AGENDA - Special Council - 20240326Town of Aurora
Special Meeting of Council Agenda
Date:Tuesday, March 26, 2024
Time:6 p.m.
Location:Council Chambers, Aurora Town Hall
Meetings are available to the public in person and via live stream on the Town’s YouTube channel.
To participate, please visit aurora.ca/participation.
Pages
1.Call to Order
2.Land Acknowledgement
3.Approval of the Agenda
4.Declarations of Pecuniary Interest and General Nature Thereof
5.Delegations
6.Consideration of Items Requiring Discussion
6.1 FIN24-017 - Water and Wastewater User Rate Review Public Consultation 1
(Presentation to be provided by Derek Ali, President, and John Murphy,
Municipal Finance Specialist, from DFA Infrastructure International Inc.)
That Report No. FIN24-017 be received; and1.
That any new comments, questions, and suggestions arising
from the Public Meeting be referred to staff for consideration.
2.
7.Confirming By-law
7.1 By-law Number XXXX-24 - Being a By-law to confirm actions by Council
resulting from a Special Meeting of Council on March 26, 2024
34
8.Adjournment
100 John West Way
Aurora, Ontario
L4G 6J1
(905) 727-3123
aurora.ca
Town of Aurora
Council Report
No. FIN 2 4 -0 17
Subject: Water & Wastewater User Rate Review Public Consultation
Prepared by: Sandeep Dhillon, Senior Advisor, Financial Management
Department: Finance
Date: March 26, 2024
_
Recommendation
1. That Report No. FIN24-017 be received; and
2. That any new comments, questions, and suggestions arising from the Public Meeting
be referred to staff for consideration.
Executive Summary
As Town’s fixed costs for the delivery of water and wastewater services continue to rise
as infrastructure ages, so too does the need to ensure an equitable distribution of this
burden across all user rate payers. The Town engaged DFA Infrastructure International
Inc. to undertake a review of the existing water and wastewater rates and recommend a
future rate structure.
There are many different possible water and wastewater rate structure options
available
Each rate structure was assessed based upon guiding principles
A two-tier water and wastewater rate structure is recommended
The Town’s recommended two-tier rate structure results in a comparable
residential user annual cost to other York Region municipalities
If approved, the new water and wastewater rate structure would become
effective in 2025
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March 26, 2024 2 of 8 Report No. FIN24-017
Background
Presently the Town’s water and wastewater rate structure consists of a single variable
rate for both water and wastewater. These rates are applied to each user’s actual water
usage for the billing period. A flat-water rate is also offered to users who are unwilling or
unable to install a water meter. Should a user not consume any water for a billing
period, they are not required to pay. This rate structure has not changed for quite some
time having been established at a time when the Town had much fewer users of these
services.
As of today, the Town’s water and wastewater users are now in excess of 18,000
customers: representing an annual water demand of 5.5 million cubic metres. The
number of inactive users has increased significantly as well, representing approximately
four percent of the current customer base. Inactive water users do not consume water
and consequently do no contribute toward the cost recovery of the Town’s water and
wastewater systems; meaning the cost burden of these systems must be fully borne by
active users.
The Town’s total operating requirements which must be recovered through water and
wastewater user rates has grown substantially; for 2024, these requirements are
estimated to be $14 million and $16 million for water and wastewater, respectively. Of
these amounts, 35 and 25 percent for water and wastewater, respectively can be
considered fixed in nature; meaning these costs would not change with water
consumption volumes. The fixed component of these service costs has been subject to
significant upward pressure as underlying enabling infrastructure reaches the end of its
useful life requiring major repair or replacement.
With these considerations in mind, Council approved capital project no. SO0060
(formally, No. 14110) – Water Rate Study with a primary objective of undertaking a
review of the Town’s water and wastewater rate structure. This review commenced in
2023, continuing into 2024. This evening’s public meeting forms part of this project’s
scope of work.
