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4.a) Uptown Sewer System Issues � �_ Anne Hurlburt From: Ness [c.ness@ci.scandia.mn.us] Sent: Tuesday, October 11, 2011 1:08 AM To: Anne Hurlburt Subject: Re: Revised Agenda for October 11, 2011 Work Session Meeting Hi Anne As I won't be at the work session, here are some of my thoughts on the Uptown Sewer System. 1. As most of the maintenance costs are fixed with usage being a small component of cost, I think the base rate should be at least $100 a month. The usage rate can be adjusted accordingly to make the numbers work. It may not seem equitable to the smaller users, but the $210 example on table 8.5 isn't nearly enough. 2. The lines within the buildings, service lines connecting to the system and water meters should be private responsibility. 3. I'm in favor of a lower rate and shorter term for the financing. The users can give us input if they want to lengthen the term. 4. As for collection, if monthly or quarterly billing reduces work and costs, that works for me. If the users prefer an assessment, I would be open to it. 5. Speaking of assessments, has there been any progress on a dollar amount for the Gammelgarden hookup? Please share this with my fellow councilmembers. Thanks, Chris > Council Members- > > > > Today Steve Thorp submitted his resignation. His last day with > Scandia will be November 8. > > > > A revised agenda for Tuesday's meeting is attached. I have added an > item under "New Business" as I assume that you will want to discuss it. > > > > Anne > > > 1 ` v�' . , ��'\ ` J �<_,--/'!-�� � � �, ��' ♦ ��., �_. �� r��_,�. .�',,, /' �' s�.������ Memo - • To: Mayor and City Council From: Anne Hurlburt,City Administrator Date: October 6,2011 for October 11,2011 Work Session Re: Uptown Sewer System The Uptown Sewer System Master Plan includes recommendations for actions on several fronts. Staff has been working with the county on the permit,drafting an ordinance and fee schedule, and seeking contractors to help operate the system. Some direction is needed from the Council on certain issues so that we can develop appropriate alternatives that can also be discussed with the system users. The issues that should be discussed by the Council at this time are: • What parts of the Uptown sewer system are the common components of the system and therefore the responsibility of the City, and what components are the private responsibilities of the users or property owners? • The Counci]has decided to finance the cost of the needed system improvements with a loan from the Capital Improvement Fund. Some basic parameters of this loan need to be determined. • Does the Council have a preferred approach for allocating costs among users, and between users and the public? Some direction from the Council will help nan-ow down alternatives for discussion. Common vs. Private System Components One of the basic pieces of information that must be included in the ordinance is a description of the system and what parts of it are the responsibilities of the City, and what components are the private responsibilities of the users or property owners. While it may seem that there is an easy answer to this question—that it is a matter of common knowledge or history what comprises the system—it should be revisited and confirmed. Specific definition of public responsibility is needed for the permit that will be issued by Washington County, and needs to be very clear in the contract with an operator and any other service providers. The division of responsibility will affect the budget, and therefore rates. 10/6/2011 Page 2 of 6 ln most public sewer systems,the lines within the building and the service line connecting to the city's sewer main up to the property line are generally considered to be a private responsibility. This has not been clearly defined for the Uptown system. The ageements with the property owners concerning construction of the system did not deal with this issue,and some of the components pre-date construction of the community system. The 1996 ordinance(No. 55)describes the system as the drainfield and"including all collector lines,pumps, holding tanks and any and all other facilities comprising the system." To be equitable,the city should only budget and bill users for the common components; all users should not bear the cost for maintaining the private components of the other users. On the other hand, if the users are responsible for key components of the treatment system (such as a septic tank) and do not