Victor Wastewater Treatment Facility

History of the City of Victor's Wastewater Treatment

Prior to 1999, the City of Victor, managed its wastewater through individual septic tanks. However, as environmental regulations under the federal Clean Water Act became more stringent in the 1980s and 1990s, these older, natural-process systems increasingly struggled to meet required discharge standards for pollutants. For growing communities like Victor, the cost of building a lagoon system and acquiring the necessary land for expansion became a significant financial and logistical burden.

This set the stage for a decades-long partnership with the nearby City of Driggs. On October 13, 1999, Victor signed an agreement to send its municipal wastewater to the Driggs facility for treatment. At the time, Driggs operated a lagoon-based plant. For years, this arrangement offered Victor a cost-effective solution, allowing the city to manage its local sewer collection system while cost sharing in the treatment with Driggs.

The landscape of this partnership began to shift significantly in the late 2000s. Driggs faced growing regulatory pressure from the U.S. Environmental Protection Agency (EPA) due to repeated violations of its discharge permits. In response, Driggs embarked on a major upgrade, replacing its lagoon system with a modern Multi-Stage Activated Biological Process (MSABP) mechanical plant in 2013. The two cities updated their original contract with a new inter-city agreement in 2011 to account for this change.

Despite the upgrade, Driggs' compliance issues persisted. In 2022, the U.S. Department of Justice filed a formal complaint against Driggs for thousands of permit violations, leading to a consent decree with the EPA in January 2025. As part of this settlement, Driggs was required to pay a $400,000 penalty and undertake another major facility expansion and upgrade, estimated to cost over $30 million.

This new financial pressure brought the Victor-Driggs partnership to a breaking point. An independent audit, initiated by Victor in early 2023, revealed significant historical billing discrepancies. Additionally, in October 2024, anticipating increased costs, the city implemented significant sewer rate hikes. Facing a lack of control over rising costs and management of the Driggs plant, Victor began to seriously consider its own independent system.

In March 2025, after reviewing a feasibility study by Keller Associates and evaluating multiple alternatives, Victor's City Council unanimously voted to "break up with Driggs". The alternatives considered included staying with Driggs, building a new lagoon system, or constructing a mechanical plant with either a surface discharge or rapid infiltration system. The decision was made to pursue the construction of a new plant, in which Victor would have control over legal compliance, costs, and management.

Following the decision, Victor took decisive steps toward self-sufficiency. In August 2025, the city entered a contract to purchase a 40-acre parcel of land to serve as the site for its new wastewater treatment facility. Driggs has agreed to continue treating Victor's wastewater until at least January 2029, allowing Victor time to complete construction of its new plant. This major infrastructure investment is a pivotal moment for Victor, shifting its wastewater management from a customer-model to a local asset under its own control.

Meeting links and staff reports for the March and August 2025 mentioned above are located in the City Council Meeting Links Tab below. It also includes all meetings where actions regarding the WWTF will be cataloged.

Teton Valley News Article about the Council Vote to begin the process of building a Wastewater Treatment Plant for the City of Victor.

Teton Valley News Article regarding the plan to purchase land for use of the WWTF.

Wastewater Decision Analysis

Financials

There is no clear financial winning scenario in this situation. The consent decree filed against the Driggs plant has a strict timeline and requirements that will result in tens of millions of dollars of expenditures. 20250115 Filed CD | MuniDocs | Driggs, ID | Municode Library

The costs associated with building a brand-new plant in Victor, an upgrade to a non-compliant plant in Driggs, or a combination of the two are extremely complex and vary in operational costs, debt service, and grant eligibility. Below are estimates of the various paths forward.

These estimates could change dramatically. It could be the difference of a single grant, an operational efficiency, a new hire, a change in interest rates, a large commercial building or development added to the system, or any number of other factors.
Victor and Driggs are actively pursuing grants from state and federal agencies and corporations to lower the cost of the build, as well as investigating alternative financing structures for better interest rates.

The two drivers of the monthly cost for users will be debt service and operations. City of Driggs is working on an operational budget to compare.

There are four options for moving forward with wastewater treatment:

-Alternative 1: Both Cities go their own direction. Estimated to be $16M for Driggs, $35M for Victor.

