“fairness & equity” in watermedia.csmfo.org/.../03/fairness-equity-in-water-and... · got a...
TRANSCRIPT
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1
California Society
of Municipal
Finance Officers
February 19, 2014
“Fairness & Equity” in Water
and Recycled Water Rates:
What’s Behind the Curtain?
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2
OR
California Society of Municipal Finance Officers
“The Yellow
Brick Road to
the Water Rate
Land of Oz”
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3
OVERVIEW OF PRESENTATION
The Cast of Characters:
Behind the Curtain of Water Rates
1. Greg Clumpner/Director NBS Government Finance Group
(The Rate Guy)
2. Kelly Salt/Partner Best Best & Krieger (The Lawyer … & Star of the Movie “Salt”)
3. Kevin Mascaro/Finance Director Western Municipal Water District (The Agency Guy)
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4
The Rate Guy’s Perspective…
Part 1. Some Basic Water Rate Questions:
Behind the Curtain of Water Rates
If you Haven’t
Got a Brain
about Water
Rates – This is
the Right
Session for
You!!!
Are My Rate Defensible?
Are My Cost Allocations “Reasonable”?
How Broad Can My Customer Classes Be?
Can I Use Ad Valorem Taxes or Non-Rate
Revenue to Subsidize One Area vs.
Another?
What Can My Board/Council do to Ensure
Rates are “Fair & Equitable”?
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5
Part 2. – Industry Practices and Standards
How Should Tiered Rates Be Set?
What are Acceptable Differences in Rate
Impacts on Individual Customers?
Behind the Curtain of Water Rates
The Rate Guy’s Perspective…
Part 3. – Taking a Peak “Behind the Curtain”
If “Justice is Blind” is Fairness & Equity
in Water Rates “Blind”? Should it Be?
What/How Inequities Might Occur?
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6
Part 1. Some Basic Water Rate Questions
Behind the Curtain of Water Rates
Are My Rates Defensible? (…What makes rates “defensible”?)
Follow the
Yellow-Brick
Road (of Industry
Standards)!
1. Following Industry Standards: • AWWA Principles of Water Rates, Fees, and Charges (Manual M1)1
• Principles of Public Utility Rates (Bonbright)2
2. Considering Recent Court Decisions: • City of Palmdale vs. Palmdale WD
• Griffith vs. Pajaro Valley WD
• SJC Taxpayers vs. San Juan Capistrano
• Morgan vs. Imperial Irrigation District
• Yolo Ratepayers vs. City of Davis
3. Preparing a Comprehensive Rate Study
1. Principles of Water Rates, Fees, and Charges, Manual of Water Supply Practices, M1, AWWA, fifth edition, 2000.
2. James C. Bonbright; Albert L. Danielsen and David R. Kamerschen, Principles of Public Utility Rates, (Arlington, VA: Public
Utilities Report, Inc., Second Edition, 1988), p. 383-384.
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7 Behind the Curtain of Water Rates
What is a “Comprehensive Rate Study”?
1. Financial Plan/
Revenue
Requirement
Analysis
2. Cost-of-
Service
Analysis
3. Rate Design
Analysis
Step 1: Financial
Plan/ Revenue
Requirements
Compares current
sources and uses of
funds and determines
the revenue needed
from rates and project
rate adjustments.
Step 2: Cost-of-
Service Analysis
Allocates the revenue
requirements to the
customer classes in a
“fair and equitable"
manner that complies
with Prop 218.
Step 3: Rate
Design Considers
what rate structure
alternatives will best
meet the Utility’s
need to collect rate
revenue from each
customer class.
Part 1. Some Basic Water Rate Questions (cont.)
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8
Part 1. Some Basic Water Rate Questions (cont.)
Behind the Curtain of Water Rates
Are My Rates Defensible? – Industry Standards:
AWWA’s Manual M1 presents a simplified list of the attributes of a
sound rate structure, which apply to both water and sewer rates:
• …easy to understand from the customer’s perspective.
• …easy to administer from the utility’s perspective.
• …promote the efficient allocation of the resource.
• …be equitable and non-discriminating (i.e., cost based).
• …have continuity in the rate making philosophy over time.
• …consider other utility policies (e.g., conservation ).
• …should consider the customer’s ability to pay.
• …should provide month-to-month and year-to-year revenue stability.
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9 Behind the Curtain of Water Rates
Are My Rates Defensible?
AWWA’s Manual M1 states1:
“…the costs of water rates and charges should be recovered from classes of customers in proportion to the cost of serving those customers. However … other considerations may be equally or more important in determining rates and charges and may better reflect emerging objectives of the utility or the community it serves.”
and
“…pricing policies may support a community’s social, economic,
political, and environmental concerns.”
1. Principles of Water Rates, Fees, and Charges, Manual of Water Supply Practices, M1, AWWA, pages XIX and 79, fifth edition, 2000 (underline added).
Part 1. Some Basic Water Rate Questions (cont.)
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10 Behind the Curtain of Water Rates
Are My Cost Allocations Reasonable?