Analysis
There are many different possible water and wastewater rate structure options available
The Town has identified different possible rate structures as summarized in Table 1.
Table 1
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March 26, 2024 3 of 8 Report No. FIN24-017
Alternative Rate Structure Options
Rate Structure Description
Fixed Fee A single flat fee that applies to all customers
Uniform Charge Constant volumetric charge that applies to all
customers
Uniform (with base charge) Constant volumetric and base charge two tier rate
Declining Block Volumetric charge that decreases as water use
increases
Increasing Block Volumetric charge that increases as water use
increases
The Town’s present rate structure for metered customers uses the uniform charge
structure. The most used charge in Ontario is the uniform with a base charge.
Each rate structure was assessed based upon guiding principles
When assessing each of the alternative rate structures, the following guiding principals
as summarized under Table 2 were considered.
Table 2
Guiding Principals
Rate Structure Description
Full Cost Recovery Ensures cost recover of all water /
wastewater system costs
Promotes Conservation Encourages water conservation
Fair & Equitable Does not unduly favour one ratepayer class
over another
Ease of Administration Minimizes administrative effort and cost
Rate / Revenue Stability Minimizes annual swings in rates and
maximizes revenue predictability
Affordable/Minimizes shifts in Burden Should strive to minimize impact on
ratepayers
Defensible Must be transparent and defensible
Support Economic Development Promotes commercial/industrial growth
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March 26, 2024 4 of 8 Report No. FIN24-017
A two-tier water and wastewater rate structure is recommended
In consideration of the guiding principals, a two-tier (uniform with base charge) rate
structure is recommended. This rate structure consists of a base charge which recovers
all, or most of the fixed costs, and a volumetric charge which recovers all of the variable
costs in addition to any fixed costs not recovered through the base charge.
A base charge allows for the more equitable sharing of the fixed cost burden across all
potential users. Meaning all residents and businesses will contribute toward the fixed
cost recovery whether they consume water or not for a given billing period. Only those
who consume water or wastewater services would contribute toward the cost recovery
of a service’s variable costs through the volumetric charge.
Further, a base charge also allows for greater assurance of fixed cost recovery
regardless of the volume of water consumed each year. The amount of water sold each
year is variable, the demand is impacted by weather and other factors. Under a single
volumetric rate, the Town risks not being unable to fully recover all the fixed costs.
For the most part, the only variable cost for water and wastewater services is for the
purchase of water and the treatment of wastewater from York Region. These costs
represent the most significant component of these service’s total costs; being 65 for
water and 75 percent for wastewater. All other service costs, including all water and
wastewater system infrastructure renewal costs, are fixed in nature.
The Town’s recommended two-tier rate structure results in a comparable residential user
annual cost to other York Region municipalities
If the Town were to implement the recommended two-tier rate structure, it is
recommended that the new base charge fully recover the fixed costs for the water and
wastewater services. A phase in of this base charge is also a possibility.
For comparison purposes, three different rate structures for the Town were examined.
Option 1 – Current – 100% volumetric charge
Option 2 – Two Tier - Base & Volumetric Charge (base charge, 50% of fixed cost)
Option 3 – Two Tier - Base & Volumetric Charge (base charge, 100% of fixed
cost)
The impact of these three rate structure options on a typical residential water user with
an annual average water consumption of 216 m3 were examined. These rate impacts
Page 4 of 34
March 26, 2024 5 of 8 Report No. FIN24-017
were then extended to include a comparison with other York Region municipality rate
impacts. This comparison is presented under Figure 1.
Figure 1
Municipal Water & Wastewater Rate Impact on a Typical Residential Consumer
$-
$200
$400
$600
$800
$1,000
$1,200
$1,400
$1,600
$1,800
Water Wastewater
Average
All three Town of Aurora options fell under the municipal average rate impact of $1,401
per year.
