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Features of Successful Inclining Block Water Conservation Rate Structures Presented by: Andrew Burnham, Senior Vice President March 6, 2015 @ 9:00 9:30AM TEXAS WATER CONSERVATION ASSOCIATION 71ST ANNUAL CONVENTION SHERATON AUSTIN HOTEL @ THE CAPITOL (AUSTIN, TEXAS)
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Features of Successful Inclining Block Water Conservation Rate Structures

Jul 16, 2015

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Page 1: Features of Successful Inclining Block Water Conservation Rate Structures

Features of Successful Inclining

Block Water Conservation Rate

Structures

Presented by:

Andrew Burnham, Senior Vice President

March 6, 2015 @ 9:00 – 9:30AM

TEXAS WATER CONSERVATION ASSOCIATION

71ST ANNUAL CONVENTION

SHERATON AUSTIN HOTEL @ THE CAPITOL (AUSTIN, TEXAS)

Page 2: Features of Successful Inclining Block Water Conservation Rate Structures

Understanding the Fundamental Challenge of Water Ratemaking

Price product such that it encourages customers to use less of it while at the same time recovering enough revenue and not overcharging customers

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Page 3: Features of Successful Inclining Block Water Conservation Rate Structures

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Balancing Priorities = Sustainability

Rates need to reflect each community’s definition of sustainability

Social Fair & equitable distribution of costs

Promote public policy objectives (affordability and economic development)

Environmental Promote resource conservation

Fund cost of regulatory compliance

Economic Long-term revenue sufficiency

Ongoing system requirements

Financial policies

Fiscal stability Fixed cost recovery

Withstand changes in demand

Page 4: Features of Successful Inclining Block Water Conservation Rate Structures

Overview of the Ratemaking Process

Fundamental Components1. Revenue Requirement2. Cost of Service3. Rate Design4. Stakeholder Education

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Revenue Requirement Analysis: Compares revenues to operating and capital costs to determine the adequacy of existing rates

Cost of Service Analysis: Allocates the revenue requirements of the system to customers in a fair and equitable manner

Rate Design Analysis: Considers both the level and structure of rates that will collect the revenue requirements from each customer class

Stakeholder Education: Explains the status quo, key issues/objectives, drivers of adjustments, and comparisons to local and national trends

Page 5: Features of Successful Inclining Block Water Conservation Rate Structures

Before Developing Conservation Rates, Understand the Cost of Service

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Distribute costs using methods best suited for data, circumstances & goals Allocate costs to functions Review/define customer classes

Identifies allocations of various costs (max day, peak hour, etc.) to different users based upon their characteristics

Water Cost of Service Wastewater Cost of Service

→ Source of Supply → Treatment & Disposal

→ Treatment → Collection

→ Transmission → Reclaimed Water

→ Distribution → Chemical Oxygen Demand

→ Meters & Services → Suspended Solids

→ Billing & Collection → Phosphorus

→ Residential → Ammonia

→ General Service → Residential

→ Residential Irrigation → General Service

→ General Irrigation → Reclaimed Water

→ Wholesale → High-Strength/Industrial

→ Wholesale

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Water Cost of Service Wastewater Cost of Service

→ Source of Supply → Treatment & Disposal

→ Treatment → Collection

→ Transmission → Reclaimed Water

→ Distribution → Chemical Oxygen Demand

→ Meters & Services → Suspended Solids

→ Billing & Collection → Phosphorus

→ Residential → Ammonia

→ General Service → Residential

→ Residential Irrigation → General Service

→ General Irrigation → Reclaimed Water

→ Wholesale → High-Strength/Industrial

→ Wholesale

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Page 6: Features of Successful Inclining Block Water Conservation Rate Structures

Cost of Service Analysis Establishes Guideposts for Developing Rates

Compare cost allocation to revenue generation under various scenarios

Identify what types of costs are recovered in fixed vs. variable charges

6

Single-Family Multi-Family Commercial Res. Irrigation Com. Irrigation Totals

Rev (000's) Rev (000's) Rev (000's) Rev (000's) Rev (000's) Rev (000's)

