August 19, 2025 Regular Meeting
Upper Thompson Sanitation District
Regular Meeting of the Board of Directors
District Administrative Conference Room
Pursuant to C.R.S., §32-1-903, notice is hereby given to the members of the Upper Thompson Sanitation District Board of Directors and to the general public that the Board will hold its regular meeting, which is open to the public, at 4:00 p.m. on Tuesday, August 19, 2025, at the Upper Thompson Sanitation District Administrative Office, 2196 Mall Road, Estes Park, CO, 80517. Individuals who wish to address the Board via public participation may do so “in-person,” via telephone, or virtually through online participation, facilitated by the Zoom platform. Members of the public wishing to join the meeting via online or telephone participation, please email a request for the meeting link or telephone number to Ms. Gina Moore, Financial Officer, at gina@utsd.org by 2:00 p.m. on August 19, 2025.
Agenda
- Call to Order.
- Pledge of Allegiance.
- Roll Call, Absences Excused.
- Next Meeting Date: Regular Board Meeting, Tuesday, September 23, 2025.
- Agenda: Correction and Approval.
- Disclosure of Potential Conflicts of Interest.
- Public Forum: An opportunity for presentation by the public to provide information to the Board of Directors on any non-agenda item. Note: The Board cannot take any action on non-agenda items but may direct staff to include the item on a future agenda.
Public Comment on Agenda Items: Public comments will be heard by the Board at the conclusion of the presentation of the agenda item. Persons addressing the Board shall first be recognized by the District Manager or Board Chairman and may speak only one time per agenda item. Speakers shall state their name and address for the official minutes, address comments to the Board as a Body, and shall be allotted three (3) minutes for public comment.
All public commentary must be made at the podium or offered virtually via Zoom Chat. - Minutes: Correction and Approval: Regular Board Meeting, July 15, 2025.
- New Business and Special Orders:
- Customer Commentary: Metered service fees for bed and breakfast business located at 832 Whispering Pines Drive, Estes Park, CO - presented by Donal O'Leary.
- Appointment of Budget Officer for 2026 Budget – presented by Ms. Jurgens.
- Request for Approval: Agreement Between Owner and Engineer for Professional Services Task Order Edition – presented by Ms. Jurgens.
- Request for Approval: Agreement Between Owner and Engineer for Value Engineering and 20% Complete
Design Professional Services – presented by Ms. Jurgens. - Update: Phase II - Water Reclamation Facility (WRF) and Lift Station Improvements Project – presented by
Mr. Ravel, P.E., Senior Project Manager, AE2S. - Discussion: Consideration of 2026 service rates and fees – facilitated by Mr. Ravel, P.E., Senior Project Manager, AE2S.
- Reports from Officers, Committees, and Staff: Questions, Comments, Correction and Approval:
- Treasurer’s Report.
- Plant Report.
- System Development Fee Allocation and Connection Report.
- Collection System Report.
- Operations Manager’s Report.
- District Manager’s Report.
- Adjournment.
Upper Thompson Sanitation District (District) prohibits discrimination against its customers, employees, and applicants for employment on the basis of race (including traits historically associated with race, such as hair texture and length, protective hairstyles), color, ethnic or national origin, ancestry, age, disability, sex, gender, sexual orientation, gender identity and expression, religion, creed, political beliefs, marital status, familial or parental status in employment or in any program or activity conducted by the District. The District will make reasonable accommodations for qualified individuals with known disabilities. If any person has a disability and requires a reasonable accommodation to fully participate in this event, please contact District Manager, Ms. Suzanne Jurgens, three days before the event via email at suzanne@utsd.org, or telephone at 970-586-4544, or dial 711 to connect with Relay Colorado.
Record of Proceedings
Minutes Of a Regular Meeting of the Board of Directors Of
Upper Thompson Sanitation District
Held: August 19, 2025, at 4:00 p.m., at the
District Office, 2196 Mall Road, Estes Park, Colorado
Call to Order
A regular meeting of the Board of Directors of the Upper Thompson Sanitation District, Estes Park, Colorado, was called to order at 4:01 p.m. and held as shown above and in accordance with the applicable statutes of the State of Colorado with the following Directors present and acting:
Pledge of Allegiance
The Pledge of Allegiance was recited.
