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This Stormwater and Watersheds Comprehensive Plan (Plan) was produced through
the combined efforts, ideas and contributions of the following City of Port Orchard staff,
appointed and elected officials, and consultants. Photos courtesy of Herrera staff.
Mayor City Council
Planning Commission
Rob Putaansu Shawn Cucciardi
Annette Stewart
Jay Roasapepe
Stephanie Bailey
Scott Diener
Tyler McKlosky
John Clauson
Paul Fontenot
Cindy Lucarelli
David Bernstein
Fred Chang
Bek Ashby
Mark Trenary
Joe Morrison
City Staff
Zack Holt ...........................
Stormwater Permit Manager
Tony Lang .........................
Director of Public Works
Mark Dorsey .....................
Former Director of Public Works
Chris Hammer ..................
City Engineer
Jacki Brown ......................
Utility Manager
Nick Bond .........................
Director of Community Development
Ian Smith ..........................
Engineer
Jim Fisk ............................
Senior Planner
Darren Padroza................
GIS/Inspections
Herrera Environmental Consultants, Inc.
Matthew Fontaine .............
Project Manager
Mindy Fobn .-------.Watcrobod
Planning
Rvb000m Dugopolski .........
NPZ)E8Permit Specialist
Julianne Cbechonover.......
Staff Engineer
Katie Wingrove ------
Geographic Information Systems Load
Briao8noiek ......................
Capital Project Planning
Jonathan Waggoner ---.
Capital Project Planning
BriauzuuBlaud....................
Capital Project Planning
_---~ Vayanos ....................
Graphic Design
Reid Middleton, Inc.
Mark Davis .........................
Engineer
GeoEngineers
Joe ------'
Biologist
Adam -------
Biologist
FCS Group
John GhUardncci................
Principal
Take Aaker..........................
Project Manager
3
01 INTRODUCTION
10 Stormwater Runoff and Effects
11 Purpose of this Plan
12 Stormwater Management Mission Statement
13 Long-term Goals
16 Opportunities and Challenges
17 Plan Development
02 BACKGROUND
18 City Watersheds
22 City Stormwater System
24 Stormwater Impacts on Watersheds
26 Applicable Policies and Regulations
28 Program Accomplishments
30 Planning for Future Development
32 Climate Change
03 CAPITAL IMPROVEMENT PROGRAM (CIP)
34 Capital Improvement Program (CIP)
35 Problem and Project Identification
36 Project Prioritization
04 STORMWATER MANAGEMENT PROGRAM
EVALUATION AND RECOMMENDATIONS
38 Levels of Service
40 Recommendations
M
05 WATERSHED PLANNING
48 City Watersheds
52 Lower Blackjack Creek Watershed
06 PLAN IMPLEMENTATION
54 CIP Plan Implementation
56 Staffing and Funding Needs
58 Financial Analysis Summary
60 Linkages to Other Programs
61 Pursuit of Outside Funding
■ 07 REFERENCE
08 APPENDICES
A Appendix A - Stormwater Management Program
Staffing and Funding Matrix
B Appendix B - Capital Improvement Program
Summary Sheets, and Project Prioritization
C Appendix C - Stormwater Management Action Plan
D Appendix D - Financial Analysis
5
TABLE 1 Watershed Stormwater Impact Rating
TABLE 2 Climate Change Impacts
TABLE 3 Prioritized Projects and Ranking
TABLE 4 Summary of Major Watershed Habitat Conditions
for Salmon and Forage Fish
TABLE 5 Capital Improvement Program Implementation Schedule
TABLE 6 Staff FTE Summary by Year and Tier
TABLE 7 Funding Summary by Year and Tier
TABLE 8 Monthly Rate per Impervious Surface Unit by Level of Service
TABLE 9 Capital Facility Charge by Level of Service
24
33
36
50
55
57
57
58
59
I
FIGURE 1 City Watersheds 19
FIGURE 2 Presence of Key Stream and Nearshore Fish Species in City 20
of Port Orchard Watersheds
FIGURE 3 Stormwater Infrastructure 23
FIGURE 4 Stormwater Influence Upon Watersheds 25
FIGURE 5 Projected 100 Year Marine Flood Extent Under Sea Level 32
Rise Scenario
FIGURE 6 Top 10 Capital Projects 37
FIGURE 7 Nearshore and Major Watershed Stream Habitat Condition 51
FIGURE 8 Lower Blackjack Creek Catchment C 53
FIGURE 9 Levels of Service and Full Time Equivalents 56
7
BMP
Best management practice
CFC
Capital Facilities Charge
CTE
Career & Technical Education
CIP
Capital improvement program
City
City of Port Orchard
CMMS
Computerized maintenance management system
Ecology
Washington State Department of Ecology
ESA
Federal Endangered Species Act
FTE Full Time Equivalent
GIS Geographic information systems
GMA Washington State Growth Management Act
IDDE Illicit discharge detection and elimination
ISU Impervious Surface Unit
LID Low Impact Development
MS4 Municipal separate storm sewer system
NPDES National Pollutant Discharge Elimination System
0&M
Operations and Maintenance
11
OFM
Office of Financial Management
Permit Western Washington Phase II Municipal Stormwater Permit
PMC Port Orchard Municipal Code
QAPP
Quality Assurance Project Plan
RCW
Revised Code of Washington
SAM
Stormwater Action Monitoring
SMAP
Stormwater Management Action Planning
STEM
Science, technology, engineering, and math
TMDL
Total Maximum Daily Load
UGA Urban Growth Area
UIC
Underground Injection Control
WAC
Washington Administrative Code
WRIA
Water Resource Inventory Area
WREC Watershed Restoration and Enhancement
WSPER West Sound Partners for Ecosystem Recovery
WSSOG West Sound Stormwater Outreach Group
0
Stormwater Runoff and Effects
The City of Port Orchard (City) operates a system of drainage
pipes and ditches to convey stormwater runoff to receiving waters
including streams and Sinclair Inlet. The drainage system prevents
and minimizes damage to private properties, city streets, and other
infrastructure. As rain falls and travels across hard surfaces, such
as roofs, yards, and streets, pollutants are picked up and carried
to receiving waters. The City is faced with the challenge to convey
runoff safely, while minimizing adverse high -flow impacts (erosion,
flooding, and sediment deposition) and water quality degradation to
receiving waters.
In 2008, the City established the storm drainage utility (Utility) to
create a funding source to address stormwater and receiving water
management issues citywide. State and federal regulations related
to stormwater have evolved since 2007, when the City was issued
its first National Pollutant Discharge Elimination System (NPDES)
Western Washington Phase 11 Stormwater Permit (Permit) from
the Washington Department of Ecology (Ecology), leading to more
stringent requirements for implementing projects, programs, and
maintenance.
