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Capital Improvements Program and Impact Fee Analysis Year 2011 Black and White copyCITY OF SCHERTZ WATER AND SANITARY SEWER SYSTEM :�f1ll:- -u • • • ut ► • • •I- • • AND IMPACT FEE ANALYSIS YEAR 2011 r+ City of Schertz Engineering Department August 26, 2011 TABLE OF CONTENTS L OVERVIEW 2 A. AUTHORITY 2 B. CAUSE 2 C. LAND USE ASSUMPTIONS 2 D. POPULATION ASSUMPTIONS 2 E. CRITERIA 3 11. CAPITAL IMPROVEMENTS PLAN 3 A. WATER SYSTEM MPROVEMENTS 4 B. WASTEWATER SYSTEM MPROVEMENTS 5 III. IMPACT FEE DERIVATION. 6 IV. IMPACT FEE CALCULATION 12 TABLES 1 -17 . 13 EXHIBITS 28 APPENDIX A 36 APPENDIX B 75 1 CITY OF SCHERTZ WATER AND SANITARY SEWER SYSTEM CAPITAL IMPROVEMENTS PROGRAM - IMPACT FEE ANALYSIS - YEAR 2011 I. OVERVIEW A. AUTHORITY Pursuant to the Local Government Code, Chapter 395, a municipality proposing to assess impact fees shall submit to the Executive Director of Texas Commission of Environmental Quality (TCEQ) an application for review. Subsequent amendments to this chapter have established a requirement that once assessed, these fees, along with the Land Use Assumptions and Capital Improvements Plan be reviewed at least every five- years. This report serves as the City of Schertz ( "City ") application for review of revised impact fees for the City's water and sanitary sewer system that City owns and operates. Current impact fees for these systems are set at $3,288.00 (Water) and $1,364.00 (Sewer) per Living Unit Equivalent (LUE). These fees were set by ordinance in 2006. The City proposes to decrease the water impact fees to $2,934.00 and increase the sewer impact fees to $1,668.00 per residential connection Living Unit Equivalent (LUE). B. CAUSE The Local Government Code allows for a five -year cycle for re- evaluating the fees, the present need for infrastructure additions has caused the need for a review and subsequent fluctuation in the assessments. C. LAND USE ASSUMPTIONS. Population projections and current zoning maps are presented in Tables 1-5 and Exhibit 1 "Current Zoning Map — Yr 2011 ". D. POPULATION ASSUMPTIONS Traditionally, population projections for cities have been made using the most current Texas Water Development Board (TWDB) projections. The projections shown in Tables 1 -3 were taken from the 2011 TWDB Population Projections report. This information was updated to show the actual population in years 2005 and 2010. This report uses the TWDB published "2011 Regional Water Plan — City Population Projections for 2010 - 2060" and "2011 Regional Water Plan — City Water Demand Projections for 2010 - 2060." These are included as Appendix A & B. The TWDB information is extremely conservative and does not 2 accurately reflect the growth experienced by the City during the past five years, nor the projected growth anticipated during the next five year period. • TWDB Projected Population Year 2000 - 18,694 • Actual Population Year 2000 - 24,963 • TWDB Projected Population Year 2010 - 26,856 • Actual Population Year 2010 - 33,719 • TWDB Projected Water Demand Year 2011 - 5.96 Million Gallons per Day • Actual Water Demand Year 201 1 - 6.50 Million gallons per Day E. CRITERIA Through evaluation of existing facilities capacity, we have defined facilities improvements and /or expansions required to meet fiiture needs. Future capital expenditures to serve new development may be recovered through an impact fee but must be defined in a capital improvements plan. The Capital Improvements Plan, developed included in this report is based on a ten year planning horizon due to the explosive nature of the growth of the city. The plan includes only those items eligible for recovery under the law. Eligible items include: • Construction Costs • Surveying, Engineering and Planning fees • Land Acquisition Costs • Principal and Interest on Bonds • Fees Paid to Prepare an Impact Fee Program Ineligible costs, which may not be recovered through an impact fee, include: • Improvements to Existing Facilities to Meet Regulatory Standards • Upgrading to Service Existing Development • Operation and Maintenance Costs • Facilities Not in Capital Improvements Plan • Dedicated Land for Parks • Costs a Developer is Already Required to Pay by Other Valid Ordinances • Fees Collected and Placed in Trust to Reimburse Developers for Oversized Facilities 111, CAPITAL IMPROVEMENTS PLAN Planning for additional water and wastewater service needs is included in this report and consideration is made for proposed and new regulatory requirements as directed by the State of Texas and the EPA. Planning will play a vital part in City's ability to meet