Attendance
Board of Directors:
Christopher Eshelman, Chairman
Susan Doylen, Vice-Chairman/Secretary
Michael Morton, Treasurer
Kent Bosch, Assistant Treasurer/Secretary, joined via web conference call
Andrew Kessler, Assistant Secretary/Treasurer
Staff:
Suzanne Jurgens, District Manager
Gina Moore, Financial Officer
Matt Allen, Operations Manager
Henry Newhouse, Plant Superintendent
Sheryl Panzer, Customer Accounts Manager
Cristie Rambeau, Customer Accounts Specialist
Naomi McCracken, Secretary (at 4:00 p.m., joined via web conference call, at 5:06 p.m., arrived at the meeting in person)
Invited Guests:
Steve Ravel, P.E., Senior Project Manager, Advanced Engineering and Environmental Services (AE2S) Brian Gaddie, P.E., Operations Manager, Advanced Engineering and Environmental Services (AE2S) Krzysztof Walder, Senior Digital Producer and Commercial Lifestyle Photographer, Studio Six Branding (present throughout meeting taking photos for UTSD website and media publications)
Next Meeting Date
A regular meeting of the Board of Directors will be held on September 23, 2025, at 4:00 p.m.
Approval of Agenda
The Board considered the Agenda.
It was moved by Ms. Doylen and seconded by Mr. Morton to approve the Agenda as presented. Motion carried unanimously.
Disclosure of Potential Conflicts of Interest
Disclosure of potential conflicts of interest is a topic of discussion at every Board meeting to address potential conflicts of interest that may arise as new agenda items are introduced. District Directors who have disclosed potential conflicts of interest can vote as issues arise.
Public Forum
Mr. Eshelman opened the meeting for public comment.
Mr. Eshelman explained the Public Forum is an opportunity for presentation by the public to provide information to the Board of Directors on any non-agenda item. He further explained the Board cannot take action on non-agenda items but may direct staff to include the item on a future agenda.
Regarding public comment on Agenda Items, Mr. Eshelman provided the following statement:
Public comments will be heard by the Board at the conclusion of the presentation of the agenda item. Persons addressing the Board shall first be recognized by the District Manager or Board Chairman and may speak only one time per agenda item. Speakers shall stand at the podium, state their name and address for the official minutes, address comments to the Board as a Body, and shall be allotted three (3) minutes for public comment.
In attendance was Ms. Rebecca Urquhart, of 1955 Homestead Lane, Estes Park. Ms. Urquhart indicated she was observing the meeting on behalf of the League of Women Voters. Ms. Urquhart did not offer comment on a non-agenda item.
In attendance via web conference call, was Mr. Stewart Squires, of 618 Park River Place, Estes Park. Mr. Squires did not offer comment on a non-agenda item.
Approve Minutes from Prior Meeting:
The Board reviewed and discussed the Minutes of the July 15, 2025, Regular Board Meeting.
It was moved by Ms. Doylen and seconded by Mr. Kessler to approve the Minutes of the July 15, 2025, Regular Board Meeting as presented. Motion carried unanimously.
New Business and Special Orders:
Customer Commentary: Metered Service Fees for Bed and Breakfast Business Located at 832 Whispering Pines Drive, Estes Park, CO - presented by Donal O'Leary:
The Board welcomed Mr. Donal O'Leary, business owner of 832 Whispering Pines Drive, LLC in Estes Park. Mr.O' Leary addressed the Board regarding the increase to his metered service fees implemented in year 2025. The base rate for one Single Family Equivalent (SFE) increased from $865 in 2024 to $956 in 2025. Additionally in 2025, metered customers incur a metered charge of $16.96 per 1,000 gallons of water used beyond 14,052 gallons per quarter along with a data collection fee of $12.15 per month for each metered connection.
