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ImplementationReportTownofTupperLakeSewerDistrictConsolidationOctober2017
Preparedfor:
TownofTupperLakeWater&SewerDistrictConsolidationStudyCommittee
Patricia Littlefield, Town of Tupper Lake Supervisor Samantha Davies Laurie Fuller Paul O’Leary John Quinn, Councilman Paul Maroun, Mayor of Tupper Lake Mary Casagrain Mark Robillard
ThisdocumentwaspreparedwithfundingprovidedbytheNewYorkStateDepartmentofStateundertheLocalGovernmentEfficiencyGrantProgram–ContractNo.T00020GG-3800.
Preparedby:
WarneckPumpStation23557NYSRoute37Watertown,NY13601www.danc.org
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TableofContents1. INTRODUCTION....................................................................................................................................1
2. ELEMENTSOFPROPOSEDCONSOLIDATIONAGREEMENT...................................................................2
A) NAMEOFEACHLOCALGOVERNMENTTOBECONSOLIDATED........................................................2
B) NAMEOFPROPOSEDCONSOLIDATEDLOCALGOVERNMENT..........................................................2
C) RIGHTS,DUTIES&OBLIGATIONOFPROPOSEDCONSOLIDATEDTOWN..........................................2
D) TERRITORIALBOUNDARIES...............................................................................................................2
E) TYPEAND/ORCLASSOFTHENEWCONSOLIDATEDLOCALGOVERNMENT.....................................4
F) GOVERNMENTALORGANIZATIONOFPROPOSEDCONSOLIDATEDSPECIALDISTRICTS...................4
G) FISCALESTIMATEOFTHECOSTSOFANDSAVINGSREALIZEDFROMCONSOLIDATION...................5
H) EACHDISTRICT’SASSETS...................................................................................................................7
I) EACHDISTRICT’SLIABILITIESANDINDEBTEDNESS...........................................................................9
J) TERMSFORDISPOSITIONOFEXISTINGASSETS,LIABILITIES&INDEBTEDNESS................................9
K) TERMSFORTHECOMMONADMINISTRATIONANDUNIFORMENFORCEMENTOFLOCALLAWS,ORDINANCES,RESOLUTIONS,ETC............................................................................................................9
L) EFFECTIVEDATEOFTHEPROPOSEDCONSOLIDATION...................................................................10
M) TIMEANDPLACE(S)FORPUBLICHEARING.....................................................................................10
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1. INTRODUCTION
ThisdocumentsetsforththeConsolidationImplementationPlanfortheTownofTupperLake’s
Sewer Districts that was developed by the Tupper Lake Water/Sewer Consolidation Study
Committee. ThePlan is the culminationof a ninemonth study that the Townundertook to
determine the impacts of consolidationof sewerdistricts on rates and servicedelivery. The
purposeof thisConsolidation ImplementationPlan is to summarize theactions thatwill take
placetomoveforwardwithTownSewerDistrictConsolidationandtoprovidedetailsonhow
services,willcontinueafterconsolidation. ThisPlanwillbesubmittedtotheTownofTupper
LakeTownboardforadoptionattheirNovember16,2017boardmeeting.IftheConsolidation
Implementation Plan is approved by the Town board, the Town will proceed with actions
neededtoconsolidatethesewerdistrictsasoutlinedinthisplan.
ThisreportisbeingfundedbyandpreparedinaccordancewiththeNewYorkStateDepartment
of State (DOS) Work Plan requirements, as outlined in Contract No. T00020GG-3800. The
DepartmentofStateprovides fundingofup to$50,000 (90%grant,10%municipal share) for
activities associated with the implementation of consolidation. This Consolidation
Implementation Plan identifies items that are recommended for completion prior to, or in
conjunctionwith,consolidationandtheestimatedcostsofcompletion.
The following sections of the Consolidation Plan follow the requirements outlined in the
Government Reorganization and Citizen Empowerment Act (NYS Department of State,
3/21/10).
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2. ELEMENTSOFPROPOSEDCONSOLIDATIONAGREEMENT
A) NAMEOFEACHLOCALGOVERNMENTTOBECONSOLIDATEDSeventeendebt-freesewerdistrictsaretobeconsolidatedandtheyinclude:1,2,4,6,8-1,8-2
Other,11,13,14,15,18,20,21,22,24,25,26. Thereare sevendistricts thathaveexisting
debt. TheyincludeNo.5,8-2(paidoff in2019),16(paidoff in2019),17,17-1,17-2,and23.