future demand without discouraging development. Key areas that must be considered when planning to accommodate this demand include TCEQ regulations, financing, service area, land use development projections, and corresponding flow analysis. A. WATER SYSTEM IMPROVEMENTS 1. The City's Water CCN and service area is shown in Exhibit 2 "Water Service Area — Yr 2005 ". Planning assumptions are presented in Table 6 for the Years 2011, 2016 and ultimate build -out. 2. The City's present system receives water from the Schertz Seguin Local Government Corporation at the East Live Oak Water Plant into a 7.5 Million Gallon (MG) storage tank and a 1.5 Million Gallon (MG) storage tank (the City pumped an average of 6.50 Million Gallons per Day (MGD) during 2011). From there, water is pumped to four elevated storage tanks Iocated at FM 2252 and FM 3009, IH35 at Freeway Manor, East. Live Oak Water plant and to Northcliffe (Exhibit 4). From these tanks water is then distributed to the entire City. In some cases water is pumped four miles to tanks and distributed more than six miles from the tanks. 3. Due to the growth away from the central portion of the City, it was necessary to establish independent, but mutually supporting, zones for supporting average daily flows, pressure maintenance and fire flow. 4. The City is divided into four Quadrants (Exhibit 4) with the following infrastructure; a. The Northwest (NW) Quadrant is served by the facilities at the East Live Oak Plant; a 7.5 MG ground storage tank and a 1.5 MG ground storage tank with the pumping capabilities and ancillary improvements as shown in Exhibit 5. This quadrant facility will still be the primary receiving point for water from the SSLGC and the primary delivery facility to the other quadrants and potential future customers. b. The Southwest (SW) Quadrant is served by pumping modifications and a 1.5 MG elevated storage tank as shown in Exhibit 6. This facility will serve the southwest corridor and honor the emergency interconnect with Randolph AFB whose needs could reach 1 MGD. c. The Northeast (NE) Quadrant is served by a 1 MG ground storage tank with pumping modifications as shown in Exhibit 7, which receives water from the NW Quadrant facility and pumps it to the 1 MG elevated tank above Scenic Hills. This facility serves the northeast corridor and will honor the potential interconnect with other customers. d. The Southeast (SE) Quadrant is served the 1.5 MG elevated tank serving the SW Quadrant presently. However, it will be served in 4 the future by a new pumping facility, a new 3 MG ground storage tank, and a new 1 MG elevated tank at an undetermined location as shown in Exhibit. 8. This facility will receive water from an interconnection with the SSLGC 36" transmission main from Nixon. This facility will serve the southeast corridor and honor the potential interconnect with other customers. e. Associated transmission and distribution mains and quadrant interconnects. f. Additional interconnects to feed the 11-1 35 corridor and the northeast quadrant of the City. 5. Daring the current reporting period, 2005 thru 2010, the City collected $5,695,443.94 in Water Impact Fees. During this period, the City constructed the following facilities using a combination of collected fees and Bond proceeds: a. Live Oak Plant (NW Quad) Improvements $3,569,135 b. NE Quad Elevated Tank and Pump Sta $3,532,899 c. SW Quad Elevated Tank $2,758,744 d. 16" Transmission Main $ 635,936 e. Various Distribution Mains $ 347,011 $10,843,725 6. Future Facilities included in the current Plan are as follows; a. SE Quad Pump Station $1,688,289 b. SE Quad GST $1,100,000 c: SE Quad Elevated Tank $1,250,000 d. NE Quad Distribution Mains $1,600,000 e. SE Quad Distribution Mains $1,700,000 IH 10 Corridor Distribution Mains $1,000,000 $8,338,289 B. WASTEWATER SYSTEM IMPROVEMENTS 1. The City's Wastewater CCN and service area is shown in Exhibit 3, "Sewer Service Area ". Planning assumptions are presented in Table 7 for the Years 2011, 2016 and ultimate build -out. 2. The City's sewer system is presently made up of sewer lines within the various subdivisions discharging into a collector system owned and maintained by the Cibolo Creek Municipal Authority (CCMA). This collector system transports wastewater to the CCMA regional treatment plant located south of FM 78 adjacent to Cibolo Creek. Each connection to the CCMA system requires payment to them of an impact fee in the amount of $1800.00. 