HomeMy WebLinkAboutStaff Report 5598
City of Palo Alto (ID # 5598)
Finance Committee Staff Report
Report Type: Action Items Meeting Date: 4/7/2015
City of Palo Alto Page 1
Summary Title: Wastewater Collection Financial Plan and Rate Proposals
Title: Utilities Advisory Committee Recommendation 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) to Increase Average Wastewater Collection Rates by 9%
From: City Manager
Lead Department: Utilities
Recommendation
Staff and the Utilities Advisory Commission (UAC) request that the Finance Committee
recommend that the City Council:
1. Adopt a resolution (Attachment A) approving the fiscal year (FY) 2016 Wastewater
Collection Utility Financial Plan (Attachment C and amending the Wastewater Collection
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 wastewater 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%.
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Staff also recommends changes to the Wastewater Collection Utility Reserves Management
Practices to accommodate a change in City budgeting practices for Capital Improvement
Program (“CIP”) projects.
The UAC reviewed the Wastewater Collection Financial Plan and Rate Projections at its meeting
on March 4, 2015 and recommended approval of staff’s recommendations.
Background
Every year staff presents the Finance Committee 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, Finance Committee 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 this proposal at its March 4, 2015 meeting. The UAC and Finance Committee
reviewed preliminary financial forecasts and rate projections at their February 4, 2015 and
March 3, 2015 meetings, respectively.
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
Reserves 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. For FY 2015, staff
proposes an additional transfer of $264,000 from the Rate Stabilization Reserve to the
Operations Reserve over the original $1.9 million transfer as discussed in the FY 2015 Financial
Plan, in order to cover additional expected expenses and 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.
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b. Transfer the funds that are projected to be released from the Reappropriations
Reserve at the beginning of FY 2016 to the CIP Reserve.
2. Transfer $2 million from the Rate Stabilization Reserve to the Operations Reserve in FY
2016. This transfer will enable staff to maintain Operations Reserve levels while
spreading the required rate increases for the wastewater collection utility over several
years.
These proposed actions are described in more detail in the FY 2016 Wastewater Collection
Financial Plan (Attachment B).
Proposed Rate Adjustments Effective July 1, 2015
Staff proposes to adjust rates as shown in Table 1 below, effective July 1, 2015. The
adjustments will increase the system average rate by roughly 9%. These rate changes are
included in the amended rate schedules in Attachment E.
Table 1: Current and Proposed (as of July 1, 2015) Wastewater Collection Charges
Rate
Schedule
Customer
Class
Current Rates Proposed Rates Rate Change
Monthly
Charge (1)
($/month)
Quantity
Charge
($/ccf)
Monthly
Charge (1)
($/month)
Quantity
Charge
($/ccf)
Monthly
Charge (1)
Quantity
Charge
$/mo % $/ccf %
S-1 Residential 29.31 N/A 31.95 N/A 2.64 9% N/A N/A
S-2 Commercial 29.31 5.65 31.95 6.16 2.64 9% 0.51 9%
S-6 Restaurant 29.31 8.73 31.95 9.52 2.64 9% 0.79 9%
S-7 Industrial
Dischargers (2) N/A 2.60 N/A 2.83 N/A N/A 0.23 9%
(1) Monthly charges for S-1 are fixed monthly charges, and those for S-2 and S-6 are
minimum monthly charges.
(2) Currently there are no customers on rate schedule S-7, however, CPAU continues to
maintain it in case there is a need for the rate schedule in the future.
Projected Rate Adjustments over the Forecast Period
Table 2 shows the projected rate adjustments included in the Wastewater Collection Utility
Financial Plan and their impact on the median residential wastewater bill.
Table 2: Projected Rate Adjustments and Residential Bill Impact, FY 2016 to FY 2020
FY 2016 FY 2017 FY 2018 FY 2019 FY 2020
Wastewater Utility 9% 9% 9% 9% 6%
Estimated Bill Impact for
Residential Customers ($/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
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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 CIP 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 and rehabilitation costs have risen substantially in recent
years, and it is possible that higher CIP expenditures will be required in the future. The
Financial Plan includes rate projections for a “High CIP Cost” scenario. Staff plans to perform an
updated master plan for the wastewater collection system to gain better information about
future main replacement costs. Staff expects this study to commence in 2016.
Table 3 shows these projected wastewater rate adjustments along with the other proposed and
projected utility rates.
Table 3: Rate Adjustments, All Utilities, FY 2016 Proposed, FY 2017 to FY 2020 Projected
FY 2016 FY 2017 FY 2018 FY 2019 FY 2020
Electric 0% 6% 6% 1% 1%
Gas1 0% 7% 4% 4% 4%
Wastewater 9% 9% 9% 9% 6%
Water 12% 8% 8% 8% 3%
Refuse2 9% 9% 8% 2% to 3% 2% to 3%
Storm Drain3 2.7% 2% to 3% 2% to 3% 2% to 3% 2% to 3%
Total Bill
Change4
(%) 6% 8% 7% 5% 3%
($/mo) $14.73 $18.91 $18.53 $14.39 $9.55
(1) Gas rate changes are shown with commodity rates held constant. Actual gas commodity rates
will vary monthly with wholesale market fluctuations
(2) No forecast available past FY 2018, inflationary increases assumed.
(3) Storm Drain Rates increase annually by CPI; existing rates sunset in June 2017 unless
reauthorized by a majority vote of property owners.
