procedural rules set forth in the California Constitution under Article 13 (per
Proposition 218). Current rates were structured based on the methodology from the March
2012 Palo Alto Water Cost of Service & Rate Study by Raftelis Financial Consultants, Inc 2. Staff
plans to review and update this cost of service study in 2 to 3 years, unless any major changes
occur to the utility’s operations or customer base that would necessitate an earlier study.
Before conducting any new cost of service study, staff will review current rates and the scope of
the study with the Utilities Advisory Commission (UAC) and Council to determine the City’s
policy priorities.
2 Staff Report ID#2676, Finance Committee, April 18, 2012
WATER UTILITY FINANCIAL PLAN
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APPENDIX E : WATER UTILITY DEBT SERVICE DETAILS
The Water Utility currently makes payment on its share of two bond issuances. The first is the
2009 Water Revenue Bond, Series A, issued for $35 million, and to be retired by 2035. As part
of the ‘Build America’ bond program, there is an interest payment subsidy from the Federal
Government of 35%. There is always the possibility that the federal government will choose to
stop payment on this subsidy. The automatic federal spending cuts under the Budget Control
Act (BCA) of 2011 have already reduced the subsidy by $50,000 per year, and if planned cuts
through 2021 proceed without amendment, staff estimates that the subsidy would be reduced
by over $200,000 per year by 2021. The Bipartisan Budget Act of 2013, which relieved some of
the discretionary spending cuts in the 2011 BCA, did not affect automatic cuts to the subsidy,
and actually extended the automatic cuts through 2023.
The second bond issuance is the 2011 Utility Revenue Refunding Bond, Series A, which is to be
retired in 2026. This $17.2 million issuance refinanced an earlier Water and Gas Utility bond
issuance, the 2002 Utility Revenue Bonds, Series A, which was issued to finance various capital
improvements for both systems. The Water Utility’s share of the issuance was roughly $7.8
million.
The cost of debt service for the Water Utility’s share of these bond issuances for the financial
forecast period is as follows:
Table 15: Water Utility Debt Service ($000)
FY 2015 FY 2016 FY 2017 FY 2018 FY 2019 FY 2020 FY 2021 FY 2022
2009 Water
Revenue Bonds,
Series A (net of
grants)
1,986 2,002 2,012 2,031 2,046 2,064 2,079 2,101
2011 Utility
Revenue Bonds,
Series A
656 657 657 656 654 656 657 657
Both the 2009 and 2011 Bonds include the following covenants: 1) net revenues plus Available
Reserves shall at least equal 125% of the maximum annual debt service, and 2) Available
Reserves shall be at least 5 times the maximum annual debt service. Note that “Available
Reserves,” as defined for both bonds, include the reserves for the Gas and Electric systems, not
just the Water system.
The current Financial Plan maintains compliance with these covenants throughout the forecast
period, as shown in Appendix A (Water Utility Financial Forecast Detail).
The net revenues (but not the reserves) of the Water Utility are also pledged for one other
bond as shown in Table 16 below, even though the Water Utility is not responsible for the debt
service payments. The Water Utility’s reserves or net revenues would only be called upon if the
responsible utilities are unable to make their d ebt service payments. Staff does not currently
foresee this occurring. Requirements of the California Constitution require that any amounts
advanced from one utility to pay debt service for another utility must be repaid by the
borrowing fund.
WATER UTILITY FINANCIAL PLAN
J u n e 1 6 , 2 0 1 4 38 | P a g e
Table 16: Other Issuances Secured by the Water Utility’s Revenues or Reserves
Bond Issuance Responsible Utilities Annual Debt
Service ($000)
Secured by Water Utility’s:
Net Revenues Reserves
1995 Series A Utility
Revenue Bonds Storm Drain $680 Yes No
WATER UTILITY FINANCIAL PLAN
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APPENDIX F : DESCRIPTION OF WATER UTILITY OPERATIONAL ACTIVITI ES
This appendix describes the activities associated with the various operational activities referred
to in Section 7B (Operations) of this Financial Plan.