Asadistrictpaysoffitsdebt,thosedistrictscanalsobeconsolidatedintothesingle“debt-free”
district.Throughconsolidationthetotalnumberofsewerdistrictswillbereducedfrom24to8
immediatelyandafterdistricts8-2and16payofftheirdebtin2019theycouldbeaddedtothe
consolidateddistrict,bringingthetotalnumberofsewerdistrictsto6.
B) NAMEOFPROPOSEDCONSOLIDATEDLOCALGOVERNMENT
ThenameofthenewconsolidatedSewerDistrictwillbeSewerDistrictNo.1.
C) RIGHTS,DUTIES&OBLIGATIONOFPROPOSEDCONSOLIDATEDTOWN
Therewillbenochangetotherights,duties,andobligationsoftheconsolidatedspecial
districts.Theproposedconsolidatedsewerdistrictsshallassumetherights,dutiesand
obligationsoftheformerTownofTupperLakesewerdistricts.Anycontractsspecifictoexisting
Townsewerdistrictswillbeamendedtoreflectthenewconsolidateddistricts.
D) TERRITORIALBOUNDARIES
Please see Figures 1 for amap showing the existing sewer district boundaries andproposed
boundaries.
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FIGURE1-TOWNOFTUPPERLAKESEWERDISTRICTS
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E) TYPEAND/ORCLASSOFTHENEWCONSOLIDATEDLOCALGOVERNMENT
The consolidated special districtwill be a sewerdistrict establishedpursuant toArticle 12-A.
According to theOfficeof theNewYork StateComptroller, a special district is definedas “a
geographic areawithin a town established to address specific needs of the property owners
withinthatdistrict,utilizingchargesand,insomecases,userfeespaidbytaxpayerswithinthe
districttofinancetheseservices.Specialdistrictswerestatutorilyauthorizedtoassisttownsin
adjusting to patterns of growth that were not town-wide, and have been used liberally by
townsoverthelastseveraldecadestoaddressincreasedresidentialneeds.”1
F) GOVERNMENTAL ORGANIZATION OF PROPOSED CONSOLIDATED SPECIALDISTRICTS
The organization will be consistent with NYS Town Law, NYS General Municipal Law, the
ConstitutionoftheStateofNewYork,andwillcomplywithallrules,regulationsandlawsofthe
State ofNew York. The consolidated sewer districtswill continue to bemanaged as special
districtsbytheTownofTupperLake.Therewillbenoimpactonelectedorappointedofficials
andpublicemployeesassociatedwithsewerdistrictconsolidation.
ConsolidationoftheTowns’sewerdistrictswouldhaveno impactonthedeliveryofservices.
TheTownwouldcontinuetooperateitssystemsutilizingVillagelaborinaccordancewiththe
existingInter-MunicipalAgreementbetweentheTownandVillage.TheVillagewouldcontinue
to bill Town customers on a monthly basis for usage and the Town would continue to bill
customersannuallyontheirCountypropertytaxbillsfordistrictandmaintenancecharges.
1https://osc.state.ny.us/localgov/pubs/research/townspecialdistricts.pdf
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G) FISCAL ESTIMATE OF THE COSTS OF AND SAVINGS REALIZED FROMCONSOLIDATION
The Town of Tupper Lake’s sewer districts have evolved over decades into a complex and
administratively cumbersomesystem tomanage. By consolidatingdistricts, consistent sewer
lawswouldbeestablishedtogovernalldistricts,administrativefunctionscouldbestreamlined,
andefficienciesgainedattheVillage,TownandCountywithrespecttothemanagementand
billingofTownsewercustomers.
From an infrastructure management perspective, through district consolidation, the Town
couldmore sustainablymanage its sewer infrastructurebyestablishingoperating reserves to
planforupcominginfrastructuremaintenanceandreplacement.ThiswouldallowtheTownto
stabilizeratesandeliminatetheneedforinter-fundborrowingtodealwithendofyeardeficits.
