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2625 Alcatraz Ave, #602
Berkeley, CA 94705
Tel 510 653 3399
www.bartlewells.com
DATE: March 11th, 2025
TO: City of Foster City/Estero Municipal Improvement District
FROM: Bartle Wells Associates
SUBJECT: Wastewater Rate Study Update Results DRAFT
SUMMARY OF FINDINGS AND RECOMMENDATIONS
Introduction and Background
The Estero Municipal Improvement District (District ) engaged Bartle Wells Associates (BWA) to develop 10-year financial projections for the District ’s Wastewater Enterprise and to project wastewater rate adjustments for the next five -year period. BWA last conducted a rate study update in 2024. No public hearing was held for wastewater, as the adopted wastewater rate increase of 2% was determined to be adequate.
Current and projected w astewater service rates are in the middle-high range compared to other agencies on the Peninsula. However, because water rates are comparatively very low, combined water and wastewater service rates are in the middle-low range compared to other agencies on the Peninsula.
Wastewater Enterprise Summary
The District has entered into a Joint Powers Agreement with the City of San Mateo where the District receives treatment of its wastewater via the San Mateo Wastewater Treatment Plant (WWTP). The District is responsible for its share of operating and maintenance costs that San Mateo (as the lead agency and the contracting party) incurs treating the District’ s wastewater, as well as approximately 24% of the WWTP improvement costs and 12% of program management costs incurred as part of the Clean Water Program (CWP), a 10-year comprehensive capital improvement project initiated in 2014. The Cities of San Mateo and the District are expanding the jointly owned WWTP at an estimated cost of $748 MM with $171.9 MM of that falling under Foster City’s contributions. This is in addition to local capital projects for the District’s own wastewater collection system.
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The wastewater enterprise revenue model is designed to fund collect ion system capital expenditures through annual transfers from the operating fund to the capital improvement fund.
In June 2020, to fund the anticipated costs of the WWTP CWP improvements, the District Board approved 5 years of wastewater rate increases: three 14.25% per year increases in FY 2021 through FY 2023, a 10% wastewater rate increase in FY 2024, and a 2% increase in FY 2025. BWA’s 2023 analysis shows that the District had adequate financing capacity for projected debt issuance s in the next several years and recommended spreading the remaining rate increases out over a longer period. Thus, the City Council reduced the 10% increase in FY 2024 to 3% and implemented the final adopted 2% increase in FY 2025.
BWA recommends adopting another 5-year rate schedule for FY 2026 through FY 203 0.
San Mateo and the District were able to lock in extremely cheap financing for WWTP projects due to the timing of the financings (loan interest rates as low as 1.14% for 30 year financing) , which has allowed the District to implement lower increases than anticipated. However, there is uncertainty about future operating and capital costs for the upgraded WWTP. BWA recommends holding the wastewater rates as the current level for FY 2026 and adopting 2% annual rate increases from FY 2027 to FY 2030. The increases are recommended to be reevaluated each year as the data evolves.
Detailed wastewater rate calculations are shown in APPENDIX B.
Rate Surveys
A survey of communities along the San Francisco Peninsula was conducted to compare the District’s typical wastewater bills with neighboring communities. The results of the wastewater survey are summarized in APPENDIX A.
The District’s proposed monthly residential wastewater bill for FY 2026 is $133.49. Since it is unknown what the comparator agencies are proposing for FY 2026, the District compared its FY 2025 monthly residential wastewater bills to the FY 2025 monthly residential wastewater bills for the neighboring agencies. The survey indicates that the District’s current wastewater rates are above the average amongst its comparator agencies. The average monthly bill for the region is $122.39 and the District’s rate is $133.49 per month, or about 9% more.
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Wastewater Enterprise Fund
There are approximately 13,984 wastewater accounts serviced by the District. Most accounts are residential with the remainder consisting of commercial and institutional accounts as shown in Table 1. The wastewater service area includes Foster City only shown in APPENDIX C.