If approved, the new water and wastewater rate structure would become effective in 2025
Since the Town’s May 1, 2024, water, and wastewater rates have already been approved
and that it will take time to roll out a change in the rate structure, the first opportunity to
introduce any new rate structure would be in time for the Town’s May 1, 2025, rate
update. Table 3 presents a summary of the remaining key milestones in this review.
Page 5 of 34
March 26, 2024 6 of 8 Report No. FIN24-017
Table 3
Key Remaining Review Milestones
Date Milestone / Activity
March 26, 2024 Public Open House (Complete)
May 19, 2024 Finance Advisory Committee Update
September 4, 2024 Committee of the Whole
September 24, 2024 Council possible approval of alternative water &
wastewater rate structure
December 12, 2024 Council adoption of 2025 water & wastewater rates
March 25, 2025 May 1, 2025, water & wastewater rate by-law approval
Advisory Committee Review
None
Legal Considerations
The budgets and rates for water, wastewater and stormwater operations must be
approved by Council. The proposed budgets provide sufficient resources for Town staff
to meet all statutory responsibilities of the Town as an owner and operator of systems
for water distribution, wastewater collection and stormwater collection and
management.
Financial Implications
All of the discussed alternative rate structure options are intended to be revenue neutral
to the Town; meaning regardless of the option selected, the same amount of water and
wastewater revenue is anticipated.
Water and wastewater fixed costs will continue to be subject to significant upward
pressure as the effects of inflation and the continued aging of supporting infrastructure
continue to grow over time. These growing costs will be borne by water and wastewater
users; it is important that the Town ensure this burden is shared by all customers as
equitably as possible.
Page 6 of 34
March 26, 2024 7 of 8 Report No. FIN24-017
Communications Considerations
A summary of any feedback received through this public meeting will be provided to
Council as part of the scheduled upcoming report to Committee of the Whole meeting.
The public will be well informed of any changes to the Town’s water and wastewater
rate structure.
Climate Change Considerations
None
Link to Strategic Plan
This report supports the Strategic Plan principles of Leadership in Corporate
Management, Leveraging Partnerships, and Progressive Corporate Excellence and
Continuous Improvement.
Alternative(s) to the Recommendation
None
Conclusions
In consideration of the large amount of growth and increasing water and wastewater
service costs, the Town has initiated a review of the existing rate structure. Based upon
the above principles, an alternative rate structure for the Town is proposed being a two-
tier rate structure which includes both a base and variable charge. Any feedback from
this evening’s public meeting will be considered in staff’s determination of the final rate
structure recommendation that will be brought to Council for its consideration at a
future Committee of a Whole meeting.
Attachments
Attachment 1 – Water & Wastewater User Rate Review Public Consultation Open House
Presentation
Previous Reports
None
Page 7 of 34
March 26, 2024 8 of 8 Report No. FIN24-017
Pre-submission Review
Agenda Management Team review on March 14, 2024
Approvals
Approved by Rachel Wainwright-van Kessel, CPA, CMA, Director, Finance
Approved by Doug Nadorozny, Chief Administrative Officer
Page 8 of 34