3. The Town Creek Sewer Project added a collection facility for areas of the northwestern region the city. The project added a lift station at Friesenhalrn Lane near 482 and a lift station near the Northcliffe subdivision on IH 35. These lift stations are joined by a force main and an additional force main and gravity sewer connects the Northcliffe lift station to an existing CCMA lift station on FM 78, 4. A treatment plant built off of FM 1518 close to the Woman Hollering Creek anchored by a 2500 unit Planned Unit Develop has been built and turned over to the city. This gives accessibility to sewer and allows for growth in the southern region of the city. Also a lift station has been built to service this treatment plant. The City is working with CCMA to cause construction of a regional treatment plant in the southern part of Schertz. This plant will be constructed by CCMA. 4. In that interconnection will be prevalent and the costs are similar in the different areas, the City has assumed a service area wide approach to establishing impact fees for wastewater service. 5. During the current reporting period, 2005 thru 2010, the City collected $2,577,179.08 in Sewer Impact Fees. During this period, the City constructed the following facilities using a combination of collected fees and Bond proceeds: a, Town Creek Sewer Phases I & II $ 4,900,000 6. Future Facilities included in the current Plan are as follows: a. Final South Sewershed Master Plan b. Town Creek Phase III c. Town Creek Phase IV d. Woman Hollering Creek STP PH II d. South Schertz Trunk Lines and Lift Station III. IMPACT FEE DERIVATION $ 15,000 $ 659,126 $ 1,000,000 $ 600,000 $ 9,600,000 $11,674,126 A. By definition, an impact fee shall not exceed the amount determined by dividing the cost of capital improvements or facility expansions, including the cost of impact fee report preparation, necessitated and attributed to new development by the total number of projected new service units. For purposes of n impact fee derivation, the residential service connection also referred to as an equivalent dwelling unit (EDU) has been assigned as the defined service unit. B. Connection means a standardized measure of consumption, use, generation, or discharge attributed to an individual unit of development calculated in accordance with generally accepted engineering or plaruung standards. As defined in CITY OF SCHERTZ contracts for sewerage transportation, treatments, and disposal, connection refers to each single- family residential unit, or equivalent measured in EDU's, cormected to the customer's local sewage facilities. C. Triggered by a connection, the City Of Schertz collects a fee to recover capital expenditures for new development. Fees are collected at the time of issuance of permit, or at the time of connection to the water or wastewater system. D. EQUITY RESIDUAL APPROACH TO CAPITAL RECOVERY FEE CALCULATION. This methodology provides that each new customer contributes "equity" in the utility systems comparable to that owned by other existing customers. Once that equity payment is made through the capital recovery fee, each new customer would pay the remainder of his or her capital- related cost of service through rate payments equal to the rate payments of existing customers. This minimizes cross - subsidization (one customer group paying for the costs of another) and provides for Rill cost recovery for the utilities. Table A presents a conceptual illustration of the Equity Residual methodology, and will be referenced throughout this section. 1. Components of Utility Capital Cost of Service a. For purposes of this discussion, costs are defied for a common measurement of capacity and demand; that service unit of measurement is "Living Unit Equivalent" or LUE. Each service unit has a capital cost associated with the comprehensive group of facilities required to provide service (treatment, transmission, pumpage, storage, etc.). This value is the Construction Cost of Service (see Table A). b. If a facility is funded through bonding, however, three additional costs are incurred for each service unit of demand: bonding costs, interest costs, and tunes coverage costs. Bonding costs for bond issues are statistically small -- in the neighborhood of 3% to 10 %. On the other hand, interest costs can effectively double or triple costs, depending on the current interest rate and term of the bonds. Tithes coverage, although an expense for rate payers, is not actually a cost of service; these revenues are excess fiends which can be carried over from one year to another to finance system 7 improvements, pay overhead and maintenance costs, or meet other expenses. Therefore, times coverage is not included as a cost of service element in the Equity Residual model, and is not shown on Table A. 