The District has approximately $27.4 million in its wastewater maintenance and operations reserve fund as shown in Table 2. The District’s minimum operating reserve target is 25% of operating and maintenance expenses (est. to be about $2.7 million). $2.7 million or 90 days of operating expenses is a minimum target to ensure adequate liquidity in case of unexpected expenditures. Wastewater utilities typically carry a median of 90 days to two years of cash on hand, with higher levels corresponding to better credit ratings. According to S&P Global’s Tabl e 1
Foster City / Estero Municipal Improvement District
Wastewater Servi ce Accounts
D
ata as of: 02/11/25
Number of Accounts
Residential
Single Fam ily 4,537
Townhouse/Duplex 2,294
Apartment/Condominium (Pools w/ Restrooms) 6,906
Re side ntial Total 13,737
Commercial
Restaurants 42
Commercial/Hotels/Offices/Industrial/Laundromats 169
Commerci al Total 211
Institutional
Institutional/Schools 36
Insitutional Total 36
Total 13,984
Source: Cognos Sewer Customer Count Report
Customer Class
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2021 U.S. Municipal Water and Sewer Sector Medians, the median AAA rated agency carries 670 days of cash on hand. BWA projections show cash on hand in the operating reserve between 500 to 600 days of operating expenses, corresponding to AA to AA+ rated agencies.
Table 3 summarizes the current wastewater service rates.
Tabl e 2
Foster City / Estero Municipal Improvement District
Wa
stewater Operati ng Fund Reserves
July 1, 2024
Fund Reserve Component Balance
Reserved for Mai ntenance & Operati on $27,401,539
Total $27,401,539
operating and capital expenditures.
Note: Rate model only includes fund reserve components available to fund ongoing Source: City of Foster City/Estero Municipal Improvement District Staff Tabl e 3
Foster City / Estero Municipal Improvement District
Current Wastewater Rates
Cur
rent
Fiscal Year Ending June 30 2025
Residential (flat monthly rate)
Single Fam ily $133.49
Townhouse/Duplex 112.13
Apartment/Condominium (Pools w/ Restrooms) 112.13
Commercial (rate per ccf of water use)
Restaurants 24.26
Commercial/Hotels/Offices/Industrial/Laundromats 8.53
Institutional (rate per ccf of water use)
Institutional/Schools 5.61
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Table 4 summarizes the operating expenses of the enterprise. Projected operating expenses are expected to increase over the next five years by about 6% annually. Projections of the District’s fair share of WWTP operating and maintenance (O&M) costs assume a District flow rate to the WWTP of 21%.
Table 4
City of Foster City / Estero Municipal Improvement District Wastewater Enterprise O&M Projection
Revised
Budget
FY2025 FY2026 FY2027 FY2028 FY2029 FY2030
Employee Services $3,056,628 $3,196,813 $3,324,686 $3,457,673 $3,595,980 $3,739,819 4.0% Additional Staffing Expense [2] 0 31,339 115,175 118,767 122,661 126,689 Vari es Internal Services (from City) 1,522,926 1,673,613 1,715,453 1,758,339 1,802,297 1,847,354 2.5% Internal Services- Equipment Replacement Fund 462,234 401,864 411,911 422,209 432,764 443,583 2.5% Services & Supplies 801,950 933,450 956,786 980,706 1,005,224 1,030,355 2.5% EMID Share WWTP O&M 3,800,000 4,000,000 4,200,000 5,200,000 5,300,000 5,500,000 N/A Reallocation [3] 1,045,077 1,095,234 1,122,615 1,150,680 1,179,447 1,208,933 2.5% TOTAL O&M Expenditures $10,688,815 $11,332,313 $11,846,626 $13,088,374 $13,438,373 $13,896,733
6.0% 4.5% 10.5% 2.7% 3.4%
[1] Based on historical results
[2] A placeholder for potential additional positions to support the wastewater enterprise. [3] Costs allocated to the wastewater enterprise for the cost of services provided to the enterprise by City departments, as documented in the City’s cost allocation study.
Annual %
Increase [1]Expenditures Five Year Projection
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Wastewater Financial Projections
Wastewater projections are shown in APPENDIX B.
Table 5 shows debt service estimates for the District’s share of WWTP costs. Annual debt service for the total debt issuances is estimated to amount to approximately $6 MM by FY 2026.
The City of San Mateo and the District used the proceeds to invest in the rehabilitation of their aging WWTP. This project aims to increase the plant's capacity to handle wet weather flows, produce higher-quality effluent, enhance system reliability, and support sustainability goals. The upgrade is designed to meet both current and future regulatory requirements and provide opportunities for future water reuse. Additionally, new treatment facilities comply with National Pollutant Discharge Elimination System (NPDES) permit limits. This upgrade will also boost the system’s ability to manage wastewater during storms and help prevent sanitary sewer overflows into the San Francisco Bay.