1Welcome dfaDFA Infrastructure International Inc.Attachment 1Page 9 of 34
Purpose of Tonight’s Public Open HouseyProvide an overview of the current rate structureand its challengesyPresent rate structure options and theirassessment against guiding principlesyPresent customer impacts for each ratestructure optionyObtain public feedback on the rate structure forpresentation to CouncilyNext steps/ Questions2Page 10 of 34
3Rate Study ProcessPhase 1- Rate Structure•Present Rate Structure Options & Customer Impacts• Solicit Public Input/Feedback• Obtain Council Approval of Changes to Rate Structure (Date TBD)Phase 2 - Rates•Determine the Full Cost of the Town’s W&WW systems• Develop W&WW Rates (2025 onward) to achieve andsustain full cost recovery using the approved rate structure• Prepare the Town’s Water and Wastewater Financial Plans as required under O. Reg 453/07Page 11 of 34
Two-Tier Service Delivery Structure4Current SituationService ProvidedYork Region(Wholesaler)Town of Aurora(Retailer)Water Treatment & Supply9-Water Distribution-9Portion of Water System Cost 65% 35%Wastewater Transmission & Treatment9-Wastewater Collection-9Portion of Wastewater System Cost 75% 25%Overall Water & Wastewater Costs 70% 30%Variable and Fixed Costs to Town Variable FixedThe Town pays the Region based on the volume of water purchased from the RegionPage 12 of 34
5Current SituationWater & Wastewater SystemsAmountNo. of Customers18,000Annual Water Consumption5.5 Million m32024 Costs to be Recovered from Water Customers$14 Million2024 Costs to be Recovered from Wastewater Customers$16 MillionCurrent Rate Structure100% Variablei.e. consumption in m3x rate($/m3)2024 Water Rate$2.53 per m32024 Wastewater Rate$3.00per m3of water consumedPage 13 of 34
6Current SituationResidential vs. Non-Residential ConsumptionPage 14 of 34
7Current SituationItem ChallengeCurrent Rate Structure recovers costs entirely on amount of consumption (100% variable)Revenues 100% dependent on level of consumption. Could result in budget deficits due to low consumption and less revenues (e.g. in wet years)There are 811 InactiveCustomersThese customers:9do not consume water 9do not contribute to the cost of the W&WW systemsThere are 12 UnmeteredCustomers:11 – Residential1 - CommercialThese customers pay a Flat Fee regardless of consumption. Their consumption is unknownFinancial resources to fund infrastructure renewalLimited resources & increasing costsSources of FundingUnpredictable except for revenues from the RatesPage 15 of 34
8Current SituationAsset Management Funding RequirementsCurrently in 3rdYear of IncreasesPage 16 of 34
9Rate Structure OptionsStructure DescriptionFixed FeeA single flat fee that applies to all customersUniform ChargeConstant volumetric charge that applies to all customersUniform (with Base Charge)Constant volumetric charge and base charge ( the most common in Ontario)Declining BlockVolumetric charge that decreases as water use increasesIncreasing BlockVolumetric charge that increases as water use increases$m3$m3$m3$m3$m3Page 17 of 34
10Guiding PrinciplesPrinciple DescriptionFull Cost Recovery9Recover all system costs (life cycle costs)Promote Conservation9Reduce wasteful uses9Encourage water conservationFair & Equitable9Does not unduly favour one ratepayer class over anotherEase of Administration9Easy to understand9Minimize administrative effort & costsRate/ Revenue Stability9Minimize swings in the rates from year to year 9Maximize revenue predictability (Minimize Deficits)Affordable/ Minimize Shifts in Burden9Should consider impact on various ratepayers 9May phase in changes to minimize impactDefensible9Must be transparent and defensibleSupport Economic Development9Promote commercial/industrial growthPage 18 of 34