10
Watershed signage, City of Port Orchard
Purpose of this Plan
City water resources include freshwater streams, marine
water shorelines and estuaries, upland wetlands, and aquifers
underground. These waters support aquatic wildlife, terrestrial
wildlife, and people, in the form of recreation and drinking water.
A watershed is the area of land where surface water flows to
a receiving water body. supporting salmon in a stream, where
children play at the beach, or the nearshore environment
nourishing shellfish and forage fish.
The City has chosen to develop and implement its first surface
and stormwater comprehensive plan with a focus on watersheds
spanning the landscape and stormwater influence on water
resources. This approach recognizes the ecosystem function and
value of receiving waters and maps out a plan to accommodate
future growth, correct existing flooding problems, involve the
public, preserve functioning habitat, and enhance habitat where
opportunities are found.
This Stormwater and Watersheds Comprehensive Plan (Plan)
sets a course for stormwater programs and capital projects for
years to come and addresses current and anticipated regulatory
requirements, future development, existing flooding and water
quality concerns, infrastructure maintenance and management, and
the resources needed for the City to fully implement this Plan.
11
Stormwater Management Mission Statement
The mission of the stormwater management program is to regulate
and manage use of the City's municipal separate storm sewer system
(MS4) as required by the City's NPDES permit while conscientiously
managing and protecting surface and receiving waters for public health
and enjoyment.
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Long-term Goals
FLOOD REDUCTION
Conveyance infrastructure that meets the Public Works Engineering
Standards (City Standards) (convey the 100-yr return period flow; 50-yr
return period flow if the 100-yr overflow does not threaten buildings and
critical structures) for the entire city.
The City's tidally influenced stormwater infrastructure is resilient to tidal
fluctuation including projected sea level rise.
The City has a complete understanding of system deficiencies and a plan
to address those deficiencies that is balanced with available funding.
GROUND AND SURFACE WATER QUALITY
Infiltrated stormwater does not negatively affect groundwater quality.
Streams meet water quality standards for human health and aquatic life.
GROUND AND SURFACE WATER QUANTITY
Groundwater supply is replenished by infiltration from developed
areas at a rate that is equal to the volume infiltrated under natural
forested conditions.
Streams have adequate summer flow volume and natural winter storm
flow regimes to support local aquatic life.
HABITAT ENHANCEMENT
• City -influenced streams are fully restored to forested hydrologic
conditions and meet designated uses and water quality standards.
• City culverts that carry fish -bearing streams allow fish to pass
unimpeded.
• Pocket estuaries adjacent to city lands are ecologically functional and
not negatively affected by stormwater runoff or hydraulic constraints
from stormwater infrastructure.
• Shorelines adjacent to city lands are not negatively affected by
stormwater.
• City watersheds are characterized and prioritized according to
potential environmental restoration, conservation, or development
so that investments in stormwater and watershed projects can be
directed to where they achieve the maximum benefit.
MAPPING AND ASSET MANAGEMENT
Stormwater system asset attributes and conditions are tracked and
managed in one cohesive system that is compatible with all other
city systems.
The stormwater system asset management system supports planning
and prioritizing repairs, upgrades, and maintenance, as well as generating
and tracking work orders to support annual review and evaluation.
14
PUBLIC PARTICIPATION (EDUCATION, OUTREACH, AND INVOLVEMENT)
• Community members understand the relationship between their actions
and stormwater quantity and quality and take action to minimize their
stormwater impacts and habitat damage.
1
• City residents and people that work in the city support the mission of the
stormwater and watersheds program.
• The community has access to public natural areas for education and
aesthetic enjoyment without creating negative impacts to sensitive habitat.
• The community views stormwater and watershed management and
planning as a necessary function for citizen enjoyment of water resources.
POLLUTANT SOURCE CONTROL
i
• Pollutants from developed lands and roads do not enter surface water or
groundwater at levels that are harmful to aquatic life or human health.
• Citizens and businesses implement pollution prevention practices to the
maximum extent feasible.
INFRASTRUCTURE OPERATIONS AND MAINTENANCE
All City -owned and privately -owned stormwater infrastructure, including
flow control and water quality facilities, function as designed.
DEVELOPMENT PRACTICES
All development and redevelopment projects comply with City
Standards for stormwater management.
The City's approach to development and redevelopment oversight
enables money spent on stormwater management to have the
maximum benefit for water resources.
Runoff from all manmade development and construction sites is
mitigated by stormwater facilities in accordance with current City
Standards prior to discharge to surface water bodies.
COMPREHENSIVE PLANNING, ADMINISTRATION, AND FUNDING
• The City's storm drainage utility has a comprehensive strategy to
manage infrastructure protect water resources, restore damaged
habitats, and ensure sustainable development.
• The City's storm drainage utility is adequately funded to meet
regulatory requirements and the stormwater related needs of citizens.
• Existing property owners and developers pay for an equitable share of the
necessary improvement and expansion of the City's stormwater system.
• The City has a complete understanding of existing unmanaged
manmade surfaces and a plan to retrofit those surfaces that is
balanced with available funding.
15
Opportunities and Challenges
As part of the stormwater and watersheds comprehensive planning
process, the City identified opportunities and challenges faced
by the Utility. The relationship between these opportunities and
challenges and the City's long-term goals is discussed in more
detail below.
Opportunities
The process to develop this Plan allowed City staff to identify long-
term goals, describe the ideal state for managing stormwater runoff,
and identify and plan capital projects to invest in the future of the
City stormwater system. Existing activities, future programs and
projects, and future regulatory requirements were evaluated when
developing this Plan. This Plan sets a road map for the future of
stormwater management.
Challenges
The City is operating its stormwater program according to the 2019-
2024 Permit (Ecology 2019). Challenges facing the City include
meeting more stringent requirements in the 2019-2024 Permit,
such as: business source control and inspection program, public
education, reporting, watershed planning, and adoption of a new
stormwater manual. Additionally, a new NPDES Permit will be
issued in 2024 and is expected to have additional requirements.
Lack of dedicated staff time is the primary challenge facing the
City. Staff conduct the activities required by the 2019-2024 Permit,
track progress, and report to Ecology on an annual basis. Staff also
respond to flooding and water quality issues submitted by citizens
and conduct inspections during construction, post -construction, and
for maintenance of selected stormwater drainage facilities. The City
lacks available staff time to manage stormwater capital projects and
submit and manage grant applications and funds.