maintain it properly, it has the potential to damage the system. So there may be reasons to treat some components as common facilities that could otherwise be considered to be private. It is easiest to talk about the system if one starts at the downstream end(the underground treatment system/drainfield) and discusses the components moving upstream. (Please refer to Figures 3 and 4 from the Uptown Master Plan.) • The drainfield and the force main on the west side of Olinda Trail are common components that serve all the users and are clearly a common benefit and responsibility. • The first connection upstream from the drainfield is the Community Center/Warming House complex. The Community Center has a series of tanks shown on Figure 3. As a matter of practice,the city has paid the cost of pumping and repairs from the general fund budgets for either the Community Center or Warming House, and not charged the cost to Uptown sewer users. • The next connection is Gammelgarden Museum. The museum has 3 on-site tanks which � serve no other users, and a connection to the forcemain next to Olinda, all paid for by the Museum. We believe that in the past the city has paid for maintenance on these tanks. The city was recently sent a bill for repair of a grinder pump inside the building,which the city declined to pay. • The next upstream component is the Uptown Pump tank(replacement of which is recommended in the Master Plan),which is connected to Uptown Septic Tank 2. Effluent from all of the upstream users(the church&old parsonage, and the connected businesses north of Olinda)passes through these tanks. They are clearly a common system component. • There are two septic tanks on the Elim Church property that discharge to Uptown Septic Tank 2. One is for the former parsonage, the only residence on the system. This tank is on the east side of the church. (Recently the city paid for some maintenance on this tank,which was charged to the Uptown system.) The second tank is called the"church tank"in the plan,and takes all the waste from the church,discharging the effluent into Uptown Septic Tank 2. • Upstream of Uptown Septic Tank 2 is Uptown Septic Tank 1,which receives all the sewage from the upstream businesses through a gravity-flow line in Olinda Trail. The 5 buildings connect to that line. There are 3 manholes in the street upstream of Tank 1. The sewer line and lines that connect to the buildings are generally all in the Olinda Trail right-of-way. • Each of the system users has a water meter. The meters are read to estimate the volume of wastewater they confibute to the system. With the most recent connection,the user(Schmitt/ Edward Jones)was required to pay for and install a meter of a type approved by the city. Are 10/6/2011 Page 3 of 6 these meters a private or a public component of the system? Water meters last a long time, and as far as we know,no repairs have been necessary to date. Eventually some repairs or replacements may be needed. The ordinance needs to clearly define the public components of the system. It may be necessary to spell out for each user what portions on their properiy are and are not the city's responsibility. If certain septic tanks connected to the Uptown system are defined as private responsibilities,the city should request that Washington County add them to their database for septic system enforcement,to ensure that they are periodically maintained. Capital Improvement Fund Loan If the system improvements (estimated at$99,601) are financed by a loan from Capital Improvement Fund,the Council will need to determine the terms far this loan, and the mechanism for collecting payments. Some direction is needed before discussing this with the users. Parameters to be determined are: • Term of loan—how long should it take to pay the loan back? The longer the term,the more interest will be paid by the users of the system and the longer the city will lose the use of the funds. However,the cost to some users(coupled with large increases in sewer use billings)will probably be significant relative to their ability to pay, and lower payments may better meet their needs. Generally,the finance term should consider the useful life of the project. It should also consider whether additional debt might be needed in the future. Eventually,replacement of the drainfield(estimated cost$87,000)will be necessary and it may be necessary to borrow more funds at that time. The Capital Improvement Fund is projected to have a fund balance of$228,064 at the end of 2011. With