Mr. O' Leary explained to the Board that he converted his home at 832 Whispering Pines Drive into a bed and breakfast, paid development fees, and installed water-saving fixtures based on intentions that his ongoing bills would decrease if he kept usage below the SFE allotment. Mr. O'Leary's said his bills have increased per quarter under the new billing structure, substantially increasing the sanitary sewer service cost on an annual basis even though he uses fewer gallons than allocated. Mr.O' Leary commented that this is an unfair outcome for small businesses like his and although he understands periodic increases, this policy disproportionately affects business customers who have lower than allocated usage. Mr. O' Leary stated he appreciates the opportunity to share these concerns with the Board and requests the Board consider a more equitable approach for small businesses.
The Board thanked Mr. O'Leary for his comments.
Mr. Eshelman addressed Mr. O' Leary stating that when the District sets rates, the goal is to achieve fairness for both residential and commercial customers. Ms. Doylen noted the Board considers equity across all account types. Ms. Jurgens explained that base rates are needed to sustain system operations, cover essential costs, and ensure service reliability. The new billing structure applies a consistent base rate to all customers, with additional charges for excess usage. Mr. Morton noted that the Board understands concerns about increased costs and that these decisions were made after thorough discussion, weighing system needs against customer impacts. Mr. Eshelman concluded that the process was challenging and not aimed to generate more revenue for the District but to correct billing structures and maintain operational viability. Mr. Eshelman stated the Board will have further discussions regarding this matter and expressed their appreciation for Mr. O' Leary's feedback.
Mr. O'Leary excused himself from the remainder of the meeting at 4:17 p.m.
Appointment of Budget Officer for 2026 Budget - presented by Ms. Jurgens:
Ms. Jurgens reported that C.R.S. §29-1-105 states that the Board of Directors must designate a qualified person who shall prepare the annual budget and submit it to the Board on or before October 15th.
Ms. Jurgens added that the 2026 Proposed Budget will need to be submitted to the Board for review and feedback before the statutory deadline at a Special Board meeting, which she recommended scheduling for Tuesday, October 14, 2025.
Ms. Jurgens noted Ms. Moore holds the position of Financial Officer for the District and has traditionally fulfilled the role of Budget Officer, overseeing the preparation of the annual budget. Ms. Jurgens proposed appointing Ms. Moore as the District's Budget Officer for the 2026 budget.
Ms. Jurgens explained that following the first presentation of next year's proposed budget, revisions to the budget will be made and presented to the Board for review and comment at the November and December 2025 regular board meetings. During those meetings, the Board and public will have an opportunity to ask questions of the staff and make comments about the 2026 proposed budget.
Ms. Jurgens stated that during the December 16, 2025, regular board meeting staff will present the final version of the 2026 budget to the Board of Directors for consideration of adoption by resolution.
Ms. Jurgens recommended that the Board of Directors address two matters concerning the 2026 budget: Appointing Ms. Moore as Budget Officer and setting a Special Board Meeting on October 14, 2025, to ensure the proposed 2026 budget is presented to the Board no later than October 15, 2025.
The Board discussed appointing a Budget Officer and scheduling a Special Board Meeting on October 14, 2025.
It was moved by Ms. Doylen and seconded by Mr. Morton to appoint Ms. Moore as Budget Officer for the 2026 budget. Motion carried unanimously.
It was moved by Ms. Doylen and seconded by Mr. Morton to schedule a Special Board Meeting on October 14, 2025, for the 2026 budget presentation. Motion carried unanimously.
Request for Approval: Agreement Between Owner and Engineer for Professional Services Task Order Edition - presented by Ms. Jurgens:
Ms. Jurgens presented to the Board the Agreement Between Owner and Engineer for Professional Services Task Order Edition (Agreement), prepared by AE2S. Ms. Jurgens noted that this Agreement was reviewed by District staff and the District's legal counsel, Ms. Linda Glesne, of CEGR Law. Ms. Glesne's comments have been incorporated in the final draft.