Water 5,057$ 4,059$ 7,573$ 283$ 1,761$ 18,734$

Sewer 10,135$ 8,977$ 9,744$ N/A N/A 28,856$

Total 15,192$ 13,036$ 17,317$ 283$ 1,761$ 47,590$

Single-Family Multi-Family Commercial Res. Irrigation Com. Irrigation Totals

Rev (000's) Rev (000's) Rev (000's) Rev (000's) Rev (000's) Rev (000's)

Water 5,336$ 5,097$ 6,829$ 216$ 1,252$ 18,730$

Sewer 9,869$ 8,518$ 10,473$ N/A N/A 28,860$

Total 15,205$ 13,615$ 17,302$ 216$ 1,252$ 47,590$

$ Variance (13)$ (579)$ 15$ 67$ 510$ (0)$

% Variance -0.1% -4.3% 0.1% 31.1% 40.7% 0.0%

REVENUE REQUIREMENT ALLOCATION PER COST OF SERVICE ANALYSIS

REVENUE GENERATION PER CURRENT RATE STRUCTURE

Page 7: Features of Successful Inclining Block Water Conservation Rate Structures

Approach to Rate Structure Analysis

7

Incorporate the data/allocations per cost of service analysis

Review/evaluate existing fee structure and identify alternatives

Goal is to ensure appropriate and sustainable rate structures for each class of customer that:

Reflect a fair and equitable distribution of the cost of service

Conform to industry practice and legal precedent

Are technically sound and easy to administer

Are consistent with objectives (affordability, conservation, etc.)

To succeed, you need to communicate clearly with stakeholders

The advantages and disadvantages of each option, and

The full range of customer impacts of any potential changes

Integrate critical financial considerations

Page 8: Features of Successful Inclining Block Water Conservation Rate Structures

Key Financial Consideration: Establishing Sound Reserve Policies

8

General rules of thumb for reserves are provided by industry organizations like the AWWA (Manual M54): Operating reserve equal >= 2 months of

O&M

Capital reserve equal to the average annual capital expenditure over the next 3 to 5 years

Also, rating agencies publish criteria relative to reserves that they use to evaluate the creditworthiness of utilities Days of free cash (strong systems >= 365

days)

Reserves should consider rate structure: Impacts of unplanned/extended use

reductions

Page 9: Features of Successful Inclining Block Water Conservation Rate Structures

Key Financial Consideration:Defining Level of Fixed Cost Recovery

9

Higher fixed charges provide stability in environments of unstable/declining demands…. However, reduces cost allocation and level of conservation

rates to high volume users

Critical to understand and evaluate: Fixed versus variable cost distribution Current recovery of fixed costs via existing rates Practices of other local/comparable systems

Rating agencies starting to publish criteria about level of revenue generation desired in fixed charges Due to industry wide declines in demand and increasing

fixed cost awareness Fitch Ratings – strong system will recover >=30% of

revenue in fixed charges

Page 10: Features of Successful Inclining Block Water Conservation Rate Structures

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Example Cost Recovery Analysis

Components of FY 2015 Utility Costs Amount % of Total Amount % of Total

Personnel Services $995,072 10.7% $694,494 9.4%

Variable Operating Costs $1,260,136 13.5% $380,458 5.2%

Fixed Operating Costs $868,506 9.3% $1,005,760 13.7%

Capital Outlay $165,000 1.8% $134,000 1.8%

Transfer Out $1,583,055 17.0% $1,351,196 18.4%

O & M ALLOCATION $2,797,327 30.0% $3,793,458 51.5%

Debt Service $1,645,931 17.7% $0 0.0%

Total Annual Costs $9,315,027 100.0% $7,359,366 100.0%

Fixed $8,054,891 86.5% 0.0% $6,978,908 94.8% 0.0%

Variable $1,260,136 13.5% 100.0% $380,458 5.2% 100.0%

$9,315,027 100.0% 100.0% $7,359,366 100.0% 100.0%

W ater System Fixed Variable

Expenses 86% 14%

Revenue 0% 100%

Avg. Fixed/Usage Fee Split of JCSA Rate Survey

Entities (based on 5,000 gal/month residential bill)30% 70%

Sewer System Fixed Variable

Expenses 95% 5%

Revenue 0% 100%

Avg. Fixed/Usage Fee Split of JCSA Rate Survey

Entities (based on 5,000 gal/month residential bill)21% 79%

Variable Operating Costs generally

increase or decrease as system

demand increases/decreases, and

include utilities, operating supplies/

materials and chemicals. All other

costs are generally fixed and

independent of system demand.