Key Benefits of the Project:
• Rehabilitation of the aging WWTP
• Reduction of ammonia and nitrogen effluent concentrations in compliance with the NPDES permit
• Decreased sewer overflows and unauthorized discharges into the San Francisco Bay
Table 5
City of Foster City / Estero Municipal Improvement District Debt Service
Debt Service FYE 2025
FYE 2026 FYE 2027 FYE 2028 FYE 2029 FYE 2030 FYE 2031 FYE 2032 FYE 2033 FYE 2034 FYE 2035 WIFIA Loan $730,453 $2,652,882 $2,652,882 $2,652,882 $2,652,882 $2,652,882 $2,652,882 $2,652,882 $2,652,882 $2,652,882 $2,652,882 2019 Bonds 2,084,250 2,086,875 2,087,750 2,086,875 2,084,250 2,084,750 2,088,125 2,084,375 2,083,500 2,085,250 2,084,500 2023 SRF Loan/Bonds 134,332 1,259,604 1,259,573 1,259,540 1,259,508 1,259,475 1,259,443 1,259,410 1,259,376 1,259,342 1,259,309 Total Debt Service $2,949,035 $5,999,361 $6,000,205 $5,999,297 $5,996,640 $5,997,107 $6,000,450 $5,996,666 $5,995,758 $5,997,475 $5,996,690
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Wastewater Cost of Service Analysis
BWA performed a Wastewater Cost of Service Analysis to determine equitable cost allocation to the various user classes. BWA recommends continuing the practice of placing commercial customers into three wastewater strength categories, (low, medium and high) based on the State Water Resources Control Board (SWRCB) Wastewater Revenue Program Guidelines. Low strength wastewater (Class A) customers include banks, laundromats, retail stores, schools, churches and others as shown in Table 6.
Medium strength wastewater (Class B) customers have wastewater strength factors that are assumed to be similar to residential wastewater strength factors. They include typical commercial activities such as libraries, spas, nail salons, gas stations and bars.
High strength wastewater (Class C) customers primarily include food -related businesses such as restaurants, bakeries, dairies, wineries, catering, butcher shops and fish markets.
Table 6
City of Foster City/Estero Municipal Improvement District Strength Classifications into Low, Medium/Domestic, and High Strength Dischargers
Low Strength Banks & Financial Institutions
Barber Shops/Hair Salons (hair cutting only)
Post Offices/Government
Retail Stores
Libraries
Schools
Churches, Halls & Lodges
Parking Garages
Warehouses
Medium/Commercial/ Residential - All
Domestic Strength Appliance Repair
Beauty Shops (hair cutting w/additional treatments)
Dry Cleaners
Nail Salons
Pet Groomers
Commercial Laundromats
Bars & Taverns
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Tasting Rooms
Hospitals - General, Convalescent & Veterinarian
Hotels, Motels, B&Bs, and Vacation Rentals
Offices - Business and Professional
Offices - Medical/Dental
Pools with Restrooms (Clubhouse)
Theaters
Car Washes
High Tech Medical Manufacturing
Light Manufacturing/Industrial
Gym or Health Club
Machine Shops
Service Stations, Garages, Auto Repair Shops
Mini Marts - W/O Dish Washer or Garbage Disposal
Mini Mart with Gas Pumps - W/O Dish Washer or Garbage Disposal Spa with Various Beauty Treatments
High Strength Restaurants
Coffee Shops
Ice Cream Parlors
Catering
Eatery
Bakeries
Butcher Shops
Fish Market/Shop
Markets - with Dish Washer or Garbage
Disposal
Markets - with Bakeries or Butcher Shops
Mini Marts - with Dish Washer or Garbage Disposal
Wineries
Market
Dairies (milk producers, yogurt, ice cream maker)
Specialty Foods Manufacturing (e.g., cheese or olive oil maker)
Note: Wastewater users who have Fats, Oils, and Grease (FOG) waste will be put into the High Strength user category
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Table 7 summarizes the assumed wastewater strength factors for the low, medium and high strength groups that are based on typical strengths provided in the SWRCB’s Revenue Program Guidelines. The strength factor for medium strength customers is equivalent to residential or “domestic” strength, of 1.00. The strength factor for low strength is calculated at 0.66 and for high strength is calculated at 2.85 based on the SWRCB guidelines.