revenue of$100,575 and the$99,601 expense for the loan,the projected balance at the end of 2012 is $230,038. (The 2012 projected revenue may be less,depending upon how the Council chooses to balance the budget.)The proposed t�levy revenue for this fund is the largest in years, and it may not be possible to add to the fund at this level every year. This fund should be viewed as a limited resource,difficult to replenish. • Interest rate—what interest rate should be charged on the loan? In the past,when the city has assessed the cost of public improvements,the practice has been to charge an interest rate 2 'h % higher than the rate at which the city borrowed the money. For the last major road project, for example, the city issued bonds at 3.94%and charged 6.5%on the assessments to benefited property owners. This encourages the property owner to pay offthe assessment earlier and ensures that the city covers a11 of its costs to finance the project. The two most recent t�exempt equipment certificates issued by the city carried interest rates of 2.97%(2010) and 3.53%(2011.) When the city assesses delinquent utility bills(for the 201 sewer system)to be collected with property taxes, 12%interest is charged. Another approach would be to consider the rate the city could earn on the funds if they remained on deposit, earning interest. Currently,rates are very low. In 2008, for example,the city earned 3.4%on its invested funds,but 20l 1 rates have only been 0.75%to 1.1%. A 5-year CD currently ]0/6/2011 Page 4 of 6 would earn about 1.85%, and a 10-year CD would earn about 2%. However the Council determines the rate,it should have some logical basis that can be explained to the users. For reference,we have attached some sample amortization schedules with various rates and terms. • Method of collection—how will the cost of the improvements be recovered from the users? The city could make an assessment to each benefitted property. Or,the cost could be factored in to the user rates and collected with monthly ar quarterly billings. Making assessments to benefitted properties(through the process in Minnesota Statutes Chapter 429) could add extra costs,unless each user would enter into an agreement with the city to be assessed. Assessments are collected by the County along with property taxes and passed through to the City. They are a lien on the property and provide some assurance that the debt to the city will be repaid. Assessments need to be uniform (rates,terms) for each property owner. Assessments can be paid more quickly than the specified term, as long as it is paid in full. The other option would be to factor the cost of the improvements into the rates and collect it with monthly or quarterly bills. If bills are not paid,the city has the ability to certify the unpaid amounts for collection with property taxes the following year. Property owner preferences on this issue may be quite different,depending upon whether leases make the tenant or landlord responsible for assessments, and who is responsible for sewer user fees. Before it is discussed with the users it would be helpful to know what options the Council is willing to consider. Allocations of costs—how will the cost of the improvements be allocated among the users? Will it be based on the volume of sewage confibuted to the system, a fixed amount for each user,or some combination of the two? This issue will need to be addressed for the improvement costs as well as the ongoing user charges. Sample base rate/usage rate options are described in section 8.3 of the Master Plan,and illustrated in tables, 2 of which are attached. Typically,the base rate is designed to cover the fixed costs of the system and would be the same for each user. The usage rate would cover the variable costs of the system that are directly affected by the use of the system. The higher the volume generated,the higher the variable costs to the system,the more the user pays. Scandia dealt with this issue once before when setting rates for the"201"sewer system. The operating budget for that system consists almost entirely of fixed costs. Only periodic pumping costs are affected by volumes. There are no meters in the system, so it is impossible to determine actual use by any customer. All of the users are residences;most of them year-round, some seasonal. The decision was made to charge a flat rate for each user,regardless of the type or size of the residence. Most of the users appear to have accepted this system, although we still do hear a few