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
>
>
>
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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)
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