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A. Utility Rate Study 6 CITY OF MEMORANDUM CHANHASSEN TO: Mayor and City Council 7700 Market Boulevard FROM: Greg Sticha, Finance Director 6 PO Box 147 Chanhassen, MN 55317 DATE: November 8, 2010 Administration SUBJ: Utility Rate Study Phone: 952.227.1100 Fax: 952.227.1110 BACKGROUND Building Inspections Ehler's & Associates, the city's financial advisors, annually studies the current Phone: 952.227.1180 utility fees and future projects to determine if the rates are appropriate for planned Fax: 952.227.1190 expansions, reconstruction, and maintenance of the water, sanitary sewer, and storm Engineering water systems. This evening we will be discussing the rate study as well as Phone: 952.227.1160 proposed changes to utility billing planned for 2011. Fax: 952.227.1170 Changes in Utility Billing Beginning January 1, 2011 Finance Phone: 952.227.1140 Staff is recommending a few administrative changes to utility billing beginning in Fax: 952.227.1110 2011. Park & Recreation Phone: 952.227.1120 The first is to redistrict the entire city. Every property within the City of Fax: 952.227.1110 Chanhassen receives a utility bill quarterly for water, sewer, and/or storm water charges. While each resident only receives a bill once per quarter, the city processes Recreation Center utility bills to 1/3 of the city each month — called billing cycles or districts. The City 2310 Coulter Boulevard of Chanhassen has grown over the past few years causing the number and location Phone: 952.227.1400 Fax: 952.227.1404 of properties within these billing cycles to become disproportionate. To balance the number of properties in each billing cycle, and generally be more efficient, staff has Planning & reapportioned the billing cycles to balance each district with an equal number of Natural Resources customers. The districts will now be geographically grouped together, which should Phone: 952.227.1130 help reduce the time, gas, and ultimately money spent on reading meters each Fax: 952.227.1110 month. If a property has been redistricted, they will receive a postcard outlining the Public Works changes. . 1591 Park Road Phone: 952.227.1300 Secondly, due to the increase in the number of homes /properties now being rented Fax: 952.227.1310 in the city, staff is proposing that all utility bills be sent to the property owner, and the property owner will be responsible for making payment. In the past, as a Senior Center courtesy to the property owners, staff has billed the renter for the utility bill. Phone: 952227.1125 However, many of these properties are changing hands every few months, and in Fax: 952.227.1110 many cases the new /old renters are not notifying the city of the change. Therefore it Web Site is making collection of the utility bills very difficult, as well as costly to the city www.ci.chanhassen.mn.us because each time the renter changes, a utility department employee is sent out to take a final read. We have also had payment collection issues with many of the Chanhassen is a Community for Life - Providing for Today and Planning for Tomorrow Utility Rate Study November 8, 2010 Page 2 of 2 renters. In many cases renters do not live in the city very long, which makes it difficult to contact them for payment. The property owners then become frustrated with staff for not being able to collect the past due bill, and the property owner is ultimately responsible for the outstanding balance on the account. If the renter is currently receiving the billing, they will continue to do so until a new renter occupies the property. At that point the city will begin sending the bill to the property owner. In addition, staff will send an electronic bill via email to the renter as a courtesy to the property owner, but the bill is the responsibility of the property owner. Thirdly, starting in 2011, the city will offer a monthly utility bill rather than a quarterly bill. In order to qualify for this option, the customer must participate in the Auto Pay (ACH) program and the actual bill will be sent electronically with no paper