-Alternative 2: Victor and Driggs partner and do not accept the trunkline into the partnership (this would also be similar financially to a customer model). Estimated to be $34M combined, Victor could have a potential $20M in upgrades

-Alternative 3: Victor and Driggs partner and accept the JPA with trunkline into the partnership. Estimated to be $54M with upgrades included

-Alternative 4: Victor and Driggs partner and accept the JPA with trunkline into the partnership and make the necessary improvements for Class A Discharge (the highest environmentally conscious discharge). Estimated to be $60M

Driggs Debt Service

Driggs Debt Service (not including any grants, operational expenses, or collection expenses, also does not include dredging expenses). These are simple calculations based on a 30 year, 4% amortization. This is a possible route and interest rate using the Idaho Bond Bank. It is possible that the City of Driggs may get better financing offers but it would likely come with BABA and other provisions, increasing the costs. City of Driggs has reached out and expressed they are interested in a twenty-year amortization. If a twenty year amortization is chosen, the payments on each option increase by approximately $250k/yr.

Debt Service for only City of Driggs (not including 2016 debt)

Alternative 1, Only Driggs, $916,637/yr

Alternative 2, JPA no trunkline, $973,927/yr

Alternative 3, JPA w trunkline, $1,546,826/yr

Alternative 4, JPA with Class A w Trunkline, $1,718,695/yr

Victor Debt Service

Victor Debt Service (not including any grants, operational expenses, or collection expenses, also does not include dredging expenses at the Driggs facility).

These are simple calculations, based on a 30 year 4% amortization, a likely financing option with the Idaho Bond Bank. The second, third, and forth alternatives are with the 4% loan shared with Driggs above.

Debt Service for only City of Victor (not including 2016 debt)

Alternative 1, Only Victor, $2,005,144/yr

Alternative 2, JPA no trunkline, $2,119,724

Alternative 3, JPA w trunkline, $1,546,826

Alternative 4, JPA with Class A w Trunkline, $1,718,695

Victor's payment is higher for the no trunkline because in Alternative 2, Victor is paying for trunkline capital expenses

Treasurer's Report

City Council Meeting Links

Supporting Studies

Request for Qualifications Process - for Engineer - Approved 10/22/2025

Garland, Utah Wastewater Facility Tour 12/5/2025 - Video Tour

Mayor Frohlich's Comments, Driggs Council Meeting 12/16/2025

Hello Teton Valley! I would like to give thanks to the City of Driggs for allowing me to speak during their meeting on December 16th, 2025. I would also like to thank the Driggs City Council for all voting in favor of agreeing to mediation between the two Cities. I wanted to further share with the public what I presented to the Driggs City Council on the 16th for those who were unable to attend.

- Mayor Frohlich

Minutes from the 12/16/2025 City of Driggs City Council Meeting

Driggs City Council Meeting – 12/16/25 – Agenda item – Victor Waste Water Treatment Plant Mediation Proposal

Hello Council and Mayor - Thank you for letting me speak tonight.

I appreciate the opportunity to provide additional context regarding the matter before us and am happy to answer any questions you may have.

First, I would like to thank the Council for your service and dedication. As the powerful decision-making body, your role is critical. It is the responsibility of Mayors and City Staff to support your decisions and provide the necessary information to guide you through the decision-making process. Sound decisions are built on solid information, and complex issues become more manageable when all data is present.

I would like to address the working relationship between our two cities. Our communities have a long history of collaboration that predates our respective administrations, continues today, and will endure long after we leave office. It is essential that all of us maintain a professional and respectful approach in our interactions.

To provide a brief background on the current situation: As is well known, the existing WWTP has experienced issues since its inception. At the time the plant was designed, the City of Victor expressed opposition to the chosen design, as it involved an unproven option for our location. But Driggs’ Engineers said it would work as promised.

As a User, Victor was aware of existing issues but did not know the full extent of the problems. We later learned that multiple concerns and actions had been raised by the DOJ (Department of Justice), EPA (Environmental protection Agency), DEQ (Department of Environmental Quality), and other entities. We only received formal notification from Driggs of the DOJ lawsuit and resulting Consent Decree after the terms of the Consent Decree had been negotiated between Driggs and the Department of Justice.

Unfortunately, Victor often learned about these significant issues years after the problems arose through public sources, such as social media and newspaper articles, rather than directly from our partner. Victor continues to learn through third parties that Driggs is in continued violation of the Consent Decree.

In hindsight, and per our agreement, a proactive audit should have been done annually. This was not agreed to on multiple occasions.

Years ago, I instructed the Victor City Administrator to begin working with the Driggs City Administrator to address the issues and align on a plan. Following the Driggs City Administrator's departure, we learned that Driggs was unaware of these recent conversations and communications and needed time to investigate further.