Administration: Accounting, purchasing, legal, and other administrative functions provided by
the City’s General Fund staff, as well as shared communications services, CPAU administrative
overhead, and billing system maintenance costs. This category also includes Water Utility debt
service and rent paid to the General Fund for the land associated with reservoirs and various
other facilities.
Customer Service: This category includes the Water Utility’s share of the call center, meter
reading, collections, and billing support functions. Billing support encompasses staff time
associated with bill investigations and quality control on certain aspects of the billing process. It
does not include maintenance of the billing system itself, which is included in Administration .
This category also includes CPAU’s key account representatives, who work with large
commercial customers who have more complex requirements for their water services.
Engineering (Operating): The Water Utility’s engineers focus primarily on the CIP, but a small
portion of their time is spent assisting with distribution system maintenance.
Operations and Maintenance: This category includes the costs of a variety of distribution
system maintenance activities, including:
investigating reports of damaged mains or services and performing emergency repairs;
testing and operating valves;
monitoring water quality and reservoir levels;
monitoring the status of the different pressure zones;
flushing water at hydrants and other closed end points of the system;
building and replacing water services for new or redeveloped buildings; and
testing and replacing meters to ensure accurate sales metering.
This category also includes a variety of functions the utility shares with other City utilities,
including:
the Field Services team (which does field research of various customer service issues);
the Cathodic Protection team (which monitors and maintains the systems that prevent
corrosion in metal tanks and reservoirs); and
the General Services team (which manages and maintains equipment, paves and
restores streets after gas, water, or sewer main replacements, and provides welding
services)
Resource Management: This category includes water procurement, contract management,
water resource planning, interaction with BAWSCA, the SFPUC, and the SCVWD, and tracking of
legislation and regulation related to the water industry.
APPENDIX G : SAMPLE OF WATER UTILITY OUTREACH COMMUNICATI ONS
Attachment D
* NOT YET APPROVED *
150220 mf 6053253 1
Resolution No. _____
Resolution of the Council of the City of Palo Alto Adopting a Water Rate Increase
and Amending Rate Schedules W-1 (General Residential Water Service), W-2
(Water Service from Fire Hydrants), W-3 (Fire Service Connections), W-4
(Residential Master-Metered and General Non-Residential Water Service), and
W-7 (Non-Residential Irrigation Water Service)
R E C I T A L S
A. Pursuant to Chapter 12.20.010 of the Palo Alto Municipal Code, the Council of
the City of Palo Alto may by resolution adopt rules and regulations governing utility services,
fees and charges.
B. Pursuant to Article XIIID Sec. 6 of the California Constitution, on ________, 2015,
the City of Palo Alto held a public hearing to consider all protests against the proposed water
rate amendments.
C. The total number of written protests presented by the close of the public
hearing was less than fifty percent (50%) of the total number of customers and property
owners subject to the proposed water rate amendments.
The Council of the City of Palo Alto RESOLVES, as follows:
SECTION 1. Pursuant to Section 12.20.010 of the Palo Alto Municipal Code, Utility
Rate Schedule W-1 (General Residential Water Service) is hereby amended to read as attached
and incorporated. Utility Rate Schedule W-1, as amended, shall become effective July 1, 2015.
SECTION 2. Pursuant to Section 12.20.010 of the Palo Alto Municipal Code, Utility
Rate Schedule W-2 (Water Service from Fire Hydrants) is hereby amended to read as attached
and incorporated. Utility Rate Schedule W-2, as amended, shall become effective July 1, 2015.
SECTION 3. Pursuant to Section 12.20.010 of the Palo Alto Municipal Code, Utility
Rate Schedule W-3 (Fire Service Connections) is hereby amended to read as attached and
incorporated. Utility Rate Schedule W-3, as amended, shall become effective July 1, 2015.
SECTION 4. Pursuant to Section 12.20.010 of the Palo Alto Municipal Code, Utilit y
Rate Schedule W-4 (Residential Master-Metered and General Non-Residential Water Service) is
hereby amended to read as attached and incorporated. Utility Rate Schedule W-4, as amended,
shall become effective July 1, 2015.