Different Types of Cost Allocations:
1. Between Customer Classes (C.O.S. Issue)
2. Between Fix vs. Variable Costs (C.O.S. Issue)
3. Between Individual Customers (i.e., within a
customer class) (Rate Design Issue)
Part 1. Some Basic Water Rate Questions (cont.)
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11 Behind the Curtain of Water Rates
Are My Cost Allocations Reasonable?
1. Cost Allocations Between Customer Classes:
• Residential
• Multi-Family
• Commercial/
Industrial
• Irrigation
Peaking Patterns by Class
100%
120%
140%
160%
180%
200%
220%
240%
Jan Feb Mar April May June July Aug Sept Oct Nov Dec
% o
f Low
est
Mo
nth
'
Single Family
Commercial
Multi-Family
Part 1. Some Basic Water Rate Questions (cont.)
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12 Behind the Curtain of Water Rates
Are My Cost Allocations “Reasonable”?
2. Allocations Between Fixed and Variable
Costs:
Part 1. Some Basic Water Rate Questions (cont.)
Total
Revenue
Requirements
Variable Costs
Fixed Costs
Capital Improvements, Debt Service,
Salaries & Benefits
Energy, Purchased
Water, Treatment Chemicals
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13 Behind the Curtain of Water Rates
How Allocations Between Fixed & Variable Costs Should be Done:
Total Revenue Requirements
Variable Costs
Fixed Costs
Fixed Charges
Volumetric Charges
Revenue Stability
Part 1. Some Basic Water Rate Questions (cont.)
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14 Behind the Curtain of Water Rates
Are My Cost Allocations Reasonable?
3. Between Individual Customers Within a
Customer Class (e.g., Residential)
$6
6.3
7
$7
1.9
5
$7
7.5
3
$8
3.1
1
$8
6.4
6
$8
8.6
9
$9
4.2
7
$9
9.8
5
$1
05
.43
$111
.01
$11
6.5
9
$0
$10
$20
$30
$40
$50
$60
$70
$80
$90
$100
$110
$120
$130
$140
$150
$160
$170
$180
5 15 25 35 41 45 55 65 75 85 95
Bi-
Mo
nth
ly B
ill
Bi-Monthly Water Consumption (HCF)
Bi-Monthly Bill, Proposed Rates
Avg. ANNUAL Single-Family Residential
(1" meter) Consumption is 41 HCF/bi-monthly
$3
3.7
7 $4
6.7
9 $5
9.8
1 $7
2.8
3
$8
0.6
5
$8
5.8
6 $9
8.8
8 $111
.90
$1
24
.92
$1
37
.94
$1
50
.96
$0
$10
$20
$30
$40
$50
$60
$70
$80
$90
$100
$110
$120
$130
$140
$150
$160
$170
$180
5 15 25 35 41 45 55 65 75 85 95
Bi-
Mo
nth
ly B
ill
Bi-Monthly Water Consumption (HCF)
Bi-Monthly Bill, Proposed Rates
Avg. ANNUAL Single-Family Residential
(1" meter) Consumption is 41 HCF/bi-monthly
Part 1. Some Basic Water Rate Questions (cont.)
70% Variable/30% Fixed
30% Variable/70% Fixed
If 100% Fixed
Rates were used
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15 Behind the Curtain of Water Rates
How Broad Can My Customer Classes Be?
Part 1. Some Basic Water Rate Questions (cont.)
Meter Sizes Can Also
be Used as Customer
Classes
• Do they reflect groups of similar types of customers?
Single-Family Residential
Multi-Family Residential
Commercial/Industrial
• Do they reflect groups of customers with similar consumption patterns:
Peak Demands (i.e., use of system capacity)
Total Annual Water Use
• Special Types of Customer Classes:
Inside” vs. “Outside” Customers
Wholesale vs. Retail Water
Potable vs. Recycled Water
Elevation Zones (Energy Surcharges)
Public vs. Private Fire Protection Meters
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16 Behind the Curtain of Water Rates
Can I Use Ad Valorem Taxes and/or Unrestricted Revenue for Subsidies?
Part 1. Some Basic Water Rate Questions (cont.)
• What Types of Subsidies Can We Consider? Senior/Low Income Subsidies
Water vs. Sewer Customer Rate Reductions
Low-Income vs. High-Income Service Areas
• Qualified Answer: Yes… “Unrestricted Revenues” can fund certain types of subsidies
(e.g., senior/low income subsidies)
Often other programs are basis for qualifying (e.g., PG&E or SoCal Edison low-income programs)
Ad Valorem Taxes – are unrestricted funds (example: El Dorado Irrigation District)
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17 Behind the Curtain of Water Rates
What Can My Board/Council do to Ensure Rates are “Fair & Equitable”?
Part 1. Some Basic Water Rate Questions (cont.)
1. (Follow the Preceding Slides)
2. Prepare a Comprehensive Rate Study (It documents your methodology and cost-basis/Administrative Record if needed)
Financial Plan/Net Revenue Requirements Cost-of-Service Analysis
Rate Design Analysis
3. Seek Qualified Legal Opinions if You Are Not
Sure of Some Issues!
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18 Behind the Curtain of Water Rates
Part 2.
Industry Standards &
Practices
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19 Behind the Curtain of Water Rates
How Should Tiered Rate Be Set (Residential)?