A third-party independent audit was eventually agreed upon by both cities. The scope was intentionally narrow to control costs. Even within this small sample size, the audit found several discrepancies. It’s important to clarify that the audit was conducted by an independent third-party firm with no ties to either city. The financial data used in the review came primarily from Driggs, since Driggs owns the facility and maintains all related financial records. Because the audit relied on Driggs’ own documentation, the findings reflect that information — not any outside influence from Victor. To that end, I want to emphasize the audit firm was selected in part because they had no prior relationship with either city.

Following the initial audit, we requested an additional, broader audit to review a longer time frame and address outstanding issues, but this request was denied on multiple occasions. Driggs has only recently consented to a broader audit but admitted that they do not possess records needed for the audit.

Additional meetings were held between the two Cities, but these discussions concluded without a resolution. Victor’s concerns regarding financial discrepancies were dismissed or minimized and, on several occasions, Victor was directed to ‘GO BUILD YOUR OWN PLANT,’ among other discouraging comments.

After two plus years of having our concerns dismissed or minimized, Victor engaged outside counsel, Smith Currie, to advise us on the outstanding issues and to help us negotiate a mutually beneficial inter-city agreement for wastewater treatment services. However, the new agreement presented to Victor proposed reduced involvement while simultaneously asking us to increase our financial contribution. We would also maintain zero input or control over the plant’s design or operations. And would allow Driggs to pass on its costs associated with the Consent decree disproportionately to Victor users for Driggs’ benefit.

As a point of clarification, Smith Currie is not advising us on whether to build a new plant. Regarding the tone of the letters/requests sent—it is fair to say they reflected the frustration and urgency felt at the time. Victor desperately wanted and desperately wants its financial and legal concerns to be taken seriously. Following multiple failed attempts at negotiation, Driggs gave Victor a deadline last Spring of just over a week to decide whether to remain under the current agreement or commit to building a new plant.

The Victor City Council voted unanimously to proceed with building our own plant. As this process continued, public interest grew, leading to encouragement for one final attempt to work with Driggs. We have spent weeks seeking confirmation from Driggs on what options the DOJ is willing to consider. To date, we have not received a definitive answer, and we now face hard deadlines. It has been confirmed that the DEQ, not the DOJ, will support a joint plant, which obviously we already know. (Driggs’ City Attorney did confirm during the meeting that the DOJ is open to JPA discussions).

During our Council meeting last week, Mayor August stated that if we choose to advance this discussion, Victor must lead the effort. In response to that request, we moved swiftly to send a letter requesting mediation as a starting point. This letter was sent to Driggs on Friday.

Regardless of the decision made tonight, your focus must be on what is right for the rate payers of Driggs and the environment, just as our focus is on what is right for the rate payers of Victor and the environment. Please know that I hold no personal ill will toward any member of this body, and that has been my perspective throughout this entire process.

Letter to the Editor: A Responsible Path Forward for Teton Valley, From Mayor Will Frohlich 12/23/2025

Letter to the Editor: A Responsible Path Forward for Teton Valley

Dear Editor,

I want to extend my sincere thanks to the City of Driggs and its City Council for the opportunity to speak during their December 16th meeting, and for their unanimous vote in favor of entering mediation with the City of Victor regarding wastewater treatment services. This decision marks a meaningful step toward resolving longstanding issues in a constructive and cooperative manner.

Victor and Driggs share a history of collaboration, and while our cities may be exploring different paths forward, our shared commitment to the health of our communities and environment remains unchanged. Mediation offers a chance to address unresolved legal and financial concerns with transparency and mutual respect—not necessarily to preserve the status quo, but to ensure that whatever path we choose is grounded in fairness and sound decision-making.

Victor has consistently advocated for accountability throughout this process. We’ve worked to understand the full scope of the challenges facing the current wastewater treatment system and have taken steps to ensure our ratepayers are protected. Our decision to pursue the development of our own facility was not made lightly, but reflects what we believe to be the most responsible and cost-effective solution for our community.

That said, we remain open to dialogue. Mediation is not about winning or losing—it’s about working together to find clarity, resolve outstanding issues, and determine the best course forward for both cities. Whether that leads to a renewed partnership or a respectful separation, our goal is to ensure that the outcome serves the long-term interests of our residents and the environment we all share.

Thank you to everyone in Teton Valley who has engaged in this conversation. Your voices matter, and your continued involvement will help shape a sustainable future for our region.