Table 7
City of Foster City/Estero Municipal Improvement District Assumed Wastewater Strength Factors
Strength Class LOW LOW-MEDIUM MEDIUM HIGH
Examples: Institutional Residential Restaurant
Bank Offices Bakery
Flow (gpd) 200 168 200 200
BOD1 (mg/l) 135 240 240 1000
TSS2 (mg/l) 100 240 240 800
Strength Factor 0.66 0.84 1.00 2.85
Strength Factor Formula SF=(Flow(gpd)/200)*(0.33+(0.34*BOD(mg/l)/240)+(0.33*TSS(mg/l)/240)) WW flows and strengths based on State Water Resources Control Board's Revenue Program Guidelines 1 "BOD" stands for Biochemical Oxygen Demand
2 "TSS" stands for Total Suspended Solids
Townhouse, Duplex,
Apartment, Condo
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Table 8 summarizes the mass-balance analysis for the City’s wastewater system and calculates the wastewater rates for each customer class. Single family residences are assumed to have an average daily (dry weather) flow of 200 gallons per day (gpd). The flow estimate is based on the State Water Resources Control Board Revenue Program Guidelines Table G-1, which estimates flow in gallons per day per person for residential dwelling units to be up to 75 gallons.
Based on residential occupancy data provided by the City of Foster City, single family residences are estimated to have an average of 2.67 residents per household and multi-family residences are estimated to have an average of 2.25 residents per household (84% of a single family household).
Multi-family dwellings are billed based on an estimated flow of 168 gpd or 0.84 time s the single family flow. As a check, the mass balance in Table 8 compares the total calculated and measured daily wastewater flows for Foster City (average dry weather flow).
The results agree well with the estimated daily flow at 2 .6 million gallons per day (mgd) and the measured flow at 2.4 mgd.
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Table 8
City of Foster City/Estero Municipal Improvement District Summary of Wastewater Users by Customer Class
FY 2025 Estimate
Customer Class EDU x Flow Calculated
EDUs1 ADWF Flow ADWF Flow BOD3 TSS4 Current
(gal/day) (gal/day) (mg/l) (mg/l) Rate
Residential
Single Family Residential 4,537 200 907,400 240 240 133.49 Townhouse/Duplex 2,294 168 385,392 240 240 112.13
Apartment/Condos 6,906 168 1,160,208 240 240 112.13
Subtotal 2,453,000
Use Estimated Calculated
Accounts (gal/day) Flow Factor ADWF Flow BOD3 TSS4 Current Commercial (gal/day) (mg/l) (mg/l) Rate
Low Strength 36 46,756 65% 30,392 135 100 5.61
Medium/Domestic Strength 169 256,605 52% 133,329 240 240 8.53 High Strength 42 53,757 70% 37,630 1000 800 24.26
Subtotal 357,118 201,351
Totals 2,654,351
Check Against Lowest Actual Monthly Avg. Day Flow (May 2014 from LS 59 Flow Log): 2,367,806 1 "EDU" stands for Equivalent Dwelling Unit
2 "ADWF" stands for Average Dry Weather Flow
3 "BOD" stands for Biochemical Oxygen Demand
4 "TSS" stands for Total Suspended Solids
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Low Income Discount
Currently the District has approximately 34 customers enrolled in the Water/Wastewater Rate Assistance Program (WWRAP), which was implemented in 2020. Customers meeting the eligibility and qualification requirements below are granted a discount of up to $15 per month each on their qualifying Wastewater accounts, not to exceed a $30 per month discount per customer. To be eligible for the WWRAP, customers must show that they qualify for the PG&E CARE Program or other public assistance program or submit proof of income eligibility.
The estimated maximum potential cost of a $15/month discount for 34 wastewater customers amounts to $6,120 per year. Since the low income discount revenue sources cannot be funded with rates, rates are unaffected by the decision on the terms of the program and hence are not required to be included in a Proposition 218 notification.
The District funds the current low income discount through non-rate sources of revenue such as fines and penalties, cell tower lease and general fund revenue to maintain compliance with California Proposition 218. The discount is recommended to be provided as funds are available.
