recycled water – economic and financial quandaries 21 november 2011 recycled water rulemaking...
TRANSCRIPT
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Recycled Water –Economic and Financial
Quandaries
21 November 2011Recycled Water Rulemaking Workshop II
CPUC, San Francisco, California
Richard A. MillsWater Recycling and Desalination SectionCalifornia Department of Water Resources
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• Perceived cost (price) ≠ Marginal cost
• Agency marginal cost ≠ Social marginal cost
• Poorly planned project ≠ Water savings
• Reclaimed water user ≠ Reclaimed water beneficiary
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Presentation Overview
• Water reclamation project components• Institutional relationships and economic
implications• Water reclamation project planning
context and cost impacts• Beneficiary discussion• Pricing and cost recovery
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IRecycled Water:
What is it?How does it get to point of
use?
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Recycled Water
• Water Code Section 13050(n):
“Recycled water” means water which, as a result of treatment of waste, is suitable for a direct beneficial use or a controlled use that would not otherwise occur and is therefor considered a valuable resource.
• Also called “reclaimed water” (WC Section 26)
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Recycled Water – Key Characteristics
• Origin: Wastewater• Treated• Suitable for either
Direct beneficial use (piped to a point of use)
Controlled use (indirect but planned use, e.g., groundwater recharge) (based on legislative history)
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Recycled Water –CPUC Policy Focus
• Assume source is treated municipal wastewater
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Water Recycling
• Not defined in law• Involves any beneficial use of treated
wastewater• Involves treatment, storage, distribution,
and actual use of reclaimed water• Also called “wastewater reclamation”,
“water reclamation”, or “wastewater reclamation and reuse”
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Los Angeles County2009 Water Recycling
LA County Public Works
LA City, Bureau of Sanitation
County Sanitation Districts of
LA County
1,822 AF (Alamitos)
47,555 AF (Montebello Forebay GW Recharge)
WRD347 AF
Long Beach
WD
Long Beach
WD
2,169 AF
4,645 AF
Pomona, Walnut
Valley, and Rowland
WDs
Cities of Bellflower, Cerritos ,
Industry, and Lakewood
Upper San
Gabriel Valley MWD
3,439 AF
6,467 AF
Central Basin MWD
1,054 AF
3,429 AF
4,07
7 AF
18 AF
1,246 AF
2,176 AF
401 AF
933 AF
63 AF
1,504 AF
2,032 AF
Various Cities
112,684 AF
LA City, Dept. of Water & Power
2,365 AF (Dominguez Gap)
35,5
74 A
F
37,9
39 A
FCity of Glendale
1,419 AF
3,429 AF
Burbank Water and
Power
Las Virgenes
MWD
148
AF 2,09
0 AF
5,17
4 AF
? AF
West Basin MWD
6,268 AF (W
est Coast Barrier)
28,768 AF
6,163
AF 15,780 AF
Cities of Manhattan Beach, El
Segundo, & Torrance
Golden State WC and Cal Water
559 AF2
Collection and treatment
Collection, treatment, and distribution
Supplemental treatment and distribution
Distribution
Injection barrier and recharge management
Brine
Direct retail customers
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Institutional Relationships
• Wastewater and water supply agencies
• Wholesale and retail agencies• Reclaimed water suppliers and
purveyors• Agencies representing multiple
service areas
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Infrastructure of Recycled Water• Sewage collection systems• Wastewater treatment for disposal and reuse• Additional wastewater treatment for reuse
(often not required)• Recycled water storage (daily operational or
seasonal)• Distribution system pump stations• Pipeline distribution system• Customer meters and valves• On-site facilities (not public infrastructure)
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On-site Facilities
• Separate purple pipe plumbing• Retrofit of existing sites to convert to
reclaimed water• On-site reclaimed water treatment• Backflow prevention and cross-
connection controls To protect public potable water system To protect potable system on site
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Cost Elements
• Planning & design• Capital costs (construction, land)• Operation, maintenance,
replacement• Debt service (financial analysis,
not economic analysis)
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Who Will Pay?
• Sewer users• Reclaimed water users• Potable water customers• Regional, state, or federal
governments
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IIPerceived vs Real Marginal
Cost
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Potable Water System Structure Serving
Walnut Valley Water District
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Institutional Relationships forWalnut Valley Water DistrictWater Reclamation Project
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Who Develops Projects?