2. Methods for Recovering Costs of Service. Generally speaking, costs can be financed through either the public sector or the private sector. Financing through the public sector is primarily accomplished by bonding projects and recovering costs through the rates. Financing through the private sector occurs when a developer or builder contributes assets, either facilities or cash, and passes along this cost (including carrying and financing costs) to the ultimate buyer or renter of the development. A capital recovery fee is one mechanism for private financing; other examples are developer contribution, developer cost participation in utility facilities, etc. Whether private or public financing is more cost - effective is determined by many variables, including interest rates, term, mark -up percentage, bonding costs, etc. The Equity Residual methodology recognizes and utilizes the concept that all customers pay part or all of their cost of service through public- sector financing by virtue of the fact that they pay rates to retire debt service. The central tenet of the Equity Residual approach is that future utility customers will partially pay for their own costs of service through rate payments in an amount typically equal to the remaining debt service payback for existing customers. The remainder of their costs of service, or the "residual' amount, will be subject to payment through a capital recovery fee. Thus, future customers will be permitted to pay a portion of their costs of service through the rates, similar to existing customers. However, existing customers will not, in the long - terra, bear the cost of facilities for future customers. Thus, the Equity Residual approach allows future customers to pay their costs of service partially through the public sector (with rate payments equal to existing customers) and partially through the private sector (through a capital recovery fee). The following sections provide a more detailed discussion of this conceptual approach. 3. System Equity and Remaining Indebtedness for Existing LUE Demand. On the left side of Table A is a representation of the Cost of Service for each unit of existing demand and the method for paying those costs. Theoretically, each existing unit of service has a fiull cost associated with it, consisting of construction costs, bonding costs, and interest costs. (Prior to the adoption of capital recovery fees, construction costs were fully bonded and thus subjected to bonding and interest costs.) Customers in this group have, for the most part, been permitted to pay their full Cost of Service through the rates without an up -front cash payment of costs, as shown in the second bar for existing service demand. The second left -hand bar is divided into two segments: system equity and remaining indebtedness. Existing customers, on the date a capital recovery I fee ordinance is adopted, will have theoretically paid some portion of their fiill Cost of Service through past rate payments, Thus, they have a certain amount of "equity" in the existing utility system. This is shown on the bottom portion of the second bar. Existing customers also have a corresponding amount of remaining indebtedness to be paid through future rate payments over the next 25 -30 years. This is depicted on the top portion of the bar. These two payment components -- equity and remaining indebtedness -- thus describe the Total Payment of each customer's Full Cost of Service for existing service unit demand. 4. Calculation of Cost of Service for Future Service Unit Demand. On the right side of Table A is a depiction of the Cost of Service for firture LUE demand. The Cost of Service for firture customers will be higher than that for existing customers due to inflation and possibly due to technological and regulatory changes. If these new facilities are bonded, they will have not only construction- related costs, but also bonding and interest costs (similar to those for existing customers). These latter costs will also be higher than comparable costs for existing customers because bonding and interest costs are directly proportional to the higher new construction costs. E. FAIRNESS BETWEEN CUSTOMERS THROUGH THE RATE STRUCTURE. A key concept in the Equity Residual methodology is that rate payments of future customers are dedicated to retirement of debt for facilities for future needs, while rate payments of existing customers are used to pay for facilities for existing needs. Application of this concept has two primary results: • Cross- subsidization between existing and firture customers is minimized; and • Future customers enter the utility