Ms. Jurgens stated this Agreement is recommended by District staff for execution.
Ms. Jurgens said that during the July 2025 regular board meeting, the District's long-serving engineer, Mr. Steve Ravel, announced his resignation from his position with Merrick & Company (Merrick) and accepted employment with Advanced Engineering & Environmental Services LLC (AE2S). The District had maintained an ongoing agreement for general professional engineering services with Merrick; however, there was no active task order in place with Merrick at that time. In July, the Board of Directors concluded that retaining Mr. Steve Ravel for the District's general engineering services would best serve the interests of the District. Ms. Jurgens noted that she was instructed by the Board to send a termination notice for general engineering services to Merrick. This letter was addressed to Brandy Wilson, Water Practice Lead at Merrick, and sent on August 5, 2025, with the termination formally taking effect on August 15, 2025.
Ms. Jurgens reported to the Board that following the issuance of Merrick's notice of termination, on August 6, 2025, the District sent an email to Ms. Wilson requesting that Merrick provide the District with documentation pertaining to the Water Reclamation Facility and Lift Station Improvements Project. In response to the District's desire to retain Mr. Steve Ravel's engineering services and having an existing and positive working relationship with AE2S, the District requested AE2S to draft a task order Agreement for general engineering services. Ms. Jurgens noted that this Agreement was distributed prior to this meeting for the Board's review and consideration.
Ms. Jurgens explained that this Agreement establishes the framework for engaging AE2S on specific engineering projects through individually executed Task Orders. It does not obligate the District to issue any Task Orders but provides a standardized and legally sound mechanism for doing so when needed. Each Task Order will define the scope of services, schedule, compensation, and any projectspecific terms. The Agreement ensures that each Task Order is governed by the overarching terms of this Agreement, its exhibits, and any amendments. This Agreement supports the District's strategic goal of maintaining flexibility and responsiveness in engineering engagements while ensuring consistency and legal integrity across projects.
The Board considered and discussed the Agreement.
It was moved by Mr. Morton and seconded by Ms. Doylen to approve the Agreement Between Owner and Engineer for Professional Services Task Order Edition (Agreement) with AE2S. Motion carried unanimously.
Request for Approval: Agreement Between Owner and Engineer for Value Engineering and 20% Complete Design Professional Services - presented by Ms. Jurgens:
Ms. Jurgens presented to the Board the Agreement Between Owner and Engineer for Value Engineering and 20% Complete Design Professional Services (Agreement), prepared by AE2S, and reviewed by District staff and the District's legal counsel, Ms. Linda Glesne, of CEGR Law. Ms. Glesne's comments have been incorporated into the final draft.
Ms. Jurgens noted that this Agreement is recommended by District staff for execution.
Ms. Jurgens stated in June, the District was prepared to engage Merrick and Mr. Ravel to lead the current phase of the WRF Project, which involves value engineering and creating a 20% design revision of the final design for the water reclamation facility. This phase is collaborative with District staff and the lowestbidding contractor, RN Civil Construction. The objective was to achieve cost savings that would facilitate the construction of the WRF.
Ms. Jurgens said as noted during the discussion of the prior agenda item regarding the general engineering services agreement, Mr. Steve Ravel is now employed by Advanced Engineering & Environmental Services LLC (AE2S). In July, the Board of Directors decided to retain Mr. Steve Ravel for the District's general engineering services and to continue his role as the engineering project leader for the WRF Project.
Ms. Jurgens explained that the termination notice issued to Merrick on August 5, 2025, documented the transition of the prime engineering role on the WRF Project from Merrick to AE2S, with Merrick continuing as a subconsultant to AE2S.
Ms. Jurgens highlighted that AE2S has provided a distinct Agreement for this phase of the WRF Project for Value Engineering and 20% Complete Design Professional Services. This document was distributed to Board before this meeting for review and consideration. This separate Agreement retains AE2S for the current phase of redesigning the water reclamation facility located on the District's nine-acre property.
The project scope includes establishing essential design objectives, defining performance requirements, and ensuring coordination with District representatives and the selected contractor, RN Civil Construction.