Late penalties collected year to date for wastewater in FY 2025 amounted to $27,000, exceeding the cost of the program.
APPENDIX A
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APPENDIX B
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Table 9
City of Foster City / Estero Municipal Improvement District Wastewater Enterprise Cash Flow Projection
2025 2026 2027 2028 2029 2030 2031 2032 2033 2034 2035
Assumptions:
Interest Earnings Rate 3.00% 3.00% 3.00% 3.00% 3.00% 3.00% 3.00% 3.00% 3.00% 3.00% 3.00% Revenue Increase from Growth 0.37% 0.37% 0.37% 0.37% 0.37% 0.37% 0.37% 0.37% 0.37% 0.37% Rate Adjustment 0.00% 2.00% 2.00% 2.00% 2.00% 1.00% 1.00% 1.00% 1.00% 1.00% Monthly Service Charge for Single Family $133.49 $133.49 $136.16 $138.88 $141.66 $144.49 $145.93 $147.39 $148.86 $150.35 $151.85 Beginning O&M Fund Balance $27,401,539 $28,466,000 $17,547,300 $18,795,500 $19,362,800 $20,134,800 $21,018,000 $21,879,900 $22,621,700 $24,233,100 $25,931,800 Operating Revenues
Service Charges 21,479,292 21,558,000 22,068,000 22,590,000 23,125,000 23,672,000 23,995,000 24,323,000 24,655,000 24,992,000 25,333,000 Connection Fees [1] 0 0 0 0 0 0 0 0 0 0 0
Interest Earnings [2] 822,046 854,000 526,000 564,000 581,000 604,000 631,000 656,000 679,000 727,000 778,000 Other Revenue 1,000 1,000 1,000 1,000 1,000 1,000 1,000 1,000 1,000 1,000 1,000 Operating Revenue 22,302,338 22,413,000 22,595,000 23,155,000 23,707,000 24,277,000 24,627,000 24,980,000 25,335,000 25,720,000 26,112,000 Total Revenue 22,302,338 22,413,000 22,595,000 23,155,000 23,707,000 24,277,000 24,627,000 24,980,000 25,335,000 25,720,000 26,112,000 Operating Expenses
Employee Services 3,056,628 3,196,813 3, 324,686 3,457,673 3,595,980 3,739,819 3,889,412 4,044,988 4,206,788 4,375,060 4,550,062 Additional Staffing Expense 0 31,339 115, 175 118,767 122,661 126,689 131,756 137,026 142,507 148,208 154,136 Internal Services (from City) 1,522,926 1,673,613 1, 715,453 1,758,339 1,802,297 1,847,354 1,893,538 1,940,876 1,989,398 2,039,133 2,090,111 Internal Services -ERF 462,234 401,864 411,911 422,209 432,764 443,583 454,673 466,040 477,691 489,633 501,874 Services & Supplies 801,950 933,450 956,786 980,706 1,005,224 1,030,355 1,056,114 1,082,517 1,109,580 1,137,320 1,165,753 EMID Share WWTP O&M 3,800,000 4,000,000 4,200,000 5,200,000 5,300,000 5,500,000 5,600,000 5,800,000 6,000,000 6,000,000 6,000,000 Reallocation 1,045,077 1,095,234 1,122,615 1,150,680 1,179,447 1,208,933 1,239,156 1,270,135 1,301,888 1,334,435 1,367,796 Operating Expenses 10,688,815 11,332,313 11,846,626 13,088,374 13,438,373 13,896,733 14,264,649 14,741,582 15,227,852 15,523,789 15,829,732 Operating Net Revenue 11,613,523 11,080,687 10,748,374 10,066,626 10,268,627 10,380,267 10,362,351 10,238,418 10,107,148 10,196,211 10,282,268 Capital Expens es