systems on an equal basis with existing customers. This approach is affected by purposefully setting the total payback indebtedness of future customers to the same amount as the total payback for existing customers. Thus, in Table A, the remaining indebtedness for each service unit of existing demand is the same as for each service unit of future demand. In order to accomplish this equalization, however, firture customers will have to submit a "system equity" payment to contribute their remaining Cost of Service and to put them on a par status with existing customers (see discussion below). F. EQUITY RESIDUAL AND EQUITY CONTRIBUTION FOR FUTURE LUE DEMAND, The second bar in the right -hand diagram of Figure 4 -1 shows the payment methods for firture customers. At the top of the bar is indebtedness equal to that of existing customers. This indebtedness includes construction and bonding costs E (both principal payments) and interest payments. Below the indebtedness payback are shown the components of the remaining Cost of Service, or that portion which must be paid to achieve fairness through the rate structure. This portion of the Cost of Service has been designated "System Equity ", similar to past debt payments by existing customers. System Equity has three components, as do all Costs of Service: construction cost, bonding cost, and interest cost. If the construction costs in the System Equity portion of the Cost of Service were to be paid in cash, corresponding bonding and interest costs would be avoided. The remaining construction costs, or "residual ", would be the actual payment necessary to achieve fairness -- or equity -- in the utility system. This residual cost is the amount which should be subjected to payment in a capital recovery fee. In sum, the Equity Residual approach to firnding improvements will result in a payment for Cost of Service for fixture service demand which has the following characteristics: 1. A portion of the Cost of Service will be paid through the rates; the total payback on this portion of the Cost of Service will equal that for total capital indebtedness for existing customers reflected in the rate structure; 2. New customers will contribute equity status in the utility system by paying the remaining, un- bonded portion of construction costs ( "residual ") through a capital recovery fee; 3. Bonding and interest costs associated with residual construction costs will be avoided. 4. This approach will result in full cost recovery for growth from payments made by fixture customers. G. POTENTIAL BENEFITS OF THE EQUITY RESIDUAL APPROACH. As shown in Table A, the Equity Residual approach to calculating the capital recovery fee has some benefits for all parties. Although this method does not achieve absolute equity among customers, it is designed to minimize cross - subsidization and thereby provide appropriate benefits to all affected parties. H. EXISTING CUSTOMERS. First of all, the Equity Residual approach benefits existing customers because they would pay for their own costs of service and would not substantially subsidize new customers. Therefore, fixture rate increases will generally reflect only renovation and operations costs and not growth - related system expansion costs. It is important to note, however, that a stabilization of the rates is a benefit which will likely be achieved over several years. It is very possible that there will be near -term rate increases because of the immediate need or timing for system expansion or due to prior contract cormnitments. Moreover, the short period in which capital recovery fee revenues have been generated may necessitate bonding 10 while awaiting fee revenues to accumulate; i.e., some system improvements may be necessary before sufficient building permits can be issued and fees collected. This is especially true because of the grandfathering provisions of CHAPTER 395. I. FUTURE CUSTOMERS. Future customers will also be benefited by the Equity Residual approach to fee calculation. Although these customers will be required to make partial cash payment for utility service, their overall cost of service will be less than it would have been if the entire amount had been bonded and subjected to interest costs. Thus, even though construction costs for new facilities are higher than those for older facilities (due to inflation and other changes), new customers will not realize that entire cost increase. This occurs because bonding and interest costs are avoided on a portion of the construction costs. Thus future customers would enjoy lower rates than would have otherwise been required to pay their cost