Sincerely,

Will Frohlich

Mayor, City of Victor

Teton Valley News publication of Letter to the Editor December 23, 2025

Public Open House 1/14/2026

Annexation and Rezoning to CIV & RC - Approved 1/14/2026

The City is under contract for the purchase of land that is currently outside City limits but is immediately adjacent. Before the property can be developed it will require an annexation and rezoning.

Staff has preparing the required materials for the Annexation/Rezoning application. The portion of the site to be purchased by the City will be requesting a CIV zoning district, the owner has requested RS-16 for the remainder of the property.

LU2025-10 Application Material

October 16, 2025 - Planning and Zoning Commission Public Hearing

November 13, 2025 - City Council Public Hearing

December 10, 2025 - City Council Public Hearing

January 14, 2026 - City Council Public Hearing

The Annexation and Rezoning has been approved. 3-1

The votes were as follows:

Council concluded that the Criteria for Approval of Annexation found in Title 10, Article 14.7.14.B. had been met, and voted to approve LU2025-10 for the annexation of the 80-acre parcel located south of 7000S between 1000W and 500W as described in the application materials dated on August 28, 2025. Subject to and contingent on the sale of the western 40 acres to the City of Victor and subject to council approval of the reasoning statement. Approved 3-1
Council further concluded that the Criteria for Approval of a Rezone Map Amendment found in Title 10, Article 14.7.12.B. had been met, and voted to approve LU2025-10 for the zoning of CIV on the western 40 acres and RC on the eastern 40 acres as shown in the application materials dated August 28, 2025, subject to the conditions of approval as amended in the January 14, 2026 council meeting, including a new condition stating: The required Open Space for the RC zoning shall be located along the frontage road and 7000S, and further approved the associated development agreement in form approved by the Victor City Attorney. Approved 3-1
Council voted to waive the first reading of Ordinance #O645, to read it by title only, and to waive the second and third Ordinance readings. Approve 3-1
Council voted to approve Ordinance #O645, an ordinance of the City of Victor, Idaho annexing certain lands to the City of Victor: describing said lands and declaring the same as part of the City of Victor, Idaho, and amending the official zoning map of the City of Victor, which is part of Title 10 of the City’s Municipal Code, to assign the zoning designation of CIV: Civic and Institutional and RC Residential Cluster, as described, and direct the City Clerk to publish the ordinance. Approved 3-1

CONDITIONS OF APPROVAL

These Conditions of approval shall only apply to the Residential zoned portion of the property and shall be made part of an Idaho Code 67-6511A development agreement.

The Owner shall be solely responsible for compliance with all applicable development requirements, and all previous and future land use decisions rendered for the property. All federal state and local laws shall be met.
A minimum of 10% of residential lots shall be deed-restricted to a qualified local household. A qualified local household being a household having one adult occupant who is either employed or has a verified job offer within Teton County, Idaho for at least 30 hours per week (or 1,560 hours per year) or has resided in Teton County, Idaho for at least one year prior and is either over the age of 65 or has a disability recognized by the federal government.
When developed no less than 2 acres shall be dedicated to the City as public park space.
When developed there shall be no more than 2 access points along the Frontage Road (500W).
There shall be no direct access to HWY 33 from the site, other than 7000S.
When developed a gateway buffer shall be provided along the eastern edge of the property, this buffer cannot be calculated towards the required open space.
On the CIV zoned portion, there shall be a minimum 100-foot setback from a wastewater treatment facility to any property line. Within said setback there shall be a 6’ landscaped berm designed to a minimum 3 to 1 slope said landscaped berm shall be designed by a landscape architect.
That any structure within the CIV zoning obtain site plan and design approval by the Planning and Zoning Commission before building permits are issued.
Require that all uses that are listed at Permitted or Limited in the zoning ordinance require CUP approval for this property, with the exception of the following uses that will remain permitted or limited according to the Land Development Code: RC Zoned area; Single Family Detached House, Group Home (per FHA; up to 8 residents), Conservation Area, Farming - Limited, Urban Farm - Limited; CIV Zoned area; Conservation area, Farming - Limited, Urban Farm - Limited
Require that any CUPs be approved by City Council with P&Z as the recommending body.
The required Open Space for the RC zoning be shall located along the frontage road and 7000S.