Water Cost Water

Rev

Sewer Cost Sewer

Rev

0.0%

25.0%

50.0%

75.0%

100.0%

Water Cost Water Rev Sewer Cost Sewer Rev

Allocation of Annual Utility Costs And Revenues

Fixed Variable

Page 11: Features of Successful Inclining Block Water Conservation Rate Structures

INCLINING BLOCK SIZING AND PRICING EXAMPLES

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Page 12: Features of Successful Inclining Block Water Conservation Rate Structures

Examples of Sizing of Inclining BlocksTier 1 - Typical Indoor Usage Amount Tier Range

People per Household 2.57

Typical Indoor Use (Gallons per Capital per Day) 70

Typical Essential Domestic Use (Tgal/month) 5,472

First Tier Usage Amount (Total) 5,000 Up to 5,000 gal.

Tier 2 - Larger Family Indoor Usage Amount Tier Range

Large Family - People per Household 5.00

Typical Essential Domestic Use (Tgal/month) 10,646

Second Tier Usage Amount (Total) 10,000 5,001 - 10,000 gal.

Tier 3 - Irrigation for Typical Property Amount Tier Range

Square inches of area in 1/4 acre 1,568,160

% of area that is irrigable 33%

Number of inches per watering 0.50

Gallons per cubic inch 0.0043290

Number of gallons per watering 1,131

Number of waterings per week 2.0

Gallons of irrigation per month 9,802

Third Tier Usage Amount 10,000 10,001 - 20,000 gal.

Fourth Tier Usage Amount All Add. Use > 20,000 gal.

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Use available data/resources US Census EPA (indoor

use) Local Property

Data/GIS TWDB, TCEG,

Save Water, etc.

Review all customer usage profiles and property types

Consider local ordinances

Evaluate options w/understanding of impacts

Page 13: Features of Successful Inclining Block Water Conservation Rate Structures

Pricing Metrics of Inclining Block Rates

Evaluate upon setting level of revenue recovered in usage rates & size/number of tiers

Example: 4 Block System Rate for 1st Block

Affordability Rate: % of 2nd

Block Local policy/objective

Rate for 2nd Block Uniform Cost / TGAL

Rate for 3rd Block Between 2nd and 4th Block

rates (equidistant or other)

Rate for 4th Block Equal to full cost of new water

supply, plus transmission

Review w/understanding of customer impacts13

Table 2-3 – Top Block Water Cost Details

Cost Component

Unit Cost

(per 1,000 gal)

CAP Water $0.45

Water Purchase Rights $0.61

Plant Expansion $0.75

Debt Service Coverage $1.66

Credit for SDF Paid -$1.05

Total Marginal Unit Cost of Water $2.71

Unit Cost of Water Transmission $0.56

Total Top Block Rate $3.27

Page 14: Features of Successful Inclining Block Water Conservation Rate Structures

Key Consideration: Modeling Changes in Demand & Price Elasticity

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Review multiple years of usage and customer data

Gather additional data; economic indicators, rainfall, rate changes, timing of conservation programs, etc. Identify normal test-year for ratemaking purposes

Identify relationship between drivers of demand and recent trends in use to inform assumptions relative to impacts of rate structure changes

Include price elasticity within rate structure analysis specific to the usage profile of each customer class

Compare actual results to projections so that observed elasticity of demand can be reflected in financial forecasts to ensure adequate revenue

Page 15: Features of Successful Inclining Block Water Conservation Rate Structures

Additional Conservation Rate-Related Considerations:

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Consider carefully crafted temporary adjustments Drought/water use restriction surcharges to ensure adequate rev.

Model alternative levels of demand reductions and revenue impacts

Consider designating “highest tier” revenues for incremental spending only once realized Don’t plan on revenue for any current year required costs

Consider using a meaningful rate stabilization fund Can offset unforeseen and/or extended demand reductions

Use conservative budgeting as a hedge Particularly in regards to revenue (i.e. @ 95% of forecast)

Include allowances for contingencies on expense side that could be used to offset revenue shortfalls

Page 16: Features of Successful Inclining Block Water Conservation Rate Structures

STAKEHOLDER

COMMUNICATION STRATEGIES

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Page 17: Features of Successful Inclining Block Water Conservation Rate Structures

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Tier % of Bills Typical Use Current Bill Proposed Bill $ Chg. % Chg.

