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HomeMy WebLinkAboutAgenda - 10-05-2010 - 7cORANGE COUNTY BOARD OF COMMISSIONERS ACTION AGENDA ITEM ABSTRACT Meeting Date: October 5, 2010 Action Agenda Item No. ~ - G SUBJECT: Orange County Water and Sewer District Concept DEPARTMENT: Manager's Office Planning and Inspections; County Attorney; Economic Development PUBLIC HEARING: (Y/N) No ATTACHMENT(S): 1. Central Orange County Land Use Map 2. City of Mebane Existing Utility Service Area Map 3. Efland Case Study INFORMATION CONTACT: Frank Clifton, County Manager, 245-2300 Craig Benedict, Planning Director, 245-2592 John Roberts, County Attorney, 245-2318 Brad Broadwell, Economic Development Director, 245-2326 Kevin Lindley, Staff Engineer, 245-2583 PURPOSE: To provide for BOCC consideration the concept of creating county water and sewer districts in Orange County. BACKGROUND: Orange County government has expressed interest in developing water and sewer infrastructure in land use areas designated for economic development by the 2030 Comprehensive Plan (see Attachment 1). This infrastructure is a necessary prerequisite to improving the growth potential and associated tax base of these planned commercial and office zones along the interstate. The creation of a water and sewer district authorized by state statute NCGS 162A 86-101 is a mechanism to specifically designate and create an authority governing the location, design, installation, operation, taxing, and financing of a district. The quarter of one cent sales tax referendum in November 2010 would be another source of revenue to comprehensively develop these economic development zones with a master planned utility `backbone'. Land Use and Infrastructure: Orange County has over 4,000 acres of urban transition areas where higher levels of density and intensity are planned. However, it is difficult for any one project within the transition areas to financially accommodate constructing major offsite utility infrastructure. Connecting the project back to the sewer outfall or water transmission system of the host utility authority responsible for sewer and water treatment plan operations is critical. The aforementioned `backbone' utility system by the County would permit individual projects along the corridor to connect to the master system and back to the host utility facilities. Orange County is in the process of amending and/or creating utility service agreements with the City of Mebane (Efland, Mebane, Buckhorn area; see Attachment 2) and City of Durham (Eno Economic Development District). As a related matter, these districts can also complement the County's `urban' transition land use areas (which also includes residential zones) where public water and sewer is in place or planned in accordance with the countywide Water and Sewer Management, Planning, and Boundary Agreement (WASMPBA). This district concept can be a method to spread the cost of operating and capitalizing an area to both development and undeveloped properties where water and sewer is available or may be available. Efland Relevance: As an example of the usage for a district, the County has owned and operated a sewer collection system in the community of Efland since 1988. Historically, the difference between revenues generated from customer billing and the operating costs of the system has been made up with appropriations from the Orange County General Fund. A 2008 study showed that to generate enough revenue to cover operation costs and future capital needs, the rate at the time would have to be increased by 300-400% over a five year schedule. Rate increases at several public meetings have been discussed. Staff has met with several customers individually and with Justice United, an Orange County based social advocacy group, regarding the need for the increases and potential ways to reduce the ultimate rate that will need to be charged to Efland customers. The sewer district concept is one of the ways that has been discussed by staff to lower the ultimate necessary sewer rate. Water and Sewer District Conceat: The State grants to counties the ability to define water and sewer districts within the county, pursuant to North Carolina General Statutes (NCGS). The district would be a municipal corporation, with the Board of County Commissioners (BOCC) serving as the governing body of the district. As a municipal corporation, the district is granted a number of powers by the NCGS referenced above, namely: - Authority to issue bonds for the purpose of providing water and/or sewer service to the district with benefits to existing and future residents and businesses - Ability to levy a separate water and/or sewer tax on properties located in the district to support the operation and maintenance of the utility and/or to pay debt service on bonds - Ability to contract with private entities, such as with an engineering consultant to design sewer infrastructure for the district - Authority to proceed with eminent domain - Authority to create special assessments for projects in the district Districts and Subdistricts: Orange County could create multiple districts that are unique to the conditions or the potential of public water and sewer service. Each district would have a definitive boundary and the associated organizational and business aspects would be tailored accordingly. Districts can be enlarged by a type of annexation into the district. These water and sewer districts would be consistent with the County's 2030 Comprehensive Plan which notes the County's intention for a higher level of land use and economic development potential. First Steas: In order to create a utility district, the BOCC must hold a public hearing to receive public comment on the project and comply with the provisions established in NCGS 162A-87(a); To wit; "Following the public hearing, the BOCC may, by resolution, create a county water and sewer district if the BOCC finds that: 1. There is a demonstrable need for providing in the district water services, or sewer services, or both; 2. The residents of all the territory to be included in the district will benefit from the district's creation; and 3. It is economically feasible to provide the proposed service or services in the district without unreasonable or burdensome annual tax levies." Prior to publishing notice of the hearing, staff would create a map of the proposed Efland / Buckhorn / Mebane area water and/or sewer district boundaries and a narrative describing the purpose of the district and aspects of the public hearing. Related Efland Matters: Sewer collection service is already available in part of the Efland community and defining a water and sewer district would involve analyzing which properties could be served by the existing water and sewer system. Continuing collaboration with Orange Alamance Water System (OAWS) and the Efland Volunteer Fire Department would also assist in defining boundaries. Creating a water and sewer district would allow the County to define the existing service area and create a district sewer tax, similar to a fire or school district tax, which could be used to provide an additional revenue stream to the Efland sewer enterprise fund and possibly to provide improved fire suppression systems. (See Attachment 3 for applicability to the Efland area) FINANCIAL IMPACT: Other than committing staff time to the project, there is no financial impact associated with authorizing staff to designate the boundary of a water and sewer districts and gather information needed for a public hearing on the creation of said districts. RECOMMENDATION(Sj: The Manager recommends the Board: 1. Authorize staff to move forward with the creation of an Efland/Buckhorn/Mebane water and sewer district map and other materials needed for a public hearing; 2. Authorize staff to research the creation of other utility districts consistent with the Comprehensive Plan; and 3. 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North Carolina State Plane(feet) � �Agricultural Residential �Resource Protection Areas Datum: North Amencan 1983 (7 [�Rural Residential """, Municipal Jurisdiction Town Limits � [__.]Munici al Jurisdiction Extra-Territorial Jurisdiction ETJ � � � N Attachment 3 0 Efland Community Case Study In the Efland Community area, there are roughly 350 parcels (+/- 10%) which could be served by the existing Efland sewer system. These parcels have a total area of approximately 300 acres and a valuation of approximately $40 million. These parcels could be formed into a water and sewer district following the procedures outlined in NCGS 162A 86-101. One possible water and sewer tax scenario is given below. Potential Water and Sewer Tax scenario in the Efland Community - Assume 350 parcels in the "test" district - Assume valuation of $40 million for the "test" district - Assume 300 acres of land in the 350 parcels in the "test" district - Use afive-cent water and sewer tax per $100 of property valuation - Approximately $20,000 revenue generated per year to fund operation, maintenance and/or debt service on water or sewer system. - Average of $57 per parcel per year - Average of $67 per acre per year This is only one scenario and is based on an assumption of the size and valuation of one potential water and sewer district. Before an actual district was formed, a definite boundary and parcel count would be determined, along with the corresponding valuation data. For comparison, the general fund allocation that has been budgeted this 2010-2011 fiscal year to cover the Efland sewer system's projected revenue shortfall is $95,000.