Part 2. Industry Standards & Practices
• Traditional Guidelines for Tiered Rates:
Tier 1 = Average Domestic/Indoor Water Use (often
established as the average winter use)
Tier 2 = Outdoor/Irrigation Needs (e.g., average
annual water use)
Tier 3 = Summer Average Water Use
Tier 4 = Exceeds Summer Average Use
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20 Behind the Curtain of Water Rates
How Should Tiered Rate Be Set (Residential)?
Part 2. Industry Standards & Practices (cont.)
• Guidelines for WATER BUDGET-BASED Rates:
Tier 1 = Average Domestic/Indoor Water Use (often
established as the average winter use)
Tier 2 = Outdoor/Irrigation Needs (e.g., average
annual water use)
Tier 3 = Inefficient
Tier 4 = Wasteful
Tier 5 = Penalty Tier
(Remember the Tiers are different for every
customer based on their water budget)
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21 Behind the Curtain of Water Rates
What are Acceptable Differences in Rate Impacts on Individual Customers?
Part 2. Industry Standards & Practices
• Charges are Not More Than Actual Cost of
Servicing that Customer/Parcel
• Cost-Based (Follow Industry Standard Cost-
of-Service Cost Allocations)
• Non-Discriminatory (One Class is Not
Subsidizing Another Class)
• Otherwise – There is a Pretty Large Range of
“Acceptable Differences” (see recent court rulings)
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22 Behind the Curtain of Water Rates
Part 3.
Industry Standards &
Practices
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23
The “Curtain of Water Rates”
“…and the next moment all
of them were filled with
wonder. For they saw,
standing in just the spot the
screen had hidden, a little
old man, with a bald head
and a wrinkled face ...”
Behind the Curtain of Water Rates
Part 3. Taking a Peak “Behind the Curtain”
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24 Behind the Curtain of Water Rates
Part 3. Taking a Peak “Behind the Curtain”
• If “Justice is Blind” Then is Fairness & Equity in Water Rates “Blind”? Should it Be?
If Customers Using 5, 10, 20, or 30 Units of Water Showed Up to Pay Their Bill, Would They be Treated “Equally” Under Different Rate Structures (i.e., for the same quantity)?
What if Water was a Gallon of Milk and a Loaf of Bread?
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25 Behind the Curtain of Water Rates
Part 3. Taking a Peak “Behind the Curtain” (cont.)
• What “Inequities” Might Occur? How?
(Let’s Define “Inequity” as Being Treated Differently for the Same Quantity of Water)
Fixed & Variable Charges – How Cost are Allocated Between Them?
Conservation-Oriented Tiers – How Aggressive Are They?
Do You Have Traditional Tiered Rates or Water Budget Rates?
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26 Behind the Curtain of Water Rates
Aggressiveness of Conservation Tiers:
• 0% Increase
Between Tiers
• 25% Increase
Between Tiers
• 50% Increase
Between Tiers
• 75% Increase
Between Tiers
Part 3. Taking a Peak “Behind the Curtain” (cont.)
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27 Behind the Curtain of Water Rates
Aggressiveness of Conservation Tiers:
% Differences
Between 0%
and 75%
Increase
Between Tiers
Tier 1
(0-13 ccf)
Tier 2
(14-32 ccf)
Tier 3
(33-48 ccf)
Tier 4
(48+ ccf)
Part 3. Taking a Peak “Behind the Curtain” (cont.)
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28 Behind the Curtain of Water Rates
Illustration: Tier Rates vs. Water Budget Rates
• Two Residential Customers: Average User
Large User (Same Indoor Use, but Outdoor use is 3-times
larger than the Average Use)
Rate
($/ccf)
Use as % of
Normal
Low Volume $0.90 40%
Conservation Base Rates $1.25 100%
Inefficient $2.50 150%
Excessive $4.30 200%
Wasteful $9.50 201%
Water Budget Tiers
Rate
($/ccf)Tiers
Tier 1 $0.90 0-10 ccf
Tier 2 $1.25 10-20 ccf
Tier 3 $2.50 20+ ccf
Traditional Tiered Rates
Part 3. Taking a Peak “Behind the Curtain” (cont.)
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29 Behind the Curtain of Water Rates
Illustration: Tier Rates vs. Water Budget Rates
• Monthly Bills Assuming “Efficient” Water Use1:
1. Based on Irvine Ranch Water District rates (water budgets) and typical outdoor consumption levels.
Part 3. Taking a Peak “Behind the Curtain” (cont.)
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30 Behind the Curtain of Water Rates
Illustration: Tier Rates vs. Water Budget Rates
• Monthly Bills w/ “Inefficient” Water Use (150% of normal):
Part 3. Taking a Peak “Behind the Curtain” (cont.)
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31
For Additional Information of Questions, Contact:
Greg Clumpner
530.297.5856
NBS Government Financing Group (NBS)
32605 Temecula Parkway, Suite 100
Temecula, CA 92592
Behind the Curtain of Water Rates
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32
And now…
“We’re off to see the
(legal) Wizard!!”
Behind the Curtain of Water Rates