bill mailed to the home. This option may be attractive to some customers who prefer a monthly billing process versus quarterly. In addition, this will save the city costs of printing, processing and mailing utility bills. Rate study Attached is the entire rate study as well as the executive summary prepared by Ehler's & Associates. Jessica Cook from Ehler's will be here on Monday to review the study with the council and answer any questions. Ms. Cook will present a brief PowerPoint that highlights the key areas of the study. There is one consistent theme in this year's rate study. Staff is well aware of the difficult economic times, and therefore, has a goal of not increasing rates, hook- ups /connection fees in 2011. Staff could accomplish this goal mostly with temporary delays in capital projects. We will be reviewing these changes with the city council on Monday. There is no recommendation or action needed on this item at tonight's meeting. On December 13 , the city council will consider an amendment to the fee ordinance, which will incorporate any changes discussed at tonight's meeting. ATTACHMENTS 1. Rate Study Executive Summary f: \gregs\rate study\2010 utility study memol 1- 08- 10.docx Financial Planning City of Chanhassen Water, Sanitary Sewer, and Storm Water Rate Analysis Executive Summary November, 2010 Key Findings The City of Chanhassen has requested Ehlers & Associates to update the utility rate analysis to review rates for 2011 and beyond. We have completed the review and determined that: 1. There are no rate increases proposed for connection charges, platting fees, and area charges for water, sanitary sewer, and storm water for 2011. 2. There are no rate increases proposed for sanitary sewer and storm water utility fees for 2011. 3. There are two options presented for water rates for 2011. a. The first option is to add a fifth water usage tier with a higher rate per thousand gallons that would apply to irrigation use. By adding a fifth tier, the City could have a 0% rate increase in 2011 for the fixed charge and Tiers 1 -4. b. The second option is to keep the existing rate structure and increase the fixed charge and the usage rates by 3% in 2011. vwv ,ehlers- inc.com 9 E H L E RS Minnesota phone 651-697-8500 3060 Centre Pointe Drive LEADERS IN PUBLIC FINANCE Offices also in Wisconsin and Illinois fax 651-697-8555 Roseville, MN 5511 3 -11 22 toll free 800- 552 -1171 Water Utility Fund The City's water infrastructure is the cost driver in the water fund. The following chart shows the annual cost breakdown in 2011 and 2016 for operating and capital costs for the water system. The capital costs and related debt service are expected to increase from about one -third of all costs in 2011 to almost half five years later. 2011 Water Utility Costs 2016 Water Utility Costs • operating costs • operating costs 32% vi p 27% • depreciation ■depreciation l ir 33% 26% • capital and debt • capital and debt 35% 46% The City is building a water system to serve its residents and businesses on the hottest, driest days of summer that produce peak demand. The City has taken steps to reduce the peak demand, such as every- other day watering, but in 2009 summer water demand was 2.67 times as high as winter water demand, largely due to irrigation. To meet the increased demand for water, the City will need to invest in additional infrastructure. We have proposed two options for 2011 water rates for the City Council's consideration. Both options will allow the City to meet the demand and pay for future capital costs. Rate Option I — Add a Fifth Tier to the Residential and Irrigation Meters The City of Chanhassen currently has four tiers in its water rate structure. The 2010 tiers are: Tier 1: 0 -5,000 gallons Tier 2: 5,001 to 25,000 gallons Tier 3: 25,001 to 50,000 gallons Tier 4: Over 50,000 gallons Option I proposes the following tiers for 2011: Tier 1: 0 -6,000 gallons Tier 2: 6,001 to 24,000 gallons Tier 3: 24,001 to 48,000 gallons Tier 4: 48,001 to 99,000 gallons Tier 5: Over 99,000 gallons (would not apply to commercial customers) The changes in