TheDepartmentofStateprovidesgrantfundingforupto$50,000permunicipalityforactivities
associated with consolidation. For the Village and Town of Tupper Lake this could total
$110,000with$100,000ofthefundingbeingprovidedthroughgrantandtheVillageandTown
covering the remaining10%.The following itemshavebeen identified for inclusion inVillage
andTownImplementationGrants.TheseitemswillnotimpactVillageorTowntaxratesasthey
willbepaidforwillNYSDepartmentofStategrantfundsandVillagefundbalancetocoverthe
localshare:
1) TownOfficeAccessImprovements:TownwatercustomerspaytheirbillsattheTownof
TupperLakeoffices.Thecurrentbuildingisnotfullyhandicapaccessible.TheTownhas
aproposedproject to improveaccess to thebuildingandco-fundingof$27,000 from
theNYSDepartmentofStatewouldenablethisprojecttoproceed.
2) VillageOfficeAccess Improvements: TownandVillagewatercustomersalsopaytheir
monthlysewerbillsattheVillageofTupperLakeOffices.Thecurrentbuildinghasbeen
modifiedtobemorehandicapaccessiblebutadditionalimprovementsarestillneeded
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includingadditionalsignage,etc.TheVillagehasaproposedprojecttofurtherimprove
accesstothebuildingwithestimatedcostsof$13,000.
3) RateStudy/EDU-BasedBilling:Theestimatedcosttocompletearatestudythatwould
evaluate the impacts of converting to an EDU-based billing system is $10,000. This
studywouldhelpstandardizebillingpracticesandensureamoreconsistentmethodfor
assigningusercosts.
4) Sewer District Consolidation: The estimated cost to complete the sewer district
consolidationlegalprocessis$5,000.
5) Sewer Billing SoftwareUpdate: The estimated cost to upgrade the Village and Town
computers, software, printers andother technologyused to complete sewer billing is
$20,000fortheVillageand$10,000fortheTown.
6) LocalLawRevisions:Theestimatedcosttocompleteadetailedreviewofintermunicipal
agreements and sewer local laws, and to develop new or amended Town laws is
$10,000;$8,000forTownlawupdatingand$2,000forVillagelawupdating.
7) AssetManagementPlans:TheVillageandTownwould like todevelopcomprehensive
assetmanagementplansforsewerinfrastructure.Theseplanswouldincludeadetailed
assetinventory,assetlife,recommendedpreventivemaintenancetasksandfrequencies
of maintenance, and recommendations for annual contribution to replacement
reserves. TheestimatedcosttocompleteassetmanagementplansfortheVillageand
Town’sinfrastructureis$10,000fortheVillageand$5,000fortheTown.
Thetablebelowsummarizesitemstobeconsideredforimplementationgrants:
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ImplementationGrantBudget Village TownTown/VillageOfficeAccessibilityImprovements $13,000 $27,000RateStudy/ConversiontoEDU-basedBilling $10,000 $0SewerDistrictformation $0 $5,000SewerBillingSoftware/HardwareUpdates,digitizingwater/sewerbillingrecords
$20,000 $10,000
LocalSewerLawRevision $2,000 $8,000AssetManagementPlansforSewerInfrastructure $10,000 $5,000Totals $55,000 $55,000
H) EACHDISTRICT’SASSETS
Thevalueofthesewerdistrictassets iscomprisedoftwocomponents:1) fundbalancesthat
are associated with each district; and 2) the value of the infrastructure associated with the
district(i.e.,pipes,valves,pumps,etc.)
AsofFYE16theTownhadthefollowingfundbalancesintheirseweraccountstotaling$28,258:
DistrictNumber FundBalance
SewerDistrict1 $9,943SewerDistrict2 $908SewerDistrict4 $1,091SewerDistrict6 $7,450SewerDistrict8-1 $1,498
SewerDistrict8-Other $0SewerDistrict11 $0SewerDistrict13 $0SewerDistrict14 $0SewerDistrict15 $628SewerDistrict18 $6,129SewerDistrict20 $0SewerDistrict21 $611SewerDistrict22 $0SewerDistrict24 $0SewerDistrict25 $0SewerDistrict26 $0
TOTAL $28,258
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To estimate the value of the infrastructure associated with the districts, an inventory was
compiled that quantifies themajor components of each district, the approximate age of the
system, and the materials of construction. This information was shared with the Town’s
engineertoobtainanapproximateestimateofthevalueoftheinfrastructure.
District Parcels EDU
Pipe
Age GrinderPumps
PumpStation
EstimatedValueofDistrictAssets
Force(ft.) Gravity(ft.)