0 - 4 TGAL 48.2% 2 TGAL 35.90$ 35.57$ (0.33)$ -0.9%

4 - 8 TGAL 29.5% 6 TGAL 63.89$ 63.75$ (0.14)$ -0.2%

8 - 12 TGAL 10.5% 10 TGAL 93.41$ 94.53$ 1.12$ 1.2%

12 - 20 TGAL 7.1% 16 TGAL 133.27$ 148.49$ 15.22$ 11.4%

> 20 TGAL 4.8% 20 TGAL 145.11$ 186.29$ 41.18$ 28.4%

*Impacts to large volume users can be moderated via separate additional irrigation meter

48.2%

29.5%

10.5%

7.1%4.8%

Single-Family Residential Bill Distribution

0 - 4 TGAL

4 - 8 TGAL

8 - 12 TGAL

12 - 20 TGAL

> 20 TGAL

$(0.33)

$(0.14)

$1.12

$15.22 $41.18

Single-Family Residential Bill Impacts

Identify High Level Customer Impacts

Page 18: Features of Successful Inclining Block Water Conservation Rate Structures

Monthly

Use (Gal) % of Bills Agg. % Current (FY 13) Proposed (FY 14) $ Chg % Chg

- 9.7% 9.7% 22.16$ 22.01$ (0.15)$ -0.7%

1,000 5.7% 15.4% 29.03$ 28.79$ (0.24)$ -0.8%

2,000 9.4% 24.7% 35.90$ 35.57$ (0.33)$ -0.9%

3,000 11.6% 36.3% 42.77$ 42.35$ (0.42)$ -1.0%

4,000 11.9% 48.2% 49.64$ 49.13$ (0.51)$ -1.0%

5,000 10.3% 58.5% 56.51$ 56.44$ (0.07)$ -0.1%

6,000 8.2% 66.7% 63.89$ 63.75$ (0.14)$ -0.2%

7,000 6.2% 72.9% 71.27$ 71.06$ (0.21)$ -0.3%

8,000 4.8% 77.7% 78.65$ 78.37$ (0.28)$ -0.4%

9,000 3.6% 81.3% 86.03$ 86.45$ 0.42$ 0.5%

10,000 2.7% 84.0% 93.41$ 94.53$ 1.12$ 1.2%

11,000 2.3% 86.3% 100.79$ 102.61$ 1.82$ 1.8%

12,000 1.8% 88.2% 108.17$ 110.69$ 2.52$ 2.3%

13,000 1.4% 89.6% 115.55$ 120.14$ 4.59$ 4.0%

14,000 1.2% 90.8% 122.93$ 129.59$ 6.66$ 5.4%

15,000 1.1% 91.9% 130.31$ 139.04$ 8.73$ 6.7%

16,000 0.9% 92.8% 133.27$ 148.49$ 15.22$ 11.4%

17,000 0.8% 93.5% 136.23$ 157.94$ 21.71$ 15.9%

18,000 0.6% 94.2% 139.19$ 167.39$ 28.20$ 20.3%

19,000 0.6% 94.8% 142.15$ 176.84$ 34.69$ 24.4%

20,000 0.5% 95.2% 145.11$ 186.29$ 41.18$ 28.4%

Inside City Single Family 3/4" Meter Monthly Water & Sewer Bill Calculations

Have Detailed Customer Impacts Ready

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Page 19: Features of Successful Inclining Block Water Conservation Rate Structures

Provide & Compare Multiple Options

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Current

% of Bills Cumulative % # of Bills Use (Tgal) Mo. Bill Mo. Bill $ Chg. % Chg. Mo. Bill $ Chg. % Chg. Mo. Bill $ Chg. % Chg.