11Evaluation of Rate StructuresStructuresGuiding PrinciplesPrinciplesRate StructuresPrinciplesRate StructuresPrinciplesRate StructuresFlat FeeUniform ChargeUniform (with Base Charge)Declining BlockIncreasing BlockFull Cost Recovery99999Promote Conservation99 9Fair & Equitable99Ease of Administration999Rate/Revenue Stability999Affordable/Minimize Shifts in Burden9999Defensible9Support Economic Development99PrinciplesRate StructuresPage 19 of 34
12Rate Structure Options for ConsiderationOption 1 Option 2 Option 3Base Charge Revenue 0.0% 17.5% 35.0%Volumetric Rate Revenue 100.0% 82.5% 65.0%Total 100.0% 100.0% 100.0%Base Charge Revenue 0.0% 12.5% 25.0%Volumetric Rate Revenue 100.0% 87.5% 75.0%Total 100.0% 100.0% 100.0%Base Charge Revenue 0.0% 15.0% 30.0%Volumetric Rate Revenue 100.0% 85.0% 70.0%Total 100.0% 100.0% 100.0%Revenue SourceWATER Cost Recovery Allocation (By Percent)WASTEWATER Cost Recovery Allocation (By Percent)BLENDED Cost Recovery Allocation (By Percent)Page 20 of 34
13Customer Impacts and Municipal ComparisonsNOTE:The following analysis shows the impact of changing the rate structure based on the 2024 rates. Once the rate structure is set then the actual rates will be developed for 2025 and beyondPage 21 of 34
14Cost Recovery Allocation(Based on Rate Structure Options Noted for Consideration)NOTE: All Rate Structure Options are Revenue NeutralOption 1 Option 2 Option 3Base Charge Revenue -$ 2,426,142$ 4,852,284$Volumetric Rate Revenue 13,863,669$ 11,437,527$ 9,011,385$Total 13,863,669$ 13,863,669$ 13,863,669$Base Charge Revenue -$ 2,054,892$ 4,109,783$Volumetric Rate Revenue 16,439,133$ 14,384,241$ 12,329,350$Total 16,439,133$ 16,439,133$ 16,439,133$Wastewater Cost Recovery Allocation (By Category)Revenue Source Water Cost Recovery Allocation (By Category)Page 22 of 34
15American Water Works Association (AWWA) Meter RatiosMeter Size Meter Ratio1 inch11-1/2 inch22 inch33 inch64 inch106 inch208 inch3210 inch46These are the industry standard for setting fixed (base) chargesThese ratios consider the fact that users with larger meters are able to take more water than those with smaller meters and therefore they should pay moreMost municipalities have implemented a rate structure that uses these AWWA ratiosPage 23 of 34
yThe AWWA Meter Ratios (by meter size) are used to recover the base charge component of cost for Rate Options 2 & 3yThe volumetric component of cost is recovered based on an estimated 5.5 million m3of water consumed16Assumptions in Setting RatesPage 24 of 34
17Assumptions in Setting RatesMeter Size (Inches)AWWA Meter Ratios Numbers of Meters Meter Equivalents1 1 17,982 17,9821.5 2 25 5023.2 26833 6 30 1804 10 16 160620 91808 32 6 19210 46 7 32218,101 19,150Customers By Meter SizeTotalMeter Equivalents mean:The number of meters when all meter sizes are converted to a “Residential Meter” with a Meter Ratio of 1Page 25 of 34
18Units to be Used in Rate CalculationsOption 1 Option 2 Option 3Meter Equivalents - 19,150 19,150Volumes (M3)5,479,711 5,479,711 5,479,711Cost Recovery Allocation (Units)Page 26 of 34
19Rates for Each Rate Structure OptionOption 1 Option 2 Option 3Annual Base Charge (1" meter)-$ 126.69$ 253.39$ Volumetric Rate (m3)2.53$ 2.09$ 1.64$ Annual Base Charge (1" meter)-$ 107.31$ 214.62$ Volumetric Rate (m3)3.00$ 2.63$ 2.25$ Annual Base Charge (1" meter)-$ 234.00$ 468.00$ Volumetric Rate (m3)5.53$ 4.71$ 3.89$ Water Cost Recovery Allocation (Water Rates)Wastewater Cost Recovery Allocation (Wastewater Rates)Blended Total Cost Recovery Allocation (Total Rates)Page 27 of 34