the first four tiers are necessary to allow residents to pay their bills monthly (the usage in 1 each tier must be divisible by three). The purpose of the fifth tier is to more directly allocate the capital costs of the water system to the users who drive the demand for infrastructure. The fifth tier would only 2 apply to residential and irrigation meters and is designed to only affect those with water leaks or those who irrigate daily or irrigate large tracts of land. The graph in Exhibit A (see page 12 of this report) shows the water usage patterns for single family residents in the City of Chanhassen in the fourth quarter of 2009. The black lines represent the five proposed usage tiers. The majority of residential customers would not have any rate increase under Option I because they use less than 99,000 gallons per quarter. Adding a fifth tier would allow the City to have a 0% rate increase for the first four tiers in 2011. The proposed water rates under Option I are shown in the following chart. Quarterly Water Usage Fees Per 1,000 Gallons - Option I 2009 2010 2011 2012 2013 2014 % Rate Increase 0.0% 2.0% 2.0% 3.0% Tier 1 $1.90 $1.00 $1.00 $1.02 $1.04 $1.07 0 -6,000 gallons % Rate Increase 0.0% 2.0% 2.0% 3.0% Tier 2 $2.37 $2.00 $2.00 $2.04 $2.08 $2.14 6,001- 24,000 gallons % Rate Increase 0.0% 2.0% 2.0% 3.0% Tier 3 $2.75 $2.49 $2.49 $2.54 $2.59 $2.67 24,001 to 48,000 gallons % Rate Increase 0.0% 2.0% 2.0% 3.0% Tier 4 $2.75 $2.89 $2.89 $2.95 $3.01 $3.10 48,000 - 99,000 gallons % Rate Increase 3.0% 3.0% 3.0% Tier 5 For Irrigation & Residential ONLY $3.61 $3.72 $3.83 $3.94 Over 99,000 gallons We have also projected the rate increases that will be necessary in future years. We are anticipating the need to increase usage rates on Tiers 1 -4 by 2% in 2012 and 2013 and 3% per year thereafter. Rates for Tier 5 are projected to increase 3% annually beginning in 2012. In addition to the usage charges above, the City of Chanhassen collects a fixed quarterly charge of $5.00. Under Option I this fixed charge would increase a penny to $5.01 in 2011 to accommodate monthly billing. Beginning in 2012, the fixed charge would increase at the same percentage as Tier 1 -4: 2% per year in 2012 and 2013, and 3% per year thereafter. Rate Option II - 3% Rate Increase on All Four Tiers A second option for water rates is to maintain the existing rate structure. To generate sufficient revenue for the water system, and the same amount of revenue as Option 1, the City will need to increase rates on the four existing tiers and the fixed meter charge by 3% annually beginning in 2011. The proposed rates for Option II are in the chart below. 3 Quarterly Water Usage Fees Per 1,000 Gallons - Option II 2009 2010 2011 2012 2013 2014 % Rate Increase 3.0% 3.0% 3.0% 3.0% Tier 1 $1.90 $1.00 $1.03 $1.06 $1.09 $1.13 0 -6,000 gallons % Rate Increase 3.0% 3.0% 3.0% 3.0% Tier 2 $2.37 $2.00 $2.06 $2.12 $2.19 $2.25 6,001- 24,000 gallons % Rate Increase - op 3.0% 3.0% 3.0% 1.10% Tier 3 $2.75 $2.49 $2.56 $2.64 $2.72 $2.80 24,001 to 48,000 % Rate Increase 3.0% 3.0% 3.0% 3.0% Tier 4 $2.75 $2.89 $2.98 $3.07 $3.16 $3.25 Over 48,000 gallons Under Option II the fixed quarterly charge would also increase 3% to 5.15 in 2011. Impact on Customers: Option 1 vs. Option II In general, the first rate option - no increases to the first four tiers and adding a fifth tier for residential and irrigation meters - will benefit most homeowners, commercial businesses that use water for their operations, and the residents of multifamily properties. Option I will be more costly for very high volume residential customers and customers with separate irrigation meters. The following charts provide sample bills for water users under the two rate options. Residential Customers Actual Option I Option II P P 2010 2011 2011 Low Water User $22.00 $21.01 $21.63 11,000 gallons /quarter Average Water User $52.49 $51.99 $53.54 26,000 gallons /quarter High Water user $704.70 $817.32 $726.14 255,000 gallons /quarter 4 Commercial Customers Actual Option I Option II (rounded to nearest $) 2010 2011 2011 Low Water User S823 $823 $843 296,000 gallons /quarter Medium Water User $3,979 $3,979 $4,099 1,388,000 gallons /quarter High Water user $22,625 $22,625 $23,304 7,840,000 gallons /quarter In 2011, under both rate options, the total water bill for low water users is expected to drop due to a change in the usage tiers. For example, in 2011 the first tier will provide 6,000 gallons of water for $6.00 while in 2010, $7.00 purchased 6,000 gallons. Water Capital Improvements The capital improvement plans for the water funds are attached in Exhibit C (see page 14 of this report). The timing of the following planned capital improvements has been changed: • Water treatment plant #2 has been postponed two years to 2018. • Painting of the Arboretum water tower was moved up three years from 2018 to 2015, and the cost was decreased 40 %. • Painting the Lake Lucy Water Storage Stand and Pipes was moved up two years from 2015 to 2013. Water Connection Fees We are recommending that water connection and platting fees increase 0% in 2011, 6% annually in 2012 and 2013, and 7% annually thereafter. Connection fees are an important source of revenue needed to expand the water system and pay for the second treatment plant. Target Cash Reserves — Water Funds The proposed rates impose the lowest increases possible that will still leave the City's water system in good financial health. The projected cash balances for the water funds are shown in following graphs. 5 Water Operating Fund Ending Cash Balance 10, 000, 000 9,000. 8,000.000 •Total Target Reserves (6 7,000.000 mos. operating expense 6,000.000 plus 15% depreciation) 5,000.000 = _ 4,000.000 3,000.000 • Ending Cash Balance 2,000. 000 1,000.000 0 a ,c , b , '$ $ ` .+c` . yo` n� tin ti c , , .? The cash balance in the operating fund has dropped below the target reserve amount because growth has slowed in the City of Chanhassen. Growth is projected to slowly increase to 170 residential units per year in 2015 and beyond. At that time, the cash in the water operating fund begins to grow and is expected to reach the target reserve level by 2020. The water connection fund will maintain adequate cash to pay for expansion of the water system. Water Trunk Fund Cash Balances 5,000,000 -- Water Treatment Plant #2 debt payments begin in 2019 4,000,000 3,000,000 2,000,000 1,000,000 0 . 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 6 Sanitary Sewer Fund The City of Chanhassen is part of the Metropolitan Council Environmental Services (MCES) regional treatment system. The single biggest expense in the operation of the sewer system is the MCES disposal charges. The City does not control the annual fees established by MCES, and those fees have increased significantly in the last three years. The average annual increase since 2009 has been 8.5 %. Year 'VICES Total Cost °/O Increase 2011 $1,520,004.15 10.98% 2010 $1,369,620.14 4.83% 2009 $1,306,563.80 9.59% In 2009 and 2010, the City increased the sewer rate 5% per year. No rate increase is proposed for 2011. The City has been able to raise rates more slowly than MCES by postponing capital improvements and using cash in the sewer operating fund. However, beginning in 2012, the City will need to begin increasing rates. Currently we are projecting 6% annual increases in 2012 and 2013, and 5% annual increases thereafter. In 2011, sewer customers will actually see their sewer bills decrease as a result of making the sewer rates compatible with monthly billing. Currently, the fixed quarterly fee of $19.45 includes up to 5,000 gallons of sewer discharge. Beginning in 2011, the same $19.45 will include 6,000 gallons. Customers' bills will decrease $3.78 per quarter in 2011. Sanitary Sewer Capital Improvements The capital improvement plans for the sanitary sewer funds are attached in Exhibit C (see page 14 of this report). The timing of the following planned capital improvements has been changed: • LB -5 Trunk Lift Station and Forcemain is scheduled for 2013. • The Lyman Boulevard Improvements have been postponed one year from 2013 to 2014. Sanitary Sewer Connection Fees We are recommending that sanitary sewer connection and platting fees increase 0% in 2011 and 4% in 2012 and annually thereafter. Connection and platting fees are an important source p g p sour a of revenue needed to expand the sanitary sewer system. 