11.8% 11.77% 7,999 0 14.50$ 15.30$ 0.80$ 5.5% 8.34$ (6.16)$ -42.5% 7.76$ (6.74)$ -46.5%

10.1% 21.87% 6,867 1 14.50$ 15.30$ 0.80$ 5.5% 11.44$ (3.06)$ -21.1% 9.75$ (4.75)$ -32.8%

13.5% 35.41% 9,202 2 14.50$ 15.30$ 0.80$ 5.5% 14.54$ 0.04$ 0.3% 11.74$ (2.76)$ -19.0%

17.1% 52.47% 11,601 3 14.50$ 15.30$ 0.80$ 5.5% 17.64$ 3.14$ 21.7% 13.73$ (0.77)$ -5.3%

12.7% 65.16% 8,624 4 26.96$ 28.44$ 1.48$ 5.5% 30.04$ 3.08$ 11.4% 27.03$ 0.07$ 0.3%

10.0% 75.17% 6,803 5 39.42$ 41.59$ 2.17$ 5.5% 42.44$ 3.02$ 7.7% 40.33$ 0.91$ 2.3%

7.3% 82.43% 4,934 6 51.88$ 54.73$ 2.85$ 5.5% 54.84$ 2.96$ 5.7% 53.63$ 1.75$ 3.4%

4.9% 87.30% 3,314 7 64.34$ 67.88$ 3.54$ 5.5% 67.24$ 2.90$ 4.5% 66.93$ 2.59$ 4.0%

3.2% 90.52% 2,187 8 76.80$ 81.02$ 4.22$ 5.5% 79.64$ 2.84$ 3.7% 80.23$ 3.43$ 4.5%

2.2% 92.67% 1,464 9 89.26$ 94.17$ 4.91$ 5.5% 92.04$ 2.78$ 3.1% 93.53$ 4.27$ 4.8%

1.5% 94.13% 987 10 101.72$ 107.31$ 5.59$ 5.5% 105.76$ 4.04$ 4.0% 106.83$ 5.11$ 5.0%

1.0% 95.13% 684 11 114.18$ 120.46$ 6.28$ 5.5% 119.48$ 5.30$ 4.6% 120.97$ 6.79$ 5.9%

0.8% 95.89% 512 12 126.64$ 133.61$ 6.97$ 5.5% 133.20$ 6.56$ 5.2% 135.11$ 8.47$ 6.7%

0.5% 96.37% 332 13 139.10$ 146.75$ 7.65$ 5.5% 146.92$ 7.82$ 5.6% 149.25$ 10.15$ 7.3%

0.4% 96.78% 273 14 151.56$ 159.90$ 8.34$ 5.5% 160.64$ 9.08$ 6.0% 163.39$ 11.83$ 7.8%

0.3% 97.08% 210 15 164.02$ 173.04$ 9.02$ 5.5% 174.36$ 10.34$ 6.3% 177.53$ 13.51$ 8.2%

0.2% 97.31% 152 16 176.48$ 186.19$ 9.71$ 5.5% 188.08$ 11.60$ 6.6% 191.67$ 15.19$ 8.6%

0.2% 97.50% 132 17 188.94$ 199.33$ 10.39$ 5.5% 201.80$ 12.86$ 6.8% 205.81$ 16.87$ 8.9%

0.1% 97.64% 94 18 201.40$ 212.48$ 11.08$ 5.5% 215.52$ 14.12$ 7.0% 219.95$ 18.55$ 9.2%

0.1% 97.79% 100 19 213.86$ 225.62$ 11.76$ 5.5% 229.24$ 15.38$ 7.2% 234.09$ 20.23$ 9.5%

0.1% 97.91% 85 20 226.32$ 238.77$ 12.45$ 5.5% 242.96$ 16.64$ 7.4% 248.23$ 21.91$ 9.7%

Note: All options reflect a 5.5% water and sewer revenue increase.

Note: 95% of all customers are served with a 3/4" meter.

"Across-the-Board" Increase Rate Structure Change - Alt. A Rate Structure Change - Alt B.