• New freshwater supplies Developed at regional and state
levels• Reclaimed water supplies
Developed at local levels (wholesale and retail agencies)
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Disconnect in Cost Perception
• Recycled water developer does not perceive the marginal
costs of alternative new freshwater supplies
compares recycled water to wholesale price of freshwater
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Perceived cost (price) ≠ Marginal cost
• Price = Melded average of past and current projects
• Price ≠ Marginal cost of existing or new water supplies
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Agency marginal cost ≠ Social marginal cost
• Agency marginal cost = marginal cost of Either its own sources of supply or Wholesale price of purchased
supply• Local agency marginal cost ≠
True social marginal cost of ultimate source of supply
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Viewpoint
• Sponsoring agency - considers only consequences
affecting this entity• Public (statewide or “societal”) -
incorporates all costs and benefits to whomsoever they may accrue
considers externalities
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Rational Cost Decisions in Ideal World
• Seek alternatives that have the highest net benefit (or lowest net cost) to society as a whole
• Avoid alternatives that benefit only particular segments of society (e.g., agencies, customers)
• Role of economic analysis
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IIIPlanning Issues and Cost
Implications
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Seven Feasibility Criteria
• Engineering feasibility• Economic feasibility• Financial feasibility• Institutional feasibility• Environmental impact• Social impact and public acceptance• Market feasibility
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Engineering Issues
• Water quality• Public health protection• Wastewater treatment alternatives• Storage and distribution system siting and
design• On-site conversions at water use sites• Matching supply and demand for
reclaimed water• Supplemental and backup water supplies
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Water Quality
• User requirements• Health regulations
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Market Assessment &Market Assurances
• Assessment – Identifying potential reclaimed water users and feasibility of serving them
• Assurances – Mechanisms to ensure users will participate in water reclamation project
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Reclaimed Water Market Assessment
• Identify & characterise potential reclaimed water users
• Analyze feasibility of service (including pricing and on-site cost issues)
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Market Assurances -Firm Commitments
• District owns land of use site• District leases land of use site• User contract• Mandatory reclaimed water use
ordinance (must be at retail level) Not effective for self-supplied users
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Market Assurances -Other Forms
(not recommended)
• Broad water rights authority (Water Code Sec. 13550) Only enforceable by cumbersome water
rights process• Sale by reclaimed water use permit or
informal agreement without long-term obligation
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Consequences of Market Shortfall
• Stranded costs in form of unused or under-used facilities
• Costs borne by potable and reclaimed water ratepayers
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Reasons for Deficiencies in Use
• Original estimate of water demand too high• Undeveloped users never constructed• Developments occurred later than expected• Difficulties meeting permitting and reporting
requirements• Users never reached final agreement
Quality concerns Reclaimed water price concerns On-site conversion (retrofit) costs Inconvenience, etc
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Reasons for Deficiencies in Use(continued)
• Distribution pipelines never added as planned Cost Lack of users
• Interagency agreements never secured Wastewater agency-Water purveyor Water purveyor-Water purveyor
• Reclaimed water supply inadequate to meet peak demands
• Public opposition (esp. indirect potable use)
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Institutional Issues
• Duplication of service restrictions (Public Utilities Code)
• Contractual agreements between potable retailer & reclaimed retailer reclaimed supplier & reclaimed distributor
• Allocation of responsibilities construction, operation meter reading and billing customers sharing of costs and revenues
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IVWho is the Beneficiary of
Recycled Water?
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Why Reclaim Water?
• We should not reclaim water for the sake of reclaiming water: Reclaiming water is not a hobby
• We reclaim water to meet a fundamental need
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Purposes for Reclaiming Water
• Fundamental Reliable water supply Public health protection Environmental protection and
restoration Regional economic development
(developing countries)
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Purposes for Reclaiming Water
• Secondary Generate income for wastewater
agency by sale of effluent (mostly in areas adjacent to agriculture)
Satisfy need or request of a specific water user for water
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Beneficiaries
• Wastewater agency and its ratepayers• Water suppliers and all their ratepayers
collectively• General public receiving protection from
water pollution (public health or environmental)
• Rarely: Only the users of reclaimed water
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Potable Water Ratepayers as Beneficiaries
• Reclaimed water Augments water supply for community
development Improves reliability of supply during
shortages Delays need for new freshwater supply May be cheaper than alternative
freshwater supplies
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Reclaimed Water Users as Beneficiaries
• Same shared benefits as for potable water users
• Greater ensured supply during water shortages
• However On-site costs, restrictions, cautionary
practices, worker or other exposure liability, potential supply interruptions during wastewater upsets, periodic cross-connection testing
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Reclaimed Water User Perspective
• Doing the community more of a favour than helping themselves
• Expect to pay no more than would have paid for potable water
• Expect compensation for added on-site costs
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VReclaimed Water System
Cost Recovery & Pricing Concepts
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Concepts• Both potable and reclaimed water
ratepayers have comparable shared benefits
• Both potable and reclaimed water system costs should have shared cost recovery
• Potable and reclaimed water systems’ revenue shared
• Reclaimed water prices tied to potable prices
• On-site costs should be considered
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Reclaimed Water System Revenue
• Connection fees• Fixed (monthly) charges• Variable charges
Uniform, declining block, increasing block rates
• Subsidies Potable ratepayers or regional, state, or
federal assistance Rationale: Potable cost savings or shared
benefits
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Pricing Considerations
• Minimum rates (based on cost recovery)
• Maximum rates (based on customer alternative water sources) Customers may be in different retail
water service areas Customers may be currently self-
supplied
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Self-Supplied Customers
• Potential for exchanging reclaimed water for water rights or groundwater allocations
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Integrated Pricing
• Reclaimed and potable rates tied• Fixed differential or ratio• Consider other avoided costs or lost
revenues in service area, e.g., due to displacing delivery of fresh water
• Consider on-site costs
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DWR Information
Water Recycling and Desalination Section http://www.water.ca.gov/recycling/
Rich Mills [email protected] (916) 651-0715
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End