of service and would realize an overall cost savings in spite of high construction costs. It is important to note, however, that these overall cost savings are achieved by private financing of the utility. Thus, the fixture customer must either have cash for fee payment or must finance the fee, and thus incur associated interest costs through the private sector. However, mortgage interest payments (which includes in the home cost the capital recovery fee payments) made through the private sector are currently deductible items on federal income tax payments. Because a portion of interest payments could be deducted on income tax returns (while utility rate payments could not), fixture customers would not experience the firll effect of interest costs applied to capital recovery fee financing. J. THE UTILITY. The utility also receives benefits Corn the Equity Residual model. This methodology will produce a relatively predictable source of revenues and will thus facilitate cost- and service - effective plamring by the utility. Although this model is not intended to totally avoid bonding of facility improvements, it will reduce the need for bonding. In addition to the economic benefits to the utility, the Equity Residual method is designed to meet the tests of reasonableness and to operate within the defined legal parameters of CHAPTER 395. As a result, all customers would be treated on an equitable basis with fee schedules based on cost of service. This approach, therefore, should provide the utility with a legally defensible methodology, which will protect the capital recovery fee revenue source in the event of legal challenge. Table A provides a summary of the Equity Residual model's responsiveness to tests of reasonableness and legal constraints. 11 EVALUATION FACTOR COMMENTS Protection of Community Basis in cost of service and comprehensive planning documents of the City; Health, Safety, and designated for facilities required for the protection of the community health, safety, Welfare and welfare. Basis in Cost of Service Based on proportional cost of service calculation, with a portion of the cost paid through the rates and the remainder through capital recovery fee. Among Costs are leveled among classes due to administrative and data limitations, Classes However, cost leveling of this type has long historical precedent. The only likely inter -class inequities are those due to administrative and technical limitations. Equity Between Generations After an initial adjustment period, the net effect would be to substantially eliminate (Existing vs. cross - subsidization between customers who enter the utility system at various Future points in time. Customers) Punitive Effects No punitive effects, other than the unavoidable impacts caused by administrative limitations. Demand The need for facilities supported by capital recovery fee is documented; the fee is Nexus based on CIP and cost of service consistent with CHAPTER 395 requirements, Rational thus the fee is proportional to demand. Nexus The fee is based on cost of service; thus, benefits received are proportional to fees Benefit Nexus paid. The utilities are established as integrated systems such that fees do not need to be geographically dedicated in order to establish the benefit nexus. Cost of service calculation as required by CHAPTER 395 is somewhat complex; Administrative Feasibility requirements of CHAPTER 395 may require detailed accounting. However, actual administration of fee collection activities can be simple and efficient. Growth Does not require a full cash payment for growth - related costs, but does essentially Effects eliminate cross - subsidization. May require public education efforts. Rate Effects Expected to stabilize rates (related to system - expansion debt retirement) after initial adjustment period. Potential Community Economic effects are generally predictable and will change gradually over time, Concerns Economic provided city projections of future growth are relatively accurate. Probability for Impacts prohibitively high fee is reduced because a portion of costs is paid through utility rates Legal Specifically designed to respond to external legal constraints, both those are Vulnerability contained in CHAPTER 395 and those implied by recent case law. TABLE A: RESPONSIVENESS OF EQUITY RESIDUAL APPROACH TO TESTS OF REASONABLENESS AND LEGAL CONSTRAINTS IV. IMPACT FEE CALCULATION The impact fee calculations are performed in tables 1 -17 that follow this section. 12 rt ri rl co ro p Y' i W �A P N E-[ U tl N H y b N H n o C N ri F � Z mF C R 0. 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