(4) Change in estimated median residential bill, $230.76 as of June 30, 2014
Commission Review and Recommendation
At its February 4, 2015 meeting, the UAC requested a more in depth discussion of treatment
costs as these are a major cost driver in the wastewater collection utility. Staff noted this and
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invited Jamie Allen, Regional Water Quality Control Plant (RWQCP) Manager to discuss RWQCP
related operations and CIP plans with the UAC at its March 4, 2015 meeting. This presentation
occurred prior to discussion of the wastewater collection financial plan and rates.
Mr. Allen summarized the RWQCP’s Long-Range Facilities Plan, which was prepared due to the
RWQCP facilities, which are past their design life, needing upgrades to to keep up with
treatment advances,. Rehabilitation costs related to biosolids processing and incinerator
replacement were discussed, as well as possible new regulatory costs associated with nitrogen
and phosphorus discharges. Staff clarified that debt service costs would be increasing as these
projects progressed. Commissioners commented that providing recycled water with a total
suspended solids (TDS) level acceptable for irrigation should be a high priority, and staff noted
that the City had TDS goals and supported expanding recycled water.
One Commissioner requested that additional detail on the operations, debt service and CIP
costs for wastewater treatment be provided in the future as it would provide better guidance
on wastewater collections. Mr. Allen stated he would work with utilities staff to provide that,
with Director Fong noting that the costs would be informative only, not an item for action by
the UAC.
The UAC then reviewed the Wastewater Collection Financial Plan and Rates proposal, but
having had any questions related to it addressed as part of the previous item, the UAC
approved the proposal unanimously with no discussion.
The draft minutes from the UAC’s March 4, 2015 meeting are provided as Attachment F.
Timeline
Assuming the Finance Committee supports staff’s recommendation, notification of the rate
increases will be sent to customers as required under Article XIIID of the California Constitution
(as 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 a public hearing will be held.
All residents and other interested persons may submit written or oral testimony at the hearing,
and may also submit written protests to any or all of the proposed rate increases. Council may
adopt the proposed rates unless written protests are filed by a majority of the affected
customers.
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 proposed 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.
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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. If approved, these Reserve Management
Practices would replace the current Reserve Management Practices, which were last adopted
by Council in June 2014 (Resolution 9423).
Environmental Review
The Finance Committee’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:
Attachment A: Resolution Approving the FY 2016 Wastewater Collection Financial Plan
and Amending the Wastewater Collection Utility Reserves Management Practices
(PDF)
Attachment B: Proposed Amendments to the Wastewater Collection Utility Reserves
Management Practices (PDF)
Attachment C: Proposed FY 2016 Wastewater Collection Financial Plan (PDF)
Attachment D: Resolution of the Council of the City of Palo Alto Adopted a Wastewater
Collection Rate Increase and Amending Rate Schedules S-1, S-2, S-6 and S-7 (PDF)
Attachment E: Proposed Amendments to Rate Schedules S-1, S-2, S-6 and S-7, effective
7-1-2015 (PDF)
Attachment F: Excerpted Draft UAC Minutes of March 4, 2015 (PDF)
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
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APPENDIX B: WASTEWATER 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
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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 2020
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
WASTEWATER COLLECTION UTILITY FINANCIAL PLAN
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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 ABBREVIATIONS
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 RECOMMENDATIONS
SECTION 2A. EXECUTIVE 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.
WASTEWATER COLLECTION UTILITY FINANCIAL PLAN
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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 Reappropriations 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 PROPOSALS
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.
SECTION 3B. RESERVES MANAGEMENT PRACTICES, PROPOSED 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 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 ($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 Reappropriations
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 Reappropriations 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 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
Wastewater Collection rates. In addition, staff proposes transfers from the Reappropriations
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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 AND 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 STATUS
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 4D. 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 SERVICE
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 BACK
SECTION 5A. BACKGROUND
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. HISTORICAL EXPENSES AND REVENUES
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 YEAR 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 services 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 combined 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 6B. 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
SECTION 6C. 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
WASTEWATER COLLECTION UTILITY FINANCIAL PLAN
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SECTION 6D. 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 6E. 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 6F. 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.
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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
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APPENDIX A: WASTEWATER COLLECTION FINANCIAL FORECAST DETAIL
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
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APPENDIX B: WASTEWATER COLLECTION 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
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APPENDIX C: WASTEWATER COLLECTION 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.)
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APPENDIX D: WASTEWATER COLLECTION 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
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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 COLLECTION OUTREACH MATERIALS
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), 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
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) .............................................$5.656.16D. 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}
EXCERPTED DRAFT MINUTES OF THE MARCH 4, 2015
UTILITIES ADVISORY COMMISSION MEETING
ITEM: 5: ACTION: 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 State 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)
Resource Planner Eric Keniston summarized the WWC financial projection, noting that rate
increases of 9%/year for the next four years are required as presented in February when staff
presented the preliminary financial forecasts. Costs are increasing at 3 to 5% per year, but
revenues are currently below costs so rates must increase at a higher rate than costs.
ACTION:
Chair Foster made a motion to 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
State 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). Vice Chair
Waldfogel seconded the motion. The motion carried unanimously (6-0 with Chair Foster,
Commissioners Chang, Eglash, Hall, Melton and Vice Chair Waldfogel voting yes, Commissioner
Cook absent).
ATTACHMENT F