SECTION 5. Pursuant to Section 12.20.010 of the Palo Alto Municipal Code, Utility
Rate Schedule W-7 (Non-Residential Irrigation Water Service) is hereby amended to read as
attached and incorporated. Utility Rate Schedule W-7, as amended, shall become effective
July 1, 2015.
Attachment D
* NOT YET APPROVED *
150220 mf 6053253 2
SECTION 6. The Council finds that the revenue derived from the adoption of this
resolution shall be used only for the purpose set forth in Article VII, Section 2, of the Charter of
the City of Palo Alto.
SECTION 7. The Council finds that the fees and charges adopted by this resolution are
charges imposed for a specific government service or product provided directly to the payor
that are not provided to those not charged, and do not exceed the reasonable costs to the City
of providing the service or product.
SECTION 8. The Council finds that the adoption of this resolution changing water
rates to meet operating expenses, purchase supplies and materials, meet financial reserve
needs and obtain funds for capital improvements necessary to maintain service is not subject to
the California Environmental Quality Act (CEQA), pursuant to California Public Resources Code
Sec. 21080(b)(8) and Title 14 of the California Code of Regulations Sec. 15273(a). After
reviewing the staff report and all attachments presented to Council, the Council incorporates
these documents herein and finds that sufficient evidence has been presented setting forth
with specificity the basis for this claim of CEQA exemption.
INTRODUCED AND PASSED:
AYES:
NOES:
ABSENT:
ABSTENTIONS:
ATTEST:
___________________________ ___________________________
City Clerk Mayor
APPROVED AS TO FORM: APPROVED:
___________________________ ___________________________
Senior Deputy City Attorney City Manager
___________________________
Director of Utilities
___________________________
Director of Administrative Services
GENERAL RESIDENTIAL WATER SERVICE
UTILITY RATE SCHEDULE W-1
CITY OF PALO ALTO UTILITIES
Issued by the City Council
Supersedes Sheet No W-1-1 Effective 7-1-2013
dated 7-1-2012 Sheet No W-1-1
A. APPLICABILITY:
This schedule applies to all separately metered single family residential water services.
B. TERRITORY:
This schedule applies everywhere the City of Palo Alto provides water services.
C. RATES:
Per Meter
Monthly Service Charge: Per Month
For 5/8-inch meter ..................................................................................................... $ 14.6716.01
For 3/4 inch meter ..................................................................................................... 19.5121.48
For 1 inch meter ........................................................................................................ 29.1832.42
For 1 1/2 inch meter .................................................................................................. 53.3759.77
For 2-inch meter ........................................................................................................ 82.3992.60
For 3-inch meter ........................................................................................................ 174.29196.54
For 4-inch meter ........................................................................................................ 309.72349.71
For 6-inch meter ........................................................................................................ 633.80716.24
For 8-inch meter ........................................................................................................1,165.861,318.01
For 10-inch meter ......................................................................................................1,843.022,083.89
For 12-inch meter .......................................................................................................2,423.452,740.37
Commodity Rate: (To be added to Service Charge and applicable to all pressure zones.)
Per Hundred Cubic Feet (ccf)
Per Month All Pressure Zones
Tier 1 usage ........................................................................................................................$4.995.70
Tier 2 usage (All usage over 100% of Tier 1) ........................................................................7.588.38
Temporary unmetered service to residential
subdivision developers, per connection ........................................................................ $6.00
ATTACHMENT E
GENERAL RESIDENTIAL WATER SERVICE
UTILITY RATE SCHEDULE W-1
CITY OF PALO ALTO UTILITIES
Issued by the City Council
Supersedes Sheet No W-1-2 Effective 7-1-2013
dated 7-1-2012 Sheet No W-1-2
D. SPECIAL NOTES:
1. Calculation of Cost Components
The actual bill amount is calculated based on the applicable rates in Section C above and
adjusted for any applicable discounts, surcharges and/or taxes. On a customer’s bill
statement, the bill amount may be broken down into appropriate components as
calculated under Section C.
2. Calculation of Usage Tiers
Tier 1 water usage shall be calculated and billed based upon a level of 0.2 ccf per day
rounded to the nearest whole ccf, based on meter reading days of service. As an example,
for a 30 day bill, the Tier 1 level would be 0 through 6 ccf. For further discussion of bill
calculation and proration, refer to Rule and Regulation 11.