Evaluate Stormwater Identify Initial List of Complete Receiving
and Watersheds Capital Improvement Water Conditions
Program Program (CIP) Assessment and
Projectsa I Prioritization
Complete
Stormwater and Develop Summary Complete Stormwater
Watersheds Program Sheets for Priority Management Action
Evaluation and CIP Projects Plan (SMAP)
Recommendations
Define Levels of Service for
Programs and CIP Projects
Conduct Financial Develop Draft Plan
Analysis
Assemble Final Plan
City Watersheds
This chapter summarizes background information of existing
conditions, regulations and environmental considerations influencing
Plan development and implementation.
Within the City of Port Orchard, there are 17 distinct watersheds
(see Figure 2). These watersheds were delineated and characterized
as part of the City's Watershed Inventory and Assessment (Herrera
2022a). The major watersheds (or watersheds with the most
jurisdictional control) located within the City include:
• Annapolis Creek
• Downtown County Campus
• Anderson Creek
• Caseco Creek
• Johnson Creek
• Blackjack Creek (including Lower, Middle, and
Upper Blackjack Creeks)
• Melcher Creek
• Ross Creek
• Ruby Creek
• Stream 270
The minor watersheds (or watersheds with the least jurisdiction
control) located within the City include:
• Karcher Creek
• Coulter Creek
• Rocky Creek
• Sacco Creek
• Square Creek
Figure 1. City Watersheds.
18
1
• Legend
Port Orchard City Limit
Watershed Boundary
Stream '
Roads
— Waterbody
_ Wetland
441 AN
w w
r
Gorst Creek Anderson
Creek
(Coulter
Creek•
T
��- Rocky
Creek
M"T/
Sacco
Creek
Annapolis
Creek
Upper �,,....,
Blackjack .� +
Creek
Ross
%
Creek
!;• ;� " Karcher
Creek
Middle —
16
Blackjack
i Creek
I
Lower
Blackjack
Creek
Ruby 4
Creek
�.Square�
Cree19
i
City Watersheds, Continued...
Some watersheds support salmon while others support other aquatic
species (see Figure 3). Streams, such as Johnson Creek, Annapolis
Creek, Karcher Creek and Stream 270, support up to three salmonid
species, while other larger stream systems associated with valued
wetlands, such as Lower Blackjack Creek, Anderson Creek, Ross
Creek, and Ruby Creek, support a wider variety of salmonid
species which may include fall and summer chum, coho, fall
chinook and steelhead. Smaller stream systems such as Downtown
County Campus, Melcher Creek and Caseco Creek, do not support
salmonids and may host other species including sculpin, freshwater
eels, and other small stream aquatic species.
Important species that utilize the nearshore marine environment of
Sinclair Inlet are forage fish including surf smelt and sand lance (see
Figure 3). These small fish serve to provide recreation for the local
community in the form of "smelting" during the open season at Ross
Point, and provide an essential food source for larger fish, seals,
and river otter, to name a few local wildlife often seen from City
shorelines. Refer to the City's Watershed Inventory and Assessment
(Herrera 2022a) for detailed characteristics of each watershed.
Above: Photo of Johnson Creek.
Figure 2. Presence of Key Stream and Nearshore Fish Species in City of Port Orchard Watersheds.
20
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Stream y
270 j
Ruby':
Creek`-�,
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Sacco
' Creek
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Legend
r _ Port Orchard City Limit
L_
` Watershed Boundary
- Waterbody
Roads
Stream
Surf Smelt Spawning
Sand Lance Spawning
Species Run (Documented Presence)
Coho
Resident Coastal Cutthroat
Fall Chinook
Fall Chum
Summer Chum
N
Winter Steelhead
21
4
T
City Stormwater System
The City stormwater system (inlets, pipes, ditches, vaults, swales,
culverts, and ponds) collects runoff from streets, yards, rooftops,
and parking lots (see Figure 4). That runoff is discharged through
stormwater outfalls to either waterbodies (streams or marine
nearshore) or to an adjacent municipality.
ism-) . a 7"
Figure 3. City of Port Orchard Stormwater Infrastructure.
Legend
O Outfall
Conveyance
O Stormwater Vault
Culver
j ; Port Orchard City Limit
Pipe
Watershed Boundary
Ditch
Detention Pond
-•••- Swale
- Waterbody
Stream
Roads
a%
Sinclair Inlets
Stormwater Impacts on Watersheds
The degree to which the City stormwater system impacts local
receiving waters can be categorized from low to high by assessing
the dominance of City lands in the watershed and the level of
stormwater infrastructure (see Figure 4 and Table 1).
The total percent of impervious lands in a watershed is correlated to
the health of receiving waters. The greater the percent impervious
lands, the likely greater level of degradation upon water resources.
City stormwater influence is highest in Downtown County Campus,
Annapolis Creek and Johnson Creek watersheds, and lowest in the
more rural or limited City presence in the Square Creek, Stream 270,
Gorst Creek, Rocky Creek and Coulter Creek watersheds.
Annapolis Creek
High
55%
30%
1
4
Johnson Creek
High
100%
29%
2
2
Lower Blackjack Creek
Moderate/High
68%
22%
10
12
Ross Creek
Moderate/High
65%
13%
10
13
Melcher Creek
Moderate
100%
12%
0
3
Caseco Creek
Moderate
100%
12%
1
1
Anderson Creek
Moderate
60%
9%
4
5
Ruby Creek
Moderate
54%
5%
6
NA
Karcher Creek
Moderate
11%
28%
3
0
Sacco Creek
Moderate
22%
18%
0
0
Square Creek
7%
4%
1
NA
Stream 270
L
45%
3%
0
NA
Gorst Creek
Low
5%
4%
1
NA
Rocky Creek Low 'M 1% 2% 0 NA
Coulter Creek Low � 1% <1% 0 NA
Figure 4. Stormwater Influence Upon Watersheds.
24
Legend
Watershed Boundary
r Port Orchard City Limit
- Waterbody
Roads
Stream
Level of City Stormwater Impact
Very High
High
Moderate/High
Moderate
Low
Gorst Creek
A
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l
Annapolis's
166 ' Creek _
Upper
Blackjack
Creek".- -+
- 1
Ross 1
Creek
r Karcher
1 �
1 Creek
16
1 ♦ a Middle �.
6 Blackjack
Creek
1
1 1
e Lower
1 Blackjack
1 --- • Creek
1 �4
1 1 � `
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1 1 1
Ruby I r - -- + I
reek - - -
!- -J
Creek - -
Coulter
Creek 1
Square
Creek
Rocky
Creek �
0
Sacco
Creek
0
1
25
Applicable Policies And Regulations
In addition to addressing drainage and water quality concerns impacted
by stormwater runoff, the Surface Water Management Program
must also comply with several local, state, and federal regulatory
requirements. They include:
NPDES Permit
The 2019-2024 Permit (Ecology 2019) has broad requirements
associated with stormwater runoff and requires the City to develop
distinct program components. The first Phase II Permit was issued
by Ecology in 2007, reissued in 2012, and again in 2019. The
requirements for the City's stormwater program have become more
stringent with each new permit issuance. The permit requires that
the City's program meet requirements in I primary areas:
• Stormwater planning
■ ■ • Public education and outreach
a ..