Total Diameter Material
SD01 112 112 2,927 7,245 10,172 2-8" PVC/Transite 1970 6private $263
SD02 12 12 0 1,437 1,437 8" Transite 1977 0 $0
SD04 8 8 0 1,764 1,764 8" Transite 1977 0 $0
SD06 2 2 DirectlyonVillage/Townline;lateralconnectioninfrastructureonlyandmaintainedprivately $0
SD08-1 30 30 260 2,700 2,960 4-8" PVC 1980 1private 1 $3,404
SD08-2Other 2 2 Twopropertyownerspaidofftheirportionofthedebtinfull,andareonlytaxedforthemaintenancefeein
thisdistrict$0
SD11 5 5 0 555 555 8" Clay 1930 0 $0
SD13 2 2 0 919 919 4-6" PVC 1958,1988 0 $855
SD14 1 1 0 1,200 1,200 8" PVC 1988 0 $2,976
SD15 19 19 0 3,500 3,500 8” PVC 1990 0 $9,485
SD18 1 1 DirectlyonVillage/Townline;lateralconnectioninfrastructureonlyandmaintainedprivately $0
SD20 5 5 0 2,197 2,197 8" Transite/ClayTile
1993 0 $15,800
SD21 6 6 DirectlyonVillage/Townline;lateralconnectioninfrastructureonlyandmaintainedprivately $0
SD22 2 2 0 183 183 6” PVC 1996 0 $470
SD24 5 5 3,236 2,899 6,135 4-8" PVC 2002 0 1 $35,760
SD25 12 12 2,484 0 2,484 4-6" PVC 2005 0 1 $28,720
SD26 3 3 DirectlyonVillage/Townline;lateralconnectioninfrastructureonlyandmaintainedprivately $0
TABLE1-TOWNOFTUPPERLAKESEWERDISTRICTINFRASTRUCTURE
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I) EACHDISTRICT’SLIABILITIESANDINDEBTEDNESS
Sinceonlydebt-freesewerdistrictswillbeconsolidatedtherewillbenodebtwiththenewly
formedconsolidateddistrict.
J) TERMS FOR DISPOSITION OF EXISTING ASSETS, LIABILITIES &
INDEBTEDNESS
Personal property and other fixed assets owned by the special districts at the time of
consolidationwillbecomethepropertyoftheconsolidateddistrict.Personalpropertyincludes
vehicles,equipment,officefurniture,computers,andanyotheritemcommonlyconsideredto
bepersonalproperty.Fundbalancesexistingatthetimeofconsolidation,willbetransferredto
theconsolidateddistrict. There isnoexistingdistrictdebtthatwillneedtobetransferredto
thenewlyformedconsolidateddistricts.TheTownofTupperLakecannotprojectwhetheror
not therewillbeuncollectedtaxesuponthedateofconsolidation;however,anyuncollected
taxeswillhavebeenturnedovertheCountypercurrentpracticeandtheCountywillmakethe
Townwhole.
K) TERMS FOR THE COMMON ADMINISTRATION AND UNIFORM
ENFORCEMENTOFLOCALLAWS,ORDINANCES,RESOLUTIONS,ETC.
As part of this study, a comprehensive review of Town of Tupper Lake’s sewer laws was
performedtodetermine lawsthatshouldbeconsideredforupdatingaspartofconsolidation
implementationprocess.Thefollowingidentifiesthelawsrecommendedforupdating.
• Village-Town Intermunicipal Agreement for Water and Sewer Districts executed
9/10/01,updated9/1/05
• VillageSewerlaws
• AdoptionofnewTownSewerlaws
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These local lawswouldbeapplieduniformlyacrossallTownsewerdistricts,unlessthe lawis
specifically written to only apply to a certain district or area. Additionally, Inter-municipal
Agreement(IMA)thatdefinethetermsfortheVillageprovidingwaterandsewerservicetothe
Town’sdistrictswillbeupdatedtoreflectthenewlyconsolidateddistricts.
L) EFFECTIVEDATEOFTHEPROPOSEDCONSOLIDATIONTheeffectivedatefortheconsolidationofwaterandsewerdistrictswillbe12/31/18.
M) TIMEANDPLACE(S)FORPUBLICHEARING
TheTownofTupperLake,atitsTownBoardMeetingonOctober12,2017,passedaresolution
to endorse the Sewer District Consolidation Plan and set the date of the Public Hearing at
November16,2017.