The Board considered and discussed the Agreement.
Mr. Eshelman expressed his appreciation for the strong working relationship with AE2S and looks forward to continuing it. Mr. Eshelman commented that both Mr. Ravel and Mr. Brian Gaddie, the Operations Manager for Colorado, have played important roles, alongside the entire AE2S team. Ms. Jurgens stated AE2S consistently engages with the District, making the Project a true team effort involving people from multiple states. She stated the value of their expertise and collaborative approach has been a positive experience.
It was moved by Ms. Doylen and seconded by Mr. Kessler to approve the Agreement Between Owner and Engineer for Value Engineering and 20% Complete Design Professional Services with AE2S. Motion carried unanimously.
Update: Phase II - Water Reclamation Facility {WRF) and Lift Station Improvements Project - presented by Mr. Ravel, P.E., Senior Project Manager, AE2S:
Mr. Ravel thanked the Board and District staff for their trust in AE2S. He acknowledged the continued involvement of Merrick team members in recent workshops, highlighting the team's adaptability in successfully delivering for the District.
Mr. Ravel proceeded with an update on the Water Reclamation Facility and Lift Station Improvements Project (Project), noting that the current design is in draft format.
Mr. Ravel explained that workshops and discussions have helped consolidate ideas from both District staff and contractors to improve efficiency and ensure no suggestions are overlooked.
Mr. Ravel stated the goal from AE2S is to deliver a 20% design update by mid-September, incorporating feedback from RN Civil Construction and optimizing the site layout. The revised plan focuses on reusing components at the existing wastewater treatment facility, such as the equalization basin and lift stations, to reduce Project costs and streamline operations.
Mr. Ravel displayed and reviewed a preliminary site plan layout and described proposed key changes from the original design including moving solids handling from the east to the west side of the campus, consolidating equipment to maximize space and efficiency, and maintaining critical treatment processes like biological nutrient removal basins and membrane filtration. Mr. Ravel added that adjustments to building height and crane capacity are aimed at further reducing costs.
Mr. Ravel said that overall, the team is working to maintain quality while making the facility more efficient and cost-effective, targeting completion of the value engineering process and updated 20% design.
Mr. Ravel answered questions from the Board and from Mr. Squires.
Ms. Doylen suggested that commercial solar panels be considered to offset electric costs and that there are grants available the District could explore. Mr. Ravel stated this is a sensible option to discuss and consider.
The Board thanked Mr. Ravel for the Project update.
Mr. Squires provided a comment in the chat stating he is impressed with AE2S's efforts to date.
At 5:04 p.m., Mr. Squires excused himself from the remainder of the meeting.
Discussion: Consideration of 2026 service rates - facilitated by Mr. Ravel, P.E., Senior Project Manager, AE2S:
Ms. Jurgens highlighted that the District has issued the statutorily required 30-day notice in both local newspaper publications regarding the Board's review of rates and fees at this meeting and the September 23rd Regular Board Meeting. Ms. Jurgens emphasized that board action may be taken at either meeting. Ms. Jurgens noted that setting rates and fees early assists with budgeting and provides adequate time for communication to District customers.
Ms. Jurgens explained that if a decision to set rates is postponed beyond September, the District must publish notice 30 days ahead of the October meeting.
Mr. Ravel then presented PowerPoint slides detailing the definition of a system development fee (SDF), the District's SDF history, updates to the SDF, drivers to consider for the 2026 service fee rates and a proposal for setting the 2026 service fee rates.
Mr. Ravel began his presentation by defining a system development fee stating it is a one-time fee collected to pay for growth related capital expansion costs of wastewater collection, conveyance, and treatment facilities. The fee varies with the number of single-family equivalents (SFEs) and allows the payer to connect to a District sewer line. The SDF is reviewed periodically by the District and is subject to change.
