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. Authorize staff to bring forward utility service agreements with host utility authorities.
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�Mixed Use �Efland Transition Area Reserve(only if WSMPBA is amended)�Public Interest Areas ""`"`" ° -9
�Mixed Use(only if WSMPBA is amended)[�Economic DevelopmentArea �Water Supply Area Orange County Planning and Inspections Department
GIS Map Prepared by Minam Coleman Sepiember 11,2009 N D
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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.