{End}
WATER SERVICE FROM FIRE HYDRANTS
UTILITY RATE SCHEDULE W-2
CITY OF PALO ALTO UTILITIES
Issued by the City Council
Supersedes Sheet No W-2-1 Effective 7-1-2013
dated 7-1-2012 Sheet No W-2-1
A. APPLICABILITY:
This schedule applies to all water taken from fire hydrants for construction, maintenance, and
other uses in conformance with provisions of a Hydrant Meter Permit.
B. TERRITORY:
This schedule applies everywhere the City of Palo Alto provides water services.
C. RATES:
1. Monthly Service Charge.
METER SIZE
5/8 inch ........................................................................................................................... 50.00
3 inch ........................................................................................................................... 125.00
2. Commodity Rate: (per hundred cubic feet) ................................................................ $6.156.97
D. SPECIAL NOTES:
1. Monthly charges shall include the applicable monthly service charge in addition to usage billed at
the commodity rate.
2. Any applicant using a hydrant without obtaining a Hydrant Meter Permit or any permittee using a
hydrant without a Hydrant Meter Permit shall pay a fee of $50.00 for each day of such use in
addition to all other costs and fees provided in this schedule. A hydrant permit may be denied or
revoked for failure to pay such fee.
3. A meter deposit of $750.00 may be charged any applicant for a Hydrant Meter Permit as a
prerequisite to the issuance of a permit and meter(s). A charge of $50.00 per day will be added for
delinquent return of hydrant meters. A fee will be charged for any meter returned with missing or
damaged parts.
4. Any person or company using a fire hydrant improperly or without a permit, or who draws water
from a hydrant without a meter installed and properly recording usage shall, in addition to all other
applicable charges be subject to criminal prosecution pursuant to the Palo Alto Municipal Code.
{End}
FIRE SERVICE CONNECTIONS
UTILITY RATE SCHEDULE W-3
CITY OF PALO ALTO UTILITIES
Issued by the City Council
Supersedes Sheet No W-3-1 Effective 7-1-2013
dated 7-1-2012 Sheet No W-3-1
A. APPLICABILITY:
This schedule applies to all public fire hydrants and private fire service connections.
B. TERRITORY:
This schedule applies everywhere the City of Palo Alto provides water services.
C. RATES:
1. Monthly Service Charges
Public Fire Hydrant .................................................................................................... $5.00
Private Fire Service:
2-inch connection .......................................................................................................$3.033.43
4-inch connection .......................................................................................................18.7821.21
6-inch connection ....................................................................................................... 54.5561.61
8-inch connection .......................................................................................................116.24131.29
10-inch connection .....................................................................................................209.03236.10
12-inch connection .....................................................................................................337.65381.36
2. Commodity (To be added to Service Charge unless water is used for fire extinguishing or
testing purposes.)
Per Hundred Cubic Feet
All water usage........................................................................................................... $10.00
D. SPECIAL NOTES:
1. Service under this schedule may be discontinued if water is used for any purpose other
than fire extinguishing or testing and repairing the fire extinguishing facilities. Using
hydrants and fire services for other purposes is illegal and will be subject to the
commodity charge as noted above, fines, and criminal prosecution pursuant to the Palo
Alto Municipal Code.
2. For a combination water and fire service, the general water service schedule shall apply.
FIRE SERVICE CONNECTIONS
UTILITY RATE SCHEDULE W-3
CITY OF PALO ALTO UTILITIES
Issued by the City Council
Supersedes Sheet No W-3-2 Effective 7-1-2013
dated 7-1-2012 Sheet No W-3-2
3. Utilities Rule and Regulation No. 21 provides additional information on Automatic Fire
Services.
4. Repairs and testing of fire extinguishing facilities are not considered unauthorized use of
water if records and documentation are supplied by the customer.