20Customer ImpactsOption 1 Option 2 Option 3Annual Base Charge (1" meter)-$234$ 468$Volumetric Charge 1,194$ 1,018$ 841$Total 1,194$ 1,252$1,309$Annual Base Charge (2" meter)-$749$ 1,498$Volumetric Charge 5,530$ 4,712$3,895$Total 5,530$ 5,461$5,392$Annual Base Charge (6" meter)-$ 4,680.04$ 9,360.08$Volumetric Charge 55,300.00$ 47,122.50$ 38,945.00$Total 55,300.00$ 51,802.54$ 48,305.08$Commercial Customer 1000 m3 per year Industrial Customer 10,000 m3 per yearCustomer TypeCharge TypeResidential Customer 216 m3 per yearPage 28 of 34
21Comparison of RatesAnnual Base Charge (1" meter)Volumetric Rate (m3)Annual Base Charge (1" meter)Volumetric Rate (m3)Aurora (Option 1) $ - $ 2.53 $ - $ 3.00 $ 5.53 Aurora (Option 2) $ 126.69 $ 2.09 $ 107.31 $ 2.63 $ 4.71 Aurora (Option 3) $ 253.39 $ 1.64 $ 214.62 $ 2.25 $ 3.89 Vaughan $ 228.00 $ 2.43 $ 288.00 $ 2.78 $ 5.21 Markham $ - $ 2.47 $ - $ 2.47 $ 4.94 Newmarket $ 215.88 $ 2.16 $ 254.52 $ 2.55 $ 4.70 Richmond Hill $ - $ 2.61 $ - $ 2.61 $ 5.21 Whitchurch-Stouffville $ 52.53 $ 2.40 $ 52.53 $ 3.27 $ 5.67 Georgina $ - $ 2.94 $ - $ 3.23 $ 6.17 East Gwillimbury $ 276.00 $ 2.28 $ 276.00 $ 2.19 $ 4.47 King $ 278.96 $ 2.11 $ 415.04 $ 2.60 $ 4.71 Average of Other Municipalities $ 131.42 $ 2.42 $ 160.76 $ 2.71 $ 5.14 MunicipalityWater WastewaterTotal Volumetric Rate (m3)Page 29 of 34
22Average of Other Municipalities($1,400)Municipal ComparisonResidential User Annual Cost -216 m3/ yearPage 30 of 34
23Other ConsiderationsCurrently no Revenue from Inactive AccountsMeter Size (Inches)AWWA Meter Ratios Numbers of Meters Consumption11 782-1.5 2 1 -23.2 9-36 2-410 4-620 4-832 5-10 46 4 -811 -Option 1 Option 2 Option 3Current Structure (100% Volumetric)25% Base 75% Volumetric50% Base 50% VolumetricBase -$ 301,582$ 603,164$Volumetric -$-$-$Total -$ 301,582$603,164$301,582$603,164$Inactive AccountsTotalCost Recovery Allocation (Inactive Accounts)Change in Cost Recovery Over Status QuoPage 31 of 34
24Next StepsDate ActivityMarch 26, 2024 Public Open House - CompletedMay 19, 2024 Finance Advisory Committee UpdateSeptember 4, 2024 Committee of the WholeSeptember 24, 2024Council (New water & Wastewater Rate format approval)December 14, 2024Council adoption of 2025 Water & Wastewater Rates as per new rate structureMarch 25, 2025 2025 Water & Wastewater Rate By-law approvalPage 32 of 34
25QUESTIONS ?Page 33 of 34
The Corporation of The Town of Aurora
By-law Number XXXX-24
Being a By-law to confirm actions by Council
resulting from a Special Meeting of Council
on March 26, 2024.
The Council of the Corporation of The Town of Aurora hereby enacts as follows:
1. That the actions by Council at its Special Meeting of Council held on March 26,
2024, in respect of each motion, resolution and other action passed and taken by
the Council at the said meeting is hereby adopted, ratified and confirmed.
2. That the Mayor and the proper officers of the Town are hereby authorized and
directed to do all things necessary to give effect to the said action or to obtain
approvals where required and to execute all documents as may be necessary in
that behalf and the Clerk is hereby authorized and directed to affix the corporate
seal to all such documents.
Enacted by Town of Aurora Council this 26th day of March, 2024.
Tom Mrakas, Mayor
Michael de Rond, Town Clerk
Page 34 of 34