Transfer Out - CIP 7,600,000 16,000,000 3,500,000 3,500,000 3,500,000 3,500,000 3,500,000 3,500,000 2,500,000 2,500,000 2,500,000 Capital Expenses 7,600,000 16,000,000 3,500,000 3,500,000 3,500,000 3,500,000 3,500,000 3,500,000 2,500,000 2,500,000 2,500,000 Annual Debt Service 2,949,035 5,999,361 6,000,205 5,999,297 5,996,640 5,997,107 6,000,450 5,996,666 5,995,758 5,997,475 5,996,690 Debt Service 2,949,035 5,999,361 6,000,205 5,999,297 5,996,640 5,997,107 6,000,450 5,996,666 5,995,758 5,997,475 5,996,690 Debt Coverage [3] 3.94 1.85 1.79 1.68 1.71 1.73 1.73 1.71 1.69 1.70 1.71 Total Expenditures 21,237,850 33,331,674 21,346,831 22,587,672 22,935,012 23,393,840 23,765,099 24,238,248 23,723,610 24,021,263 24,326,422 Revenues Less Total Expenditures 1,064,489 (10,918,674) 1,248,169 567,328 771,988 883,160 861,901 741,752 1,611,390 1,698,737 1,785,578 Ending O&M Fund 28,466,028 17,547,326 18,795,469 19,362,828 20,134,788 21,017,960 21,879,901 22,621,652 24,233,090 25,931,837 27,717,378 Cash Fund Reserve Test: Minimum Fund
Balance > 25% O&M Expenses
Year-end O&M Fund 28,466,028 17,547,326 18, 795,469 19,362,828 20,134,788 21,017,960 21,879,901 22,621,652 24,233,090 25,931,837 27,717,378 25% Operating Expenses 2,672,204 2,833,078 2,961,656 3,272,094 3,359,593 3,474,183 3,566,162 3,685,396 3,806,963 3,880,947 3,957,433 # of Days O&M in Reserves 972 565 579 540 547 552 560 560 581 610 639 Pass/fail PASS PASS PASS PASS PASS PASS PASS PASS PASS PASS PASS [1] Connection fees excluded from analysis.
[2] Projected interest calculated as 3% of the Beginning Fund Balance of the Wastewater O&M Fund. [3] Minimum requirement debt service covereage requirement = 1.25x Five Year Projection Extended Year Projection
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Table 10
City of Foster City / Estero Municipal Improvement District P
rojected Wastewater Rate Impacts
Current
FY2025 FY2026 FY2027 FY2028 FY2029 FY2030
% Rate Increas e 0.00% 2.00% 2.00% 2.00% 2.00%
Residential (flat monthly rate)
Single Family $133.49 $133.49 $136.16 $138.88 $141.66 $144.49 Increase (Decrease) 0.00 2.67 2.72 2.78 2.83
Townhouse/Duplex $112.13 $112.13 $114.37 $116.66 $118.99 $121.37 Increase (Decrease) 0.00 2.24 2.29 2.33 2.38
Apartment/Condominium (Pools w/ Restrooms) $112.13 $112.13 $114.37 $116.66 $118.99 $121.37 Increase (Decrease) 0.00 2.24 2.29 2.33 2.38
Commercial (rate per ccf of water us e)
High Strength $24.26 $24.26 $24.75 $25.25 $25.76 $26.28 Increase (Decrease) per ccf 0.00 0.49 0.50 0.51 0.52
Medium/Domestic Strength $8.53 $8.53 $8.70 $8.87 $9.05 $9.23 Increase (Decrease) per ccf 0.00 0.17 0.17 0.18 0.18
Low Strength $5.61 $5.61 $5.72 $5.83 $5.95 $6.07
Increase (Decrease) per ccf 0.00 0.11 0.11 0.12 0.12
Projected - Fiscal Year Ending June 30Projected Rates
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Table 11
City of Foster City / Estero Municipal Improvement District Projected Wastewater Rate Impacts
Current
FY2025 FY2026 FY2027 FY2028 FY2029 FY2030
% Rate Increas e
Single Family Residential Flat Monthly Flat $133.49 $133.49 $136.16 $138.88 $141.66 $144.49 $ Increase (Decrease) 0.00 2.67 2.72 2.78 2.83
% Increase (Decrease) 0.00% 2.00% 2.00% 2.00% 2.00%
Projected - Fiscal Year Ending June 30Rate Change Scenarios
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$133.49 $133.49
$136.16
$138.88
$141.66
$144.49
$120
$130
$140
$150
FY2025 FY2026 FY2027 FY2028 FY2029 FY2030
Foster City/Estero Municipal Improvement District
Monthly Single Family Residential Wastewater Bill
Projected SFR Monthly Bills
APPENDIX C
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