{End}
RESIDENTIAL MASTER-METERED AND
GENERAL NON-RESIDENTIAL WATER SERVICE
UTILITY RATE SCHEDULE W-4
CITY OF PALO ALTO UTILITIES
Issued by the City Council
Supersedes Sheet No W-4-1 Effective 7-1-2013
dated 7-1-2012 Sheet No W-4-1
A. APPLICABILITY:
This schedule applies to non-residential water service in the City of Palo Alto and its distribution
area. This schedule is also applicable to multi-family residential customers served through a master
meter.
B. TERRITORY:
This schedule applies everywhere the City of Palo Alto provides water services.
C. RATES:
Per Meter
Monthly Service Charge Per Month
For 5/8-inch meter ....................................................................................$ 16.01$ 14.67
For 3/4-inch meter .................................................................................... 21.4819.51
For 1-inch meter .................................................................................... 32.42 29.18
For 1 ½-inch meter .................................................................................... 59.77 53.37
For 2-inch meter .................................................................................... 92.60 82.39
For 3-inch meter .................................................................................... 196.54174.29
For 4-inch meter .................................................................................... 349.71309.72
For 6-inch meter .................................................................................... 716.24633.80
For 8-inch meter ....................................................................................1,318.011,165.86
For 10-inch meter ....................................................................................2,083.891,843.02
For 12-inch meter ....................................................................................2,740.372,423.45
Commodity Rates: (to be added to Service Charge)
Per Hundred Cubic Feet (ccf)
Per Month All Pressure Zones
Per ccf ............................................................................................................ $ 6.156.97
RESIDENTIAL MASTER-METERED AND
GENERAL NON-RESIDENTIAL WATER SERVICE
UTILITY RATE SCHEDULE W-4
CITY OF PALO ALTO UTILITIES
Issued by the City Council
Supersedes Sheet No W-4-2 Effective 7-1-2013
dated 7-1-2012 Sheet No W-4-2
D. SPECIAL NOTES:
1. Calculation of Cost Components
The actual bill amount is calculated based on the applicable rates in Section C above and
adjusted for any applicable discounts, surcharges and/or taxes. On a customer’s bill
statement, the bill amount may be broken down into appropriate components as
calculated under Section C.
{End}
NON-RESIDENTIAL IRRIGATION WATER SERVICE
UTILITY RATE SCHEDULE W-7
CITY OF PALO ALTO UTILITIES
Issued by the City Council
Supersedes Sheet No W-7-1 Effective 7-1-2013
dated 7-1-2012 Sheet No W-7-1
A. APPLICABILITY:
This schedule applies to non-residential water service supplying dedicated irrigation meters in the
City of Palo Alto and its distribution area.
B. TERRITORY:
This schedule applies everywhere the City of Palo Alto provides water services.
C. RATES:
Per Meter
Monthly Service Charge Per Month
For 5/8-inch meter .................................................................................... $ 16.0114.67
For 3/4-inch meter .................................................................................... 21.48 19.51
For 1-inch meter .................................................................................... 32.4229.18
For 1 1/2 inch meter .................................................................................... 59.77 53.37
For 2-inch meter .................................................................................... 92.60 82.39
For 3-inch meter .................................................................................... 196.54174.29
For 4-inch meter .................................................................................... 349.71309.72
For 6-inch meter .................................................................................... 716.24633.80
For 8-inch meter ....................................................................................1,318.011.165.86
For 10-inch meter ....................................................................................2,083.891.843.02
For 12-inch meter ....................................................................................2,740.372,423.45
Commodity Rates: (to be added to Service Charge)
Per Hundred Cubic Feet (ccf)
Per Month All Pressure Zones
Per ccf ............................................................................................................ $ 7.528.46
NON-RESIDENTIAL IRRIGATION WATER SERVICE
UTILITY RATE SCHEDULE W-7
CITY OF PALO ALTO UTILITIES
Issued by the City Council
Supersedes Sheet No W-7-2 Effective 7-1-2013
dated 7-1-2012 Sheet No W-7-2
D. SPECIAL NOTES:
1. Calculation of Cost Components
The actual bill amount is calculated based on the applicable rates in Section C above and
adjusted for any applicable discounts, surcharges and/or taxes. On a customer’s bill
statement, the bill amount may be broken down into appropriate components as
calculated under Section C.
{End}