•
' ' ■ Public involvement and participation
• Municipal separate storm sewer system (MS4) permit mapping
and documentation
• Illicit discharge detection and elimination (IDDE)
• Controlling runoff from new development, redevelopment,
and construction sites
• Operations and maintenance (O&M)
• Source control program for existing development
• Compliance with Total Maximum Daily Load (TMDL)
requirements
• Monitoring and assessment
• Reporting requirements
Washington State Growth Management Act (GMA)
:.
The Washington State Growth Management Act (GMA) is a series
■� ' '■ of statues, which include requirements for the inventory and
46 protection of environmentally critical areas. Environmentally critical
areas include steep slopes, wetlands, and streams (Chapter 36.70A
of the Revised Code of Washington [RCW]). The GMA also requires
fast-growing cities and counties to develop comprehensive plans to
ensure environmentally responsible and economically sustainable
development, which includes planning for stormwater related
capital facilities.
26
. Port Orchard Municipal Code
Several chapters of the Port Orchard Municipal Code (POMC)
govern aspects of stormwater management on new development and
redevelopment project sites, as well as inspection and maintenance
requirements for private stormwater facilities. The primary chapters
in the POMC related to surface and stormwater management include:
• Chapter 13.06 — Storm Drainage Utility
• Chapter 15.30 —Illicit Discharge Prevention, Detection,
,b
and Elimination
Ro• Chapter 20.140 — Land Disturbing Activity
• Chapter 20.150 — Stormwater Drainage
Ecology Total Maximum Daily Load Implementation Plans
m
A TMDL cleanup action is required for water bodies that have been
identified as impaired on Ecology's Section 303(d) list due to poor
water quality. The City implements actions in compliance with the
Sinclair/Dyes Inlet Fecal Coliform TMDL as required per Appendix 2
of the 2019-2024 Permit.
Federal Endangered Species Act
The Federal Endangered Species Act (ESA) prohibits the take of
all listed species, including a take that could result from the City's
stormwater facility operations or private development stormwater
management activities that are permitted by the City.
Underground Injection Control Program
The underground injection control (UIC) program is a federal
program intended to ensure that underground sources of drinking
water are protected from surface discharges to the ground. In the
. State of Washington, the UIC program is administered by Ecology
m through Chapter 173-218 of the Washington Administrative Code
(WAC). The Guidance for UIC Wells that Manage Stormwater
(Ecology 2006) lays out the requirements for UIC wells, and
Ecology has included additional guidance in the latest version of the
Stormwater Management Manual for Western Washington, released
in 2019.
27
Program Accomplishments
Since the storm drainage utility was founded in 2008, the City of
Port Orchard has made significant progress in reducing detrimental
effects of stormwater runoff on receiving waters in and around Port
Orchard. The City has planned and built capital projects to alleviate
drainage problems throughout the City. The City has also provided
stewardship opportunities through education and outreach. The
City's accomplishments for the past four years are described in
chronological order below:
City staff hosted a springtime shoreline cleanup and beach
education activity. Participants were encouraged to remove any
trash they encountered, as well as recovering and removing any
riprap or shoring materials that had fallen on the beach from the
upland shoreline. While participants worked, City staff provided
educational guidance regarding ecosystem recovery efforts,
shoreline biodiversity, effects of stormwater on shoreline habitats
and anthropogenic effects on intertidal habitats in general.
City staff provided outreach to assist with stormwater, stream,
and habitat education at South Kitsap High School, supporting the
school's Career & Technical Education and Science, Technology,
Engineering, and Math (CTE/STEM) program. This outreach event
included providing demonstrations and descriptions of methods for
establishing student stewardship activities relating to monitoring
water quality, measuring discharge, and habitat and riparian
monitoring methods at Annapolis Creek.
The City completed the Tremont Street Widening project, which
included stormwater detention, oil control, and enhanced treatment
to protect critical downstream creeks and waterways (i.e., Johnson
and Ross Creeks). Detention was provided by two underground
stormwater vaults, a 164-foot-long by 20-foot-wide by 10-foot
deep vault on the west end of the project and 100-foot-long by
20-foot-wide by 10-feet-deep vault on the east end, to provide flow
control for downstream water bodies and mitigate stormwater
issues. Stormwater conveyance was also upgraded to properly
accommodate the volume of flow in the area.
The City began developing the Downtown Basin Stormwater Plan.
The area surrounding the downtown basin is shown in Figure 6.
This plan is developing a roadmap for implementing water quality
treatment and flow control best management practices for water
quality outcomes in receiving waters. It will include the identification
of feasible actions and implementable capital improvement projects
that will modernize infrastructure and provide flow control in the
downtown and nearshore areas of Port Orchard.
Figure 6. Aerial Image of the City of Port Orchard's downtown Basin (photo courtesy of City of Port Orchard).
City staff participated in the West Sound Partners for Ecosystem
Recovery Lead Entity for Water Resource Inventory Area (WRIA)
UL J 15 and the Watershed Restoration and Enhancement Committee
(WREC) for WRIA 15. This committee connected and engaged
citizens and stakeholders in watershed level discussions and actions
related to water quality, salmon enhancement, and stormwater.
Participation in the WREC was completed in 2021.
29
Planning for Future Development
Due to the City's proximity to the urban centers of Bremerton and
Tacoma and connection to Seattle via ferry transportation, Port
Orchard is designated as a "high capacity transit community" by
the Puget Sound Regional Council (Puget Sound Regional Council
2020). The Office of Financial Management (OFM) estimates that
the City's population is 16,400 people as of 2022 and is expected to
grow by much as 36%, or to 28,086 people by 2024 (Kitsap Regional
Coordinating Council 2022; OFM 2022). This is one of many reasons
why new development within the city will be significant in the
coming years.
Land development regulations and subarea planning efforts will
be used to address environmental and water resource concerns.
New development and redevelopment are and will continue to be
regulated in accordance with the most recent flow control and water
quality standards in the 2019 Public Works Engineering Standards
and defined in POMC Chapter 20.150.06. The City adopts the
following by reference:
2019 Washington State Department of Ecology Stormwater
Management Manual
2012 Puget Sound Partnership Low Impact Development (LID)
Technical Guidance Manual for Puget Sound
Definitions, minimum requirements, and adjustment and
variance criteria found in Appendix 1 of the 2019-2024 Permit,
with exception of the erosivity waiver.