complaints. Some feel that it is not equitable because they believe they generate very little waste compared to their neighbors. Without meters,it is impossible to know whether this is true ar not. And even if they reduce their waste output,operation costs would probably not be affected. Without the sewer system 10/6/201] Page 5 of 6 available,the homes cannot be occupied and so would be worthless. The availability of the system is the main benefit. The Uptown system is different,but some of the same considerations will apply. The operations budget(as estimated by the Master Plan)will be affected little by the volume of sewage generated, except to some degee the cost to pump the tanks. The availability of the system is critical to the viability of the users, and indeed to the viability of Scandia's Village Center. The type of users served by the Uptown System is quite varied. We have users generating high volumes and high-strength waste(the Scandia Store/Deli Cafe,the commercial kitchens at Elim Church and the Community Center.) We have others with much lower volumes(Yoga Hus and Gammelgarden.) We have public facilities (year round and seasonal, like the Warming House) and tax-exempt facilities. There is only one residence on the system, a rental property owned by the church. Historically,the original contributions($60,200)of the users to construct the system were based on the estimated volumes they would contribute to the system. One user(Gammelgarden)did not contribute to the original construction cost ar pay a connection fee. The city did not pay a significant portion of the original construction cost,but later contributed over$200,000 of ta�cpayer funds to acquire and clear the land for a future replacement drainfield. Operations costs have been apportioned solely based on sewage volumes estimated by water meter readings. It is going to be difficult to determine a fair and equitable manner to dish-ibute the cost of the improvements and to construct a new rate sh-ucture. Basing the assessment on volume only may create an unreasonable burden on some of the small businesses served by the system. Without the sewer system,none of the buildings or businesses is viable, so each user receives a basic benefit unrelated to the volume of sewage generated. The costs of the needed improvements are partly related to volumes(the size of the tank or treatment unit)but the marginal cost of additional volume is probably a small part of the cost. Should the city bear any share beyond that which can be allocated to the Community Center and Wanning House? The city and all its taxpayers have already made a significant investment in the land for the future drainfield replacement. Should the city bear a greater share of the costs for the improvements,to ensure the viability of the businesses and other facilities that are highly valued by the community as a whole? The City will need to determine how it will pay its own share of the improvement and ongoing costs that benefit city-owned facilities. The city could decide to pay its share of the improvements directly rather than amortizing it over time. This could be paid from current revenues,with a transfer to the Capital Improvement Fund,or paid directly from that fund (essentially reducing the amount of the loan.) Again, some discussion of the Council's preferred approach to these issues priar to developing alternatives for discussion with the users would be helpful. ]0/6/2011 Page 6 of 6 Attachments: Tables 8.5 and 8.6,Uptown Wastewater System Master Plan Sample Amortization Schedules Figures 3 and 4,Uptown Wastewater System Master Plan Table 8.5 represents the estimated sewer charges for the Low Base Rate, High Use Rate option. Table 8.5 Estimated Sewer Charges Low Base Rate, High Use Rate Option Uptown WW System Base Rate- $13.00/month Use Rate - $14.00/1000 gal Avg. Avg. Monthly Annual Avg. Water Water Monthly Avg. Use* Use* Sewer Annual User (gal) (gal) Bill Sewer Bill Schmitt Mall 7,513 90,156 $1 l 8.18 $1,418.18 Yoga Hus 327 3,924 $17.58 $210.94 R&B Auto 5,564 66,768 $90.90 $1,090.75 Scandia Store/Deli/Cafe 19,955 239,460 $292.37 $3,508.44 Elim Church & Parsonage 12,600 151,200 $189.40 $2,272.80 Community Center 5,490 65,880 $89.86 $1,078.32 Warming House 4,266 51,192 $72.72 $872.69 Gammelgarden 1,570 18,840 $34.98 $419.76 Total 57,285 687,420 $905.99 $10,871.88 *Based on 2010 Water Use If the proposed improvements discussed in Section 3.6 are implemented the system will need to support debt service for financing the proposed