Findings

Ordinance O645 - Recorded as Instrument #294126

Annexation Plat - Recorded as Instrument #294127

Development Agreement - Recorded at Instrument #

Lot Split Application Process - Approved 1/20/2026

Press Release: Advances Plans for Independent Wastewater Treatment Facility 2/3/2026

City of Victor Advances Plans for Independent Wastewater Treatment Facility

The City of Victor is moving forward with plans to construct an independent wastewater treatment facility to ensure reliable service for residents and meet all regulatory obligations. This step follows a decision by the Victor City Council in March 2025 to pursue separation from Driggs’ treatment facility.

Before implementing this plan, Victor formally invited the City of Driggs to participate in mediation aimed at achieving an equitable and sustainable resolution to issues with the shared wastewater system issues that have become increasingly evident in recent years.

Victor’s priorities have consistently included preserving a regional solution where possible and ensuring fairness for Victor ratepayers—whether through a revised cost-sharing structure, a customer agreement, or an alternative governance framework.

The decision to re-engage through mediation reflected the Council’s belief that public input deserves more than acknowledgment—it requires action, including renewed efforts to seek a fair and collaborative resolution. Mediation was conducted under standard confidentiality provisions, which are common practice to allow candid discussion and create space for compromise. Despite these efforts, the process did not produce a viable path forward.

Accordingly, Victor has begun planning for independent wastewater infrastructure to meet legal obligations and provide reliable service to residents.

Council remains committed to transparency, environmental stewardship, and constructive engagement with our residents and neighbors. To that end, the City has engaged an engineering firm with the stated intent of building a Class A facility, ensuring treated water will meet or exceed the highest standards.

We encourage residents to stay engaged as planning moves forward. Watch for invitations to open houses, public forums, and other opportunities to learn more about the project and help shape its development. Together, we can deliver a facility that reflects community priorities and serves Victor for generations to come.

Agendas for council meetings and supporting materials can be found at https://victoridaho.gov/boards-commissions-committees/city-council/city-council-meetings , and materials related specifically to the WWTP project can be found at https://victoridaho.gov/wwtf .

Op-Ed: Why Building Our Own Wastewater Facility Is the Right Move for Victor, By: Mayor Will Frohlich 2/5/2026

Op-Ed: Why Building Our Own Wastewater Facility Is the Right Move for Victor

By Mayor Will Frohlich

What kind of community do we want to be in 10 years? One that relies on a broken system and hopes for the best—or one that takes responsibility for its future? That’s the question behind Victor’s decision to build our own Class A wastewater treatment facility.

For two decades, we’ve sent our wastewater 10 miles north to a plant that has struggled with repeated failures, permit violations, and now a full rebuild just to meet the bare minimum. We’ve paid nearly half of their improvement costs, and even then, we were overbilled. After all that, the system is still polluting our water.

Victor deserves better. Building our own Class A facility means we stop relying on a broken system and start doing things right. This isn’t about growth—it’s about responsibility. It’s about clean water, protecting our environment, and ensuring we have dependable infrastructure for decades to come.

We’ve already engaged one of the most qualified engineering teams in the region and are working closely with the Idaho Department of Environmental Quality to make sure this facility meets the highest standards. As the design moves forward, residents will have opportunities to learn more and share input. This is a big step toward a reliable, locally managed solution that reflects our community’s values.

We’re moving quickly, but we’re not cutting corners. By using a construction method that allows design and planning to happen in parallel, we can stay on schedule without sacrificing quality. We expect to close on the land next month and could see early site work this summer. Our engineers believe the plant could be online within three years—a few months ahead of Driggs’ January 1, 2029 deadline for independence.

And yes, we’ve done our homework on costs. The $35 million estimate isn’t just a guess—it’s based on detailed engineering work, real pricing from suppliers, and includes a conservative 20% contingency. We even rounded up for good measure. On top of that, our delivery method gives us a Guaranteed Maximum Price, so we have strong cost controls in place. This is essential infrastructure, and we’re committed to doing it right and responsibly.

This isn’t about personalities or politics—it’s about infrastructure and responsibility. Driggs has been a partner for decades, and we appreciate that relationship. But the reality is their system has struggled for years, and now both cities need solutions that work. Building our own facility isn’t a disagreement—it’s a decision to protect our water, our environment, and our future. I invite every resident to stay engaged, ask questions, and share input as we move forward. Together, we’re building something that will serve our community for generations. 

Apply For

Contact

Find

Pay

Request

Search

Sign Up For

Reserve

Start A Business

Stay Informed

Submit

Boards, Commissions & Committees

Codes & Law

Business Resources

Departments

Mayor & City Council

City Information

About

Victor Wastewater Treatment Facility

City of Victor Advances Plans for Independent Wastewater Treatment Facility