Critical areas are regulated in accordance with POMC Chapter
20.162 addressing wetlands, fish and wildlife habitat conservation
areas and related plans, geologically hazardous areas and related
reports, frequently flooded areas, and critical aquifer recharge areas.
30
ar �
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•
Vol Z
Recently, the City completed the Ruby Creek Subarea Plan (City
of Port Orchard 2022). The plan vision was to foster densification,
future growth, walkable neighborhood, and business amenities,
while accommodating the natural function of Ruby Creek and
Blackjack Creek (see Figure 7). Similar planning efforts within the
City will accommodate both people and aquatic species.
W
Aerial Rendition of the north end of the Ruby Creek Neighborhood.
(image courtesy of City of Port Orchard)
31
Climate Change
In 2020, the City of Port Orchard collaborated with Kitsap
County and the City of Bremerton to develop the Kitsap County
Climate Change Resiliency Assessment (Kitsap County 2020).
The assessment reviewed and summarized current and future
climate change drivers, impacts, and risks for Kitsap County. These
projected impacts were grouped into impacts to social and economic
systems and biophysical impacts, of which the following are related
to this Plan:
• Public infrastructure and support systems (stormwater),
• Hydrology & hydrogeology (hydrologic changes and stream and
riverine flooding), and
• Habitat (freshwater and aquatic habitat).
As part of the assessment, specific impacts to the City of Port
Orchard were evaluated and have been summarized by the City's
stormwater management component in Table 2.
Legend
0 Outfalls
•••••••• DNR Shoreline
Flood Scenarios
C 100 Year Marine Flood 2020 ..r
100 Year Marine Flood + 50°/u
Probability SLR Projection 2040
100 Year Marine Flood + 1%
Probability SLR Projection 2040 a
....
100 Year Marine Flood + 50% {
Probability SLR Projection 2100 194W
❑�
•54 W
190W
,F
f'p 186WOQ 184W°i
C
182 W
174W0176W
170W 0 172W
1 164W
150W 0
148W
• 146W a
w162W
Bi
144W 160W
}} 158W
E
* O4ST 0
3636E
s
3632E
=r • .+i
O+
m_
Table 2. Climate Change Impacts.
Stormwater Infrastructure
Stream Flows
Potential overload, degradation, and damage of
stormwater infrastructure from sea level rise and more
intense rain storms
Winter stream flooding will become more frequent
Lower spring and summer flows
Groundwater recharge may be affected by hydrologic
Groundwater Supply changes (e.g., increasing temperatures and potential for
saltwater intrusion; declining summer flows; low water
tables; and sea level rise) 0
Flood Risk Higher flood risk for low-lying coastal infrastructure,
including stormwater conveyance and facilities
Water Quality Regionally warmer stream temperatures
Cold -water fish species across multiple life -cycle stages will
be impacted by hydrologic changes.
Possible loss of streamside vegetation
Decrease in cooler/oxygenated aquatic habitat
Habitat Wetland habitats are likely to contract and threaten shelter
for juvenile fish and habitats for a variety of species
Aquatic benthic invertebrates, amphibians, and salmonids
will be impacted and will have downstream ecosystem and
food -web impacts
Capital Improvement Program (CIP)
This section summarizes the surface water and stormwater capital
improvement program (CIP). The purpose of the CIP is to define
capital projects that make progress towards the City's long-term
goals including:
Flood Reduction
Groundwater and Surface Water Quality
Groundwater and Surface Water Quantity
++
Habitat Enhancement
WOO Public Participation (Education, Outreach, and Involvement)
Infrastructure Operations & Maintenance
F
Comprehensive Planning, Administration, and Funding
34
Problem and Project Identification
Previous surface water and stormwater plans and input from
City staff were used to develop an initial list of problems to be
addressed during work on this Plan. Surface and stormwater plans
reviewed included the following:
• 2018 Port Orchard Comprehensive Plan (City of Port
Orchard 2018)
• Blackjack Creek Watershed Assessment and Protection and
Restoration Plan (ESA 2017)
• Ruby Creek Subarea Plan (City of Port Orchard 2022)
• Downtown Basin Stormwater Plan (Reid Middleton 2020)
• 2018 Annapolis Creek Culvert Replacement — 30% Design &
Permitting Coordination Report (Reid Middleton 2018)
• Blackjack Creek Floodplain Restoration Project Engineering
Design Plans (City of Port Orchard 2020)
Additional problems were identified by surveying City staff
through Esri's ArcGIS Survey123 and hosting workshops with the
City. Problems were evaluated using desktop methods and field
evaluation to assess site -specific opportunities and constraints.
Potential capital projects were developed to address the problems.
The initial list of projects, problem descriptions, and solutions are
provided in Appendix B.
35
1
Project Prioritization
The initial surface water and stormwater CIP project list was ranked
by City staff to determine the top 10 projects. The top 10 projects
are shown in Figure 8. Once the top 10 projects were chosen,
these projects were prioritized using a quantitative process that
considered further input from City staff, review of background
documents, and field reconnaissance of existing problems. This
prioritization was then used to develop an implementation schedule
that emphasized early completion of the projects providing the
greatest benefit. An overview of the CIP project prioritization
and goals is included in Table 3. Detailed prioritization results
and CIP project summary sheets are provided in Appendix B.
The CIP project implementation schedule is included in the Plan
Implementation section of this Plan.
South Sidney Regional Facility
Johnson Creek Estuary Restoration
Downtown Basin Stormwater Upgrades
3 South Blackjack Creek Floodplain Restoration
6%"
Central Sidney Stormwater Improvements
6 Annapolis Creek Culvert Replacement
7 SE Salmonberry Road, Lower Blackjack Creek
Culvert Retrofit
M
Ruby Creek Culvert Replacement
South Blackjack Creek Culvert Removal and Bridge
Installation
10 Anderson Creek Culvert Replacement
d& C?
70
55
45
.0
35
Opposite: Figure 6. Top 10 Capital Projects.
36
Legend
Q CIP Projects
r--I
Port Orchard City Limit
Watershed Boundary
- Waterbody
Stream
Roads
I I
I I
Anderson
Creek Culvert
Replacement
` I
I
I
I
I
I
Downtown Stormwater
Basin Upgrades
Johnson Creek
Estuary Restoration
O/
3
L-
L-
r I I �
I
i
Annapolis Creek '
Culvert Replacement `
A
/I
� I
' I
I
L — J
1
r
J .r_�-- _ _ -
fJ
Central Sidney
Stormwater
Improvements
c\
L �
I /
I
South Sidney �` Q
f I Regional Facility I SE Salmonberry Road,
( I Lower Blackjack Creek
Culvert Replacement
Ruby Road Creek --�-
1
Culvert Replacement L I
I _ — ` I
IJ
I
I /
I
I
I
I
South Blackjack Creek
I�_
I �
I
Floodplain Restoration
J
\ I
I
i
South Blackjack Creek
Culvert Removal and
I — —
Bridge Installation
I
37
Levels of Service
This chapter summarizes surface water and stormwater
recommendations for the City's stormwater management program.