7 Target Cash Reserves — Sanitary Sewer Funds Adequate cash reserves are needed to accommodate cash flow needs, fund emergency repairs, and save for larger future capital projects. The recommended rates keep the fee increases as low as possible and still leave the City's sewer system in adequate fmancial health. The projected cash balances for the sanitary sewer funds are shown in the following graphs. The target cash reserve equals 9 months of operating expenses. The target reserve is lower for sanitary sewer than water because replacement costs are expected to be less for the sanitary sewer system than the water system. Sewer Operating Fund Ending Cash Balance 2,000.000 1,800.000 1,800,000 1.400,000 ■target Recervec(9 1,200,000 mos operating expense) 1,000,000 800,000 ' •EntlinU Gash ' BOO 000 Bnieuce 400,000 ' 200,000 ; le 0 The cash balance in the operating fund has dropped below the target reserve amount because growth has slowed and the MCES costs have increased an average of 8.5% since 2009. The above graph shows the need to implement annual rate increases beginning in 2012. Growth is anticipated to slowly increase to 170 residential units per year in 2015. At that time, the cash in the sewer operating fund begins to grow and is expected to reach the target reserve level by 2017. The sewer connection fund is also expected to have adequate cash to pay for the capital costs of expanding Chanhassen's sanitary sewer system. Sewer Trunk Fund Cash Balance 3,500,000 3,000,000 im 2,500,000 !Ili MI , , Elm 2,000,000 Iloil , , , , , , mil 1,500,000 1,000,000 0 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 8 Storm Water Fund There is a 0% rate increase proposed for storm water. The following chart shows the proposed rates for storm water for 2011 through 2015. The residential quarterly storm water fee remains below the metro area average of approximately $11.00 per quarter. Surface Water Utility Fees for Single Family Residential (Before Credits for On-Site Ponding and Outlets) 2010 2011 2012 2013 2014 2015 Quarterly Fee - Single Family $ 8.77 $ 8.76 $ 9.02 $ 9.29 $ 9.76 $ 10.25 Annual Increase in fixed storm water charge 0.0% 2.0% 3.0% 3.0% 3.0% Area Charges - Single Family Residential Water Quality Fee Fee per acre 2,540 2,540 2,667 2,800 2,940 3,087 Annual increase 0% 5% 5% 5% 5% Water Quantity Fee Fee per acre $ 3,640 $ 3,640 $ 3,822 $ 4,013 $ 4,214 $ 4,424 Annual increase 0% 5% 5% 5% 5% Total Area Charges Per Acre - Single Family $ 6,180 '$ 6,180 $ 6,489 $ 6,813 $ 7,154 $ 7,512 Annual increase - Before Credits 0.0% 5.0% 5.0% 5.0% 5.0% The projected cash balances will be adequate to meet on -going storm water expenditures, which include pond maintenance, street reconstruction projects, implementing the surface water management plan, and acquiring land for future storm water retention. We also expect capital needs will grow as the state develops more regulatory requirements relating to storm water run -off and contaminated storm water ponds. The planned capital improvements are shown in Exhibit C (see page 14 of this report). Storm Water Fund Ending Cash Balance 4,500,000 4,000,000 3,500,000 3 • ,000,000 • 2 • ,500,000 • •Target 2,000,000 ; • • : • • Cash 1,500,0 • .. Balance 1,000,000 500,000 0 2007 2008 2009 2010 2C11 2012 2013 2014 2015 2016 2017 2018 9 Putting It All Together: The Utility Bill The chart below shows a sample utility bill for three residential customers who use varying amounts of water. Projected 2011 Water and Sewer Bills Actual 2011 Proposed 3% Rate Fifth Tier Added Increase 2010 OPTION I OPTION I1 Average Quarterly Residential Bill 26,000 gallons water and 26,000 gallons sewer. Water 52.49 51.99 53.54 Sewer 98.83 95.05 95.05 Storm 8/7 8/6 8/6 Total 160.09 155.80 157.35 Increase /(Decrease) from 2010 -2.7% -1.7% Sample Bill for Lower Water User 11,000 gallons water and 8,000 gallons sewer Water 