improvements in addition to increased O&M costs. Assuming the proposed improvement cost of$112,000 was financed for a 10-year period at 4% interest, the annual debt service would total $13,809. Therefore, user rates would need to be increased to cover the additional costs. City of Scandia—N11.103386 Page 36 Uptown Wastewater System Master Plan Prepared by Bolton &Menk, Inc. Table 8.6 represents the estimated sewer charges for the High Base Rate, Low Use Rate option with the additional debt service cost. Table 8.6 Estimated Sewer Charges with Proposed Improvements High Base Rate, Low Use Rate Option Uptown WW System Base Rate- $232.00/month Use Rate - $5.50/1000 gal Avg. Avg. Monthly Annual Avg. Water Water Monthly Avg. Use* Use* Sewer Annual User (gal) (gal) Bill Sewer Bill Schmitt Mall 7,513 90,156 $273.32 $3,279.86 Yoga Hus 327 3,924 $233.80 $2,805.58 R&B Auto 5,564 66,768 $262.60 $3,151.22 Scandia Store/Deli/Cafe �9,955 239,460 $341.75 $4,101.03 Elim Church & Parsonage �2,600 151,200 $301.30 $3,615.60 Community Center 5,490 65,880 $262.20 $3,146.34 Warming House 4,266 51,192 $255.46 $3,065.56 Gammelgarden ],570 18,840 $240.64 $2,887.62 Total 57,285 687,420 $2,171.07 $26,052.81 *Based on 2010 Water Use City of Scandia—N11.103386 Page 37 Uptown Wastewater Syslem Master Plan Prepared by Bollon c&Merzk,Inc. � Sample Amortization Schedules 10 or 5 year terms, 6%,4%or 2% Interest Loan Amount: $100,000.00 loan Amount: $100,000.00 Interest Rate: 6.00 Interest Rate: 6.00 tf of Years: 10 tf of Years: 5 Annual Payment: ($13,586.80) Annual Payment: ($23,739.64) Payment tt Start Balance Annual Int. Payment End Balance Payment# Start Balance Annual Int. Payment End Balance 1 100,000.00 6,000.00 ($13,586.80) 92,413.20 1 100,000.00 6,000.00 (523,739.64) 82,260.36 2 92,413.20 5,544.79 (13,586.80) 84,371.20 2 82,260.36 4,935.62 (5z3,739.64) 63,456.34 3 84,371.20 5,062.27 (13,586.80) 75,846.68 3 63,45634 3,807.38 (523,739.64) 43,524.08 4 75,846.68 4,550.80 (13,586.80) 66,810.68 4 43,524.08 2,611.44 ($23,739.64) 22,395.89 5 66,810.68 4,008.64 (13,586.80) 57,232.53 5 22,395.89 1,343.75 (523,739.64) 0.00 6 57,232.53 3,433.95 (13,586.80) 47,079.68 7 47,079.68 2,824.78 (13,586.80) 36,317.67 8 36,317.67 2,179.06 (13,586.80) 24,909.93 9 24,909.93 1,494.60 (13,586.80) 12,817.73 10 12,817.73 769.06 (13,586.80) 0.00 loan Amount: $100,000.00 Loan Amount: $100,000.00 Interest Rate: 4.00 Interest Rate: 4.00 #of Years: 10 #of Years: 5 Annual Payment: ($12,329.09) Annual Payment: (522,462J1) Payment H Start Balance Annual Int. Payment End Balance Payment tt Start Balance Annual Int. Payment End Balance 1 100,000.00 4,000.00 ($72,329.09) 91,670.91 1 100,000.00 4,000.00 ($22,462.71) 81,537.29 2 91,670.91 3,666.84 ($72,329.09) 83,008.65 2 81,537.29 3,261.49 (522,462.71) 62,336.07 3 83,008.65 3,32035 (512,329.09) 73,999.90 3 62,336.07 2,493.44 (522,462.71) 42,366.80 4 73,999.90 2,960.00 (512,329.09) 64,630.80 4 42,366.80 1,694.67 (522,462J1) 21,598J6 5 64,630.80 2,585.23 (512,329.09) 54,886.94 5 21,598.76 863.95 (522,462.71) 0.00 6 54,886.94 2,195.48 (512,329.09) 44,753.32 7 44,753.32 1,790.13 (512,329.09) 34,214.36 8 34,214.36 1,368.57 (512,329.09) 23,253.84 9 23,253.84 930.15 ($12,329.09) 11,854.90 10 11,854.90 474.20 ($]2,329.09) 0.00 Loan Amount: $500,000.00 Loan Amount: $100,000.00 Interest Rate: 2.00 Interest Rate: 2.00 k of Years: 10 N of Years: 5 Annual Payment: (511,132.65) Annual Payment: (SZ1,215.84) Payment# Start Balance Annual Int. Payment End Balance Payment# Start Balance Annual Int. Payment End Balance 1 100,000.00 2,000.00 (511,132.65) 90,86735 1 100,000.00 2,000.00 ($21,215.84) 80,784.16 2 90,867.35 1,81735 (511,132.65) 81,552.04 2 80,784.16 1,615.68 (521,215.84) 61,184.00 3 81,552.04 1,631.04 ($11,132.65) 72,050.43 3 61,184.00 1,223.68 ($21,�15.84) 41,191.85 4 72,050.43 1,441.01 (511,132.65) 62,358.79 4 41,191.85 823.84 ($21,215.84) 20,799.84 5 62,358.79 1,247.18 (511,132.65) 52,473.31 5 20,799.84 416.00 (521,215.84) - 6 52,473.31 1,049.47 ($11,132.65) 42,390.12 7 42,390.12 847.80 (511,132.65) 32,105.27 8 32,105.27 642.11 ($11,132.65) 21,614.72 9 21,614.72 432.29 (511,132.65) 10,914.37 10 10,914.37 218.29 ($11,132.65) (0.00) � r �� .,\� ' \1 � � ��. . '� _ �k b� �e�,1, � ' „ :` ! i + ' ��� `e� ~ .� �.3� � t .2 �� � a� �- ��`�,:� ' �� ► ) � -. ► . /'y � ! l � ' � l t.•I • � _- �-) �; `,� ; 1 - � �.�: ,�� , �" �z . ���� 1 , � � ` � ! '�i 1 � � ' � � m �; ti q� t:•� � I � � y � >� . �; �� i ( j i . � � � �. , , � '� \ c` S'S ,. 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