Recommendations are organized by the long-term goals and levels of
service defined below.
The City has identified three levels of service for this Plan: Level
1, Level 2, and Level 3. Level 1 recommendations are shown for all
long-term goals. Levels 2 and 3 are not included when no additional
recommendations were identified. The levels of service are defined
as follows:
Level 1 Represents activities needed to meet 2019-2024 Permit
requirements, potential future permit requirements, and essential
program activities.
Level 2 Includes everything in Level 1 and several additional improvements
to expand public education and stewardship opportunities,
implement the new asset management program, and increase
staffing to adequately inspect construction projects and private
stormwater facilities to improve environmental protection.
Level 3 R Includes everything in Levels 1 and 2 and represents staffing and
funding to move towards achieving the City's goals. This level of
service would result in the greatest benefits for the community and
- the environment, but would have the highest cost. Level 3 includes
expanding public involvement and environmental monitoring activities.
Recommendations
Recommendations are organized by the long-term goals and
levels of service previously defined in this Plan. Detailed tables of
recommendations with associated funding and staffing requirements
are provided in City of Port Orchard Stormwater and Watersheds
Program Evaluation and Recommendations (Herrera 2022c) and
in Appendix A. Implementation of these recommendations are
discussed in the Plan Implementation section of this Plan.
39
Recommendations Continued...
Flood Reduction
Level 1:
• Design and construct upgrades to the existing conveyance
infrastructure
Groundwater and Surface Water Quality
Level 1:
• Respond to spills and water quality complaints
• Develop Pollution Control Program Plans (Quality Assurance
Project Plan [QAPPI equivalent) to monitor stream health and
provide water quality status updates
• Make annual payments to the collective fund for S8 Monitoring
and Assessment
• Seek opportunities to participate with Kitsap County and other
local jurisdictions in an integrated and coordinated monitoring
assessment program
• Provide information as requested for effectiveness and source
identification studies that are under contract with Ecology as
active Stormwater Action Monitoring (SAM) projects
0.25 FTE for Water Quality Technician
Groundwater and Surface Water Quantity
Aft Level 1:
• Design and construct upgrades to the existing conveyance
infrastructure
.m
Habitat Enhancement
Level 1:
• Conduct outreach on private property tree preservation and
wetland buffers within Lower Blackjack Creek Catchment C
Mapping and Asset Management
Level 1:
• Update the City's MS4 map on an ongoing basis, including all known
connections from the MS4 to a privately owned stormwater system
• Collect size and material data for known MS4 outfalls during
the normal course of inspections and maintenance and update
electronic records
• Locate and map additional outfall
• Additional 0.25 FTE for geographic information systems
(GIS) Technician
Level 2:
• Includes all recommendations in Level 1
• Select and implement a computer maintenance management
system (CMMS)
• Additional 0.50 FTE for Asset Management Specialist
41
Public Participation (Education, Outreach
and Involvement)
0011� Level 1:
00 • Review and update existing public education materials as needed
Develop materials for one new target audience and subject area
annually
• Partner with West Sound Stormwater Outreach Group (WSSOG)
on implementing social marketing campaigns
• Host and/or advertise volunteer events related to stewardship
opportunities and provide opportunities for public input
• Continue collaborations with local builders' associations and
participating in West Sound Partners for Ecosystem Recovery
(WSPER)
• 0.25 FTE for Education Specialist
Level 2:
• Develop an education and outreach plan for commercial and
private facility owners related to LID principles and practices
• Expand the partnership with South Kitsap School District
• Additional 0.25 FTE for Education Specialist (0.50 FTE total)
Level 3:
• Develop materials for two additional target audiences and two
additional subject areas annually (three target audiences and
three subject areas total when combined with the Level 1 tier)
• Create a volunteer stream team
• Additional 0.50 FTE for Education Specialist (1.0 FTE total)
42
Pollutant Source Control
Level 1:
• Update the City's website with pollution control best management
practice (BMP) resources
• Perform field screening and tracking of illicit connections, illicit
discharges, and spills
• Continue to implement spill hotline and staff training program
• Report illicit discharge data to Ecology using WQWebIDDE
• Review and update public education materials gathered by the
Business Inspection Group (BIG) to create a basic set of resources for
the City's source control program
• Provide enhanced source control technical assistances to businesses
within the Lower Blackjack Creek Catchment C
• 0.25 FTE for Source Control Program Coordinator
Level 2:
• Increase staff support to screen outfalls on an annual basis
• Develop additional public education materials to supplement
those gathered by the BIG to create a broader set of resources
for the City's source control program
43
Infrastructure Operations & Maintenance
Level 1:
• Continue to implement a program to verify adequate long-term
O&M of stormwater treatment and flow control BMPs/facilities
• Use a third -party contractor to conduct private facility
inspections
• Document inspections and enforcement actions for private
stormwater flow control and treatment BMPs/facilities
• Perform spot checks and inspections after storms
• Inspect catch basins and maintain as needed
• Conduct additional outfall inspections
• Clean targeted catch basins in Lower Blackjack Creek Catchment C
• Continue to implement staff training program
Level 2:
• Have a dedicated inspector to conduct private facility inspections
• Inspect and maintain additional catch basins
• 0.50 —1.0 FTE for O&M Technician (0.50 FTE in 2024, 1.0 FTE
in 2025-2028)
Development Practices
Level 1:
• Continue to implement stormwater plan review, inspection, and
escalating enforcement processes
• Refine and improve inspections and enforcement procedures
• Conduct annual review of stormwater standards
• Continue to implement staff training program
• Add engineering capacity to the capital project design team to
assist with stormwater retrofit projects and upcoming SMAP
implementation
• Develop a policy and standards for considering more intense
future precipitation and sea level rise in stormwater capital
improvement projects
• 0.25 FTE for Engineer
Level 2:
• Have a dedicated inspector to conduct construction inspections
• 1.0 FTE for Construction Inspector
• Increase engineering capacity for the capital project design team
to assist with stormwater retrofit projects and upcoming SMAP
implementation
• Additional 0.25 FTE for Engineer (0.50 FTE total)
Level 3:
• Increase engineering capacity for the capital project design team
to assist with stormwater retrofit projects and upcoming SMAP
implementation
• Develop a policy and standards for new and redevelopment
projects to design for more intense future precipitation
• Additional 0.25 FTE for Engineer (0.75 FTE total)
45
Comprehensive Planning, Administration,
and Funding
Level 1:
• Continue to meet regularly to direct planning, development,
46 and implementation of the City's Stormwater and Watersheds
Comprehensive Plan, SMAP development, and continue to
review and implement LID code updates
Implement the SMAP activities
Prepare annual reports summarizing coordination with long-
range planning efforts
Annually assess administrative or regulatory barriers to
implementation of LID principles or LID BMPs
• 0.25 FTE for Planner
pro#
14
m
rnZ'
0
J
3
City Watersheds
The 2019-2024 Permit required the City to conduct watershed
planning using a process defined by the permit as "Stormwater
Management Action Planning" (SMAP). The SMAP process required
the City to view watersheds through the lens of stormwater impacts
to receiving water health and actions to protect or improve these
water resources.