Mr. Ravel then described for the Board the history of the System Development fee including three previous rate studies used to update the District's SDF cost models. The District used an equity buy-in approach (asset unit costs) model for SDFs, advised by Raftelis in 2014 and reaffirmed in 2020, with updates based on the Engineering News Record Construction Cost Index (ENR CCI). As inflationary cost increases outpaced the ENR index, in 2023, Willdan Financial Services recommended reassessing the equity buy-in approach and adjusting unit costs beyond standard index increases.
Mr. Ravel explained that as a result of the 2023 Willdan Study, the value of the SDF was updated to incorporate actual data from the District's GIS and collection system work, including actual pipeline lengths. The current SFE system development fee is $18,100. Mr. Ravel described that SDF costs are calculated by multiplying unit costs by quantities, adding administrative fees, and updating figures according to the ENR CCI. Dividing the total system value by the number of SFEs yields a recommended 2026 fee of $18,655 per SFE-a $555 increase from last year. Mr. Ravel noted about $70 of this $555 recommended increase is due to changes in pipe lengths, and approximately $450 is due to a percentage increase in the ENR CCI. Mr. Ravel highlighted that the upper range recommendation to set the 2026 SDF is $24,387.
Mr. Ravel noted that drivers to consider for setting the 2026 service fee rates are the importance of reevaluating rates annually and the planning of capital improvements, including the WRF and Lift Station Improvements Project.
Mr. Ravel then provided proposed 2026 minimum rate increases for Board consideration. For 2026 service fees, including non-metered, metered, data collection fees, and base fees, the financial model recommends a minimal 8.5% rate increase for next year.
At 5:45 p.m., the Board took an eight-minute recess.
At 5:49 p.m., Ms. Urquhart excused herself from the remainder of the meeting.
At 5:53 p.m., the meeting resumed.
Following the recess, the Board discussed the timing of setting the 2026 SDF and 2026 service fees. The Board agreed to further discuss and consider setting rates and fees at the September 23, 2025, Regular Board Meeting.
Ms. Jurgens noted that after setting the 2026 rates and fees, the Board can revisit them during the year once the treatment facility costs are known.
Ms. Jurgens and the Board thanked Mr. Ravel for presenting and facilitating the discussion on 2026 service rates.
Reports of Officers, Committees, Professional Consultants, & Staff
The Board considered the Reports of Officers, Committees, Professional Consultants, and District Staff.
The Board asked the staff questions regarding the departmental reports.
The Board did not have corrections to the departmental reports.
The Board thanked District Staff for preparing the reports.
In addition to the District Manager's Report, Ms. Jurgens highlighted the successful District Open House held on August 11, 2025, expressing sincere gratitude to District plant staff for their months of preparation. She acknowledged that this intense effort added significantly to their daily duties as they ensured the facility was in excellent condition while maintaining regular operations. Special thanks were given to Mr. Newhouse for leading the team and to the collection department for supporting plant staff and preparing their own equipment for demonstration. Ms. Jurgens also acknowledged administrative staff for their efforts in making the Open House a successful event. Ms. Jurgens highlighted that due to the new billing software, Ms. Ponzer was able to send out over 3,000 invitation emails to customers at no cost, attracting a broader community turnout. Ms. Jurgens noted Mr. Ravel's attendance at the event, GBSM's instrumental role in planning the Open House, AE2S's presence, and visits from customers such as Rocky Mountain National Park. Ms. Jurgens praised everyone's hard work and commitment, stating she felt proud and grateful for the dedication shown.
The Board expressed appreciation to District staff and partners for their dedication in planning and hosting the Open House. Ms. Doylen noted the event was well attended and generated positive feedback.
It was moved by Ms. Doylen and seconded by Mr. Kessler to accept the Treasurer's Report, Plant Report, System Development Fee Allocation and Connection Report, Collection System Report, Operations Manager's Report, and District Manager's Report. Motion carried unanimously.
Adjournment
Having no further business, at 6:18 p.m., it was moved by Ms. Doylen and seconded by Mr. Morton to adjourn the meeting. Motion carried unanimously.
Susan L. Doylen, Vice-Chairman/Secretary
Christopher L. Eshelman, Chairman