Emerald Coast Utilities Authority targets major bond issuance to fund $300M capital project backlog

Emerald Coast Utilities Authority targets major bond issuance to fund $300M capital project backlogWith legacy debt from its Central Water Reclamation Facility set to retire, the Florida utility is eyeing a unique opportunity to finance advanced metering, wastewater expansion, and PFAS treatment without raising customer rates.

Annual senior lien debt service is projected to drop from over $30 million to $14.6 million in 2029, and down to $6.2 million by 2032.

The retiring debt opens up an estimated $25 million to $30 million in annual revenue to service new bonds without rate increases.

Targeted projects include a $62 million central well field expansion, a $30 million expansion of the Bayou Marcus Water Reclamation Facility, and $25 million for Advanced Metering Infrastructure (AMI).

The board also approved the appointment of Don Palmer as Acting Executive Director ahead of Bruce Woody's retirement.

The Emerald Coast Utilities Authority (ECUA) in Pensacola, Florida, is preparing a long-term capital financing strategy that will leverage retiring legacy debt to fund upwards of $300 million in major water and wastewater infrastructure projects. At a May 26 board meeting, Executive Director Bruce Woody outlined a unique financial window approaching for the utility. Currently, ECUA spends between $30 million and $45 million annually on a pay-as-you-go Capital Improvement Program (CIP). However, Woody noted that this annual cash funding is insufficient to address major redundancy, resiliency, and large-scale replacement needs, pointing out that every 1% increase in rates only generates about $1.2 million in revenue. Instead, the utility plans to capitalize on the upcoming retirement of significant debt. ECUA currently pays over $30 million annually in senior lien debt service, largely tied to the $350 million construction of its Central Water Reclamation Facility following Hurricane Ivan. According to financial projections presented by Woody, that annual debt service will plummet to $14.6 million in 2029, and drop further to $9.3 million in 2031 and $6.2 million in 2032. "The difference between those two numbers is money that you have available going forward to issue some new bonded indebtedness to tackle some much larger projects that you haven't been able to before," Woody told the board, estimating that $25 million to $30 million in annual revenue will become available to service new bonds without requiring rate hikes. The utility has identified over $300 million in potential capital projects that could be funded through this mechanism. High-priority items include a $30 million expansion of the Bayou Marcus Water Reclamation Facility to add 2 to 3 million gallons per day of capacity, and a $62 million investment to develop up to five new wells at a central well field to meet growing demand in the northern part of the service area. Other major projects slated for potential bond funding include $25 million for effluent discharge alternatives to reduce reliance on third-party industrial partners, a $20 million redundant water main to the Gulf Breeze area, and $25 million for a system-wide Advanced Metering Infrastructure (AMI) rollout. Woody also noted that the utility anticipates a $12.5 million funding shortfall for granular activated carbon (GAC) PFAS treatment systems, which could be bridged through the new bond capacity. The prospect of a massive capital injection was welcomed by the board, who agreed on the need to develop a formalized long-range prioritization plan. Board member Dale Perkins suggested that when the legacy debt begins to defease in approximately three years, the utility should consider a "big, bold bond issue" to comprehensively address infrastructure needs and expand sewer access. The utility's borrowing position has recently strengthened, with Woody noting that Standard & Poor's upgraded ECUA's bond rating due to increased undesignated reserves and strong financial reporting. The strategic financial planning comes during a leadership transition for the utility. Woody is retiring at the end of May, and the board unanimously approved an agreement to appoint Don Palmer, the current Deputy Executive Director for Engineering and Environmental Services, as Acting Executive Director while the search for a permanent leader concludes.