This planning was completed in three distinct steps:
• Develop an inventory of watershed characteristics, including
water resource conditions, aquatic life and community uses,
stormwater influence, and social equity (Herrera 2022a),
• Apply a prioritization process to identify the highest priority
watershed (Herrera 2022b), and
• C letekan "Action Plan" that includes retrofit projects,
Gor 'o a�rhe�rthancements, and land marAodWSMtegies,
associated costs, and schedule (Appendie�&Qk
Coulter
Creek
The goal of SMAP was t6S, city watershed where
investments in stormwatergement are most likely to lead to
environmental improveme
Ross
Creek
Ruby
Creek
166
Upper
QI-% r%iei-% r%ie
Artwork at Blackjack Creek estuary
Creek
Anderson Creek (Gorst)
Annapolis Creek
Downtown County Campus
Gorst Creek
Johnson Creek
Karcher Creek
Lower Blackjack
Ross Creek
Ruby Creek
Stream 270
City Watersheds Continued...
Marine nearshore and stream habitat conditions within major
watersheds informed the prioritization process (See Table 4 and
Figure 9). As a guiding principle, water resources with moderate
or good habitat conditions for salmon and nearshore forage fish
would benefit from water quality and flow control actions. However,
the City also intends to invest in watersheds with poor habitat
conditions to alleviate flooding and address water quality issues,
where feasible.
Good
Good
Poor Poor
Fair Good
Poor
Good
Poor
Good
Good
Good
Fair
Fair
Good
Fair
fr Good
Good
Good
Fair
Fair
Poor
Good
AN Fair
Good
Poo
*NA = Not Applicable,
* = City lands within Ruby Creek and Stream 270 Watersheds are not directly
connected to the marine nearshore
Good Poor
Good Fair
Fair Good
NA*
Good NA
Figure 7. Nearshore and Major Watershed Stream
50 Habitat Condition
-1
Legend
Port Orchard City Limit
- Waterbody
Minor Watershed
Roads
Nearshore Habitat Condition
Good
o Fair
Poor
Major Watershed Stream
Habitat Condition
Good
Fair
Poor
Gorst Cree
Coulter
Creek
Rocky
Creek
Johnson Creek
Melcher Creek
Sinclair Inlet
W w Sacco
Creek
A napol
Cree
.ower
ickreek
k '
;reek �
Karcher
Creek
1
51
Lower Blackjack Creek Watershed
Lower Blackjack Creek watershed was selected as the highest
priority watershed based on the following characteristics:
• High receiving water use, including use by multiple salmonid species
• Moderate level of development and future growth
• Good water quality and habitat condition
• Higher jurisdiction control
• Promotes other plans and projects, most notably the Blackjack
Creek Watershed Assessment and Restoration Plan (ESA 2017).
Upon review with City staff, Catchment C (Figure 8) in the
watershed was selected for the SMAP (Appendix C). The selected
catchment was chosen due to the greater concentration of older
development for retrofit opportunities.
Above: Blackjack Creek Floodplain
Right: Figure 8. City of Port Orchard Lower Blackjack Creek Catchment C
52
i r '
Legend
QCatchment E
0 Waterbody
Stream
53
This section presents detailed information on implementing the
recommended surface water and stormwater program activities
presented in Stormwater Management Program Evaluation and
Recommendations section and the capital projects described in
Capital Improvement Program section. The major components
of plan implementation include the completion of CIP projects,
addressing staffing and resource needs, interdepartmental
collaboration, interagency collaboration, and utility finances.
CIP Plan Implementation
The CIP projects are described in the Capital Improvement Program
section and additional details on each project can be found in
the project summary sheets (Appendix B). Table 5 presents an
implementation schedule that aligns with the Level 1 level of
service. Additional levels of services, which implement some CIP
projects on accelerated schedules, are included in Appendix B.
This schedule balances project priority, project complexity,
and coordination with other projects. Capital projects are reviewed
regularly by the City and the implementation schedule shown
in Table 5 is subject to change based on evolving regulatory
requirements, City priorities, and available resources.
54
Annapolis Creek Culvert
Replacement $400,000 $800,000
South Sidney Regional Facility
Downtown Basin Stormwater
Upgrades
Ruby Creek Culvert
Replacement
Johnson Creek Estuary
Restoration
Ongoing Conveyance System
Improvement Program
SE Salmonberry Road, Lower
Blackjack Creek Culvert
Retrofit
South Blackjack Creek
Floodplain Restoration
South Blackjack Creek
Culvert Removal and Bridge
Installation
Central Sidney Stormwater
Improvements
Anderson Creek Culvert
Replacement
J
$700,000 $2,800,000
$100,000 $100,000 $100,000 $100,000
$1,760,000 $1,100,000 $982,000
$400,000 $1,200,000
a All costs are in 2022 dollars.
b In 2023, $100,000 in capital funding is scheduled for Ongoing Conveyance System Improvement Program.
°The projects listed in the `out years' column are scheduled after the six year planning period.
$2,500,000
$13,000,000
$300,000
$7,000,00%
$1,600,000■
$4,000,0A
55
Staffing and Funding Needs
Under the current level of staffing, City staff can address surface
water and stormwater problems that arise on a daily basis and
troubleshoot specific issues that arise with development project
reviews. However, they are not fully able to perform activities that
would enable continual improvement of the City's stormwater
management program. Current staffing levels will not be adequate to
meet the rest of the requirements of the 2019-2024 Phase II Permit
and make progress towards long-term goals defined as part of this
Plan. The activities listed in the Stormwater Management Program
Evaluation section of the Plan will require additional staffing and
funding.
Below are the number of full time equivalents (FTEs) and funding
that are recommended for each level of service (see Figure 11 and
Tables 6 and 7). Additional staffing and funding will be needed
in Level 2 to support the City's source control, private facility
inspection, education and outreach, asset management, and 0&M
programs. In addition to the staffing and funding needed for Level 2,
Level 3 includes an increase in education and outreach, and capital
planning support.