22.00 21.01 21.63 Sewer 30.79 27.01 27.01 Storm 8/7 8/6 8/6 Total 61.56 56.78 57.40 Increase /(Decrease) from 2010 -2.0% -1.0% Sample Bill for Higher Water User 255,000 gallons water and 26,000 gallons sewer Water 704.70 817.32 726.14 Sewer 98.83 95.05 95.05 Storm 8.77 8/6 8/6 Total 812.30 921.13 829.95 Increase /(Decrease) from 2010 13.4% 2.2% Cash Balances and Financing Capital Improvements The proposed rates will provide sufficient revenue to pay routine operating expenses, pay for capital improvements to upgrade and expand the system, and provide prudent cash balances. Adequate cash pg p Y p p q balances allow the City to: Y • Weather changing circumstances without rapidly increasing rates; • Use cash to a for many capital improvements and reduce the frequency of borrowing; and to p ay Y P p q Y g� • Maintain its AAA bond rating from Standard and Poor's. The study assumes that the City will finance utility improvements if they exceed more than $1 million and there is not sufficient cash available. No financing is expected for storm water improvements or utility improvements made in connection with street replacement projects. In practice, the City staff will continue to use the rate study's financing plan as a guide and, in consultation with its independent financial advisor, consider when and how much debt to incur in any given Yg year. Y 10 Summary The economic and real estate crisis continues to affect the City of Chanhassen. The City is facing reduced utility revenues from connection fees and area charges, and slower revenue growth than previously anticipated from user fees. Furthermore, the City's ability to pass along cost increases to its customers is constrained. The City staff and Ehlers are recommending a multi - pronged approach to manage the financial squeeze on the utility funds: 1. Postpone capital improvements when feasible. 2. Use cash balances in the utility operating funds. 3. Proposed no increases to rates for the storm water and sanitary sewer utilities in 2011. 4. Consider two rate options for the water utility that minimize rate increases. a. Option I — add a fifth tier to the water rate structure for residential and irrigation meters that would apply to peak summer water use. Keep all other tiers and the fixed charge at a 0% rate increase. b. Option II — maintain four rate tiers and increase all water utility fees by 3% in 2011. The City's utility funds continue to be well managed, and the City's utility rates are competitive in the region. A chart comparing Chanhassen's proposed 2011 rates to other communities' 2010 rates show that, even with a proposed increase for water, Chanhassen maintains relatively affordable utility rates (see Exhibit B on page 13). 11 Exhibit A — Graph of Residential Water Usage (4 Quarter) AppendixA 600 Residential Single_Family_Water Usage - Proposed Tiers! for Option 1 Tierl Tier2 500 — - 400 Tier 3 Tier 4 Proposed Tier 5 Over 99,000 gallons per quarter 300 - - -- — - -- -- — - - 200 — — — - 100 0 _ _ 11J 111. 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Total 2010 Water, Sewer, and Storm Water Charges per Quarter for Residential Users $180.00 $160.00 $140.00 $120.00, — $100.00 ; - $80.00 - -- $60.00 — $40.00 -- $20.00 $0.00 City of Burnsville City of City of Edina City of Minnetonka City of Shakopee City of St. Louis Chanhassen Park ❑Water ❑Sewer ❑Storm Water 13 Exhibit C — Capital Improvement Plans Water Operating Fund Water Trunk Fund Sanitary Sewer Operating Fund Sanitary Sewer Trunk Fund Storm Water Fund 14 -iSg 0 0 0 r O O 0 a 1 „i O O N N ,13 M M M N O O O N S O O O . N O N CD N N r O1 M M w ao o sr 0 0 0 c r' ° O ° n O n m v M M M M M .N 0 o co O O o N N m to M M ID 0 0 ° _ °o _ °o o 0 N O O O N M O O N r O to r 0. rD M M M M M p O O O O O O O n O O O OD O N N o M M M M a N o o O O w e O O r a • O N 10 N r n m M to M M M M N 0 O o N O P N 7 N a N N N CO fD M M M M M N O 0 ' 0 O I N N V O sr 00, m r r r to M M M M M t°n o vri 0 0 0 0 ✓ r N ° ' r r N N U) C M 69 EA M to 69 M w N p O O O IL lV O O O L sr V 4 0 co 4... 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