3/4" Meter Water & Sewer Monthly Bill Comparison

Billing Statistics Option 1 Option 2 Option 3

$-

$20

$40

$60

$80

$100

$120

$140

3 5 8 12

Monthly Bill

Monthly Consumption (Tgal)

Selected 3/4" Water & Sewer Monthly Bill Comparisons

Current

Option 1

Option 2

Option 3

Page 20: Features of Successful Inclining Block Water Conservation Rate Structures

Don’t Forget Large User & Multi-Family Residential Customers

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Customer Type

Avg. Monthly

Usage (Gal)

Meter

Size

Current

(FY 14)

Proposed

(FY 15) $ Chg % Chg FY 2015 $ Chg % Chg

Small Office/Retail 5,000 5/8 x 3/4" 106.04$ 136.28$ 30.24$ 28.5% 110.28$ 4.24$ 4.0%

Bank/Service Station 10,000 1" 255.08$ 284.33$ 29.25$ 11.5% 265.28$ 10.20$ 4.0%

Restaurant 30,000 1 1/2" 761.30$ 794.15$ 32.85$ 4.3% 791.75$ 30.45$ 4.0%

Car Wash 50,000 2" 1,280.35$ 1,315.74$ 35.39$ 2.8% 1,331.56$ 51.21$ 4.0%

Big Box Retail 150,000 3" 3,695.80$ 3,734.72$ 38.92$ 1.1% 3,843.63$ 147.83$ 4.0%

Multi-Family (1 unit) 3,000 5/8 x 3/4" 73.90$ 73.69$ (0.21)$ -0.3% 76.86$ 2.96$ 4.0%

Multi-Family (4 units) 12,000 1" 299.28$ 294.75$ (4.53)$ -1.5% 311.25$ 11.97$ 4.0%

Multi-Family (25 units) 75,000 2" 1,832.85$ 1,842.20$ 9.35$ 0.5% 1,906.16$ 73.31$ 4.0%

Multi-Family (100 units) 300,000 4" 7,242.00$ 7,368.80$ 126.80$ 1.8% 7,531.68$ 289.68$ 4.0%

Sample Inside-City Commercial & Multi-Family Customer Monthly Bill Impacts Across the Board Increase

Page 21: Features of Successful Inclining Block Water Conservation Rate Structures

Deltona $77.35

Flagler County $65.82

Bunnell $56.85

Putnam County $54.00

DeLand $49.44

Orange Park $44.55

Volusia County $43.30

Palatka (Current) $41.12

JEA $39.92

Palm Coast $39.68

Clay County Utility Authority $39.38

St. Augustine $39.15

Palatka (New) $38.90

Flagler Beach $37.69

St. Johns County $36.62

Nassau County $35.94

Starke $35.65

Holly Hill $32.75

Macclenny $31.16

Green Cove Springs $27.60

Baldwin $26.20

Combined Water & Sewer Bill Survey at 2,000 Gallons per Month

Provide Local Bill Comparisons

21

Putnam County $223.00

Flagler County $212.20

Flagler Beach $209.47

Bunnell $206.87

Holly Hill $196.29

Deltona $169.22

JEA $145.11

Volusia County $139.14

St. Augustine $134.26

St. Johns County $125.34

Palm Coast $119.56

DeLand $118.68

Orange Park $117.44

Clay County Utility Authority $96.88

Macclenny $89.61

Palatka (New) $89.36

Green Cove Springs $84.35

Nassau County $81.58

Starke $79.55

Palatka (Current) $74.72

Baldwin $50.50

Combined Water & Sewer Bill Survey at 15,000 Gallons per Month

Page 22: Features of Successful Inclining Block Water Conservation Rate Structures

Consider Summary Communication Materials/FAQ Documents…..

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Page 23: Features of Successful Inclining Block Water Conservation Rate Structures

Along With Key Issue Materials and…(Provided by Payne Communications)

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Page 24: Features of Successful Inclining Block Water Conservation Rate Structures

Supplemental Conservation Materials (Provided by Payne Communications)

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Page 25: Features of Successful Inclining Block Water Conservation Rate Structures

In Summary, Sustainable Inclining Block Rate Solutions Are Possible

What it Requires:

Explicit and reality-based assumptions

Inclusion of relevant staff/experts Consider all impacts

Use of available industry resources

Real stakeholder communication Involving key groups

early and often

Dedicating time to educate elected officials

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Page 26: Features of Successful Inclining Block Water Conservation Rate Structures

26

Questions & Discussion

PROVIDING SOLUTIONS

THROUGH CLEAR VISION

Presentation By:Andrew Burnham

Senior Vice PresidentOffice: 813-443-5138

Mobile: 904-631-5109Email: [email protected]