It should be noted that these recommendations start in 2023, but
no new staffing and funding is included in the financial analysis for
2023. Refer to the Financial Analysis section for further information
about the rate impacts of implementing the levels of service.
Detailed estimates of staffing and funding needs can be found in
Appendix A.
56
Figure 9. Levels of Service and Full Time Equivalents.
"I
co
Cn 4
m
cc
3
C7
w
m
2
U-
1
0
Level - Level - Level
2023a 2024 2025 2026 2027 2028
Year
a No new staffing in 2023 is included in the financial analysis
Year Year 2 Year 3 Year 4 Year 5 Year 6
Tier 1
2023a 2024 2025 2026 2027 2028
TotalLevel 2 FWAM ..
0!"1 Ah M
4.04
4.70
5.51
Level 1 Total $10,000 $10,000 $60,000 $10,000 $10,000
Level 2 To $30,000 M$30,00dj $60,000 `$10,001 $10,000
$30,000 $ 30,000 $60,000 10,000 $110,000
a No new staffing in 2023 is included in the financial analysis
° No new funding in 2023 is included in the financial analysis
$110,000
$150,000
$250,000
57
Financial Analysis
The activities and projects listed in this section would be funded
primarily by revenue from the storm drainage utility. A financial
analysis was conducted to define utility rate adjustments that are
necessary to implement the levels of service listed in this Plan.
During the financial analysis, the City evaluated the regulatory
needs and stormwater-related issues facing the City to find a balance
between level of service and increased utility rates. Table 8 includes
the monthly rate per impervious surface unit (ISU) for the six -year
planning period by level of service and the change (increase) from
the previous year's monthly rate. An ISU is defined as one residential
unit or 3,000 impervious square feet on non-residential parcels (e.g.,
commercial, multi -family).
The full utility rate study report is included in Appendix D. The
report documents assumptions for programmatic and capital project
implementation for all three levels of service and includes monthly
rates per ISU for years 2023 to 2041.
revel1 $14.00 $16.94 $20.50 $24.80 $25.55 $26.31
Change to Monthly Rate $2.94
$3.56
$4.30
$0.75
$0.76
Level $14.00 $18.34
$24.03
$31.47
$32.42
$33.39
Change to Monthly Rate $4.34
$5.69
$7.44
$0.95
$0.97
111111=_ IIM� a $14.00 7
T$29.64 r
$43.12
$44.42
$45.75
Change to Monthly Rate
$9.27
$13.48
$1.30
$1.33
The City is interested in considering a capital facilities charge (CFC)
for stormwater, which would recover a proportionate share of the
cost of existing and future system assets from new customers as
growth occurs. The City already has CFCs for water and wastewater
utilities. Table 9 presents the maximum defensible CFC that can be
implemented by the City for each level of service. City Council could
opt to adopt a lower CFC than shown in Table 9.
.ram A'•
Rk
ram..;: •� " !� � a � ��
19
01 y
- . ��.. d: .l ��'i r r bhp . .� •
C
Table 9. Capital Facility Charge by Level of Service
Level of Service Capital Facility Charge
Level 3
Image from Kitsap Conservation District
Linkages to Other City Programs
Interdepartmental Collaboration
The City's stormwater management program is led by staff in the Public
Works Department. Plan implementation will require contributions from
staff in the Public Works Operations and Maintenance, Engineering,
Community Development, and Finance departments.
Interagency Collaboration
To address ongoing regional efforts, the City should continue to
work with regional stakeholder groups and local governments in
shared drainage basins to manage and treat stormwater effectively.
Below are agencies and regional programs related to implementing
program elements.
Comprehensive Stormwater Planning
• Coordinating with the Cities of Bremerton, Bainbridge Island,
Poulsbo, and Kitsap County on the Dyes/Sinclair Inlets Fecal
Coliform TMDL Implementation Plan
• Coordinating with the City of Bremerton, Kitsap County, and
Pierce County on potential future Stormwater Management
Action Planning for shared drainage basins
Public Education and Public Involvement
• Coordinating with the West Sound Stormwater Outreach Group
(WSSOG) on regional messaging and programs
• Coordinating with the Kitsap Conservation District on potential
future efforts including the homeowner rain garden cost share
program
• Coordinating with the South Kitsap School District on a school
stormwater curriculum and field visits
Capital Improvement Projects and Programs
• Coordinating with the Suquamish Tribe and other relevant tribes
on review of salmon habitat projects
• Coordinating with the West Sound Partners for Regional
Recovery on prioritization of regional salmon habitat projects
• Coordinating with the Washington State Department of
Fish and Wildlife on review of projects and their impacts to
fish habitat
• Coordinating with the Washington State Department of
Transportation on City projects adjacent to state lands
• Coordinating with Kitsap Regional Coordinating Council on
regional transportation and land use decisions
• Coordinating with Puget Sound Regional Council on
transportation, growth management, and economic development
.•
Pursuit of Outside Funding
All of the CIP projects identified in this Plan are eligible for outside
funding. The City should pursue state grants for stormwater retrofit
projects; habitat, fish passage, and floodplain improvement grants
for culvert, floodplain, and estuary projects; and low interest loans
for capital projects that are purely conveyance improvements.
kill'
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zo
61
REFERENCES
Ecology. 2019. Western Washington Phase II Municipal Stormwater
Permit. State of Washington Department of Ecology. Olympia,
Washington 98504-7600. Issuance Date: July 1, 2019.
ESA. 2017. Blackjack Creek Watershed Restoration Assessment and
Protection and Restoration Plan. Prepared for Suquamish Tribe and
Washington Department of Ecology, by ESA Consultants, Seattle,
Washington.
Mauger, Guillaume. 2017. Climate Change and Stormwater. Climate
Impacts Group, University of Washington. 1-25.
Kitsap County. 2021. Buildable Lands Report, Kitsap County,
Washington. FINAL. https://www.kitsapgov.com/dcd/PEP%20
Documents/FINAL%20Buildable%20Lands%2OReport—
November%202021.pdf
Kitsap Regional Coordination Council. February 15, 2022.
Land Use Planning Policy Committee Meeting. <https://
static1.squarespace.com/static/5660ba88e4bOe83ffe8O32fc/
t/6205bOf793b6a1302e7c8f41/1644540153978/
KRCC+P1anPOL+Feb+15+2022+Meeting+Packet.pdf. >
Herrera. 2022a. City of Port Orchard Watershed Inventory and
Assessment — Technical Memorandum. Prepared for the City of
Port Orchard by Herrera Environmental Consultants, Seattle,
Washington. March 21.< https://portorchardwa.gov/documents/
port -orchard -watershed -inventory/>
Herrera. 2022b. City of Port Orchard Watershed Prioritization —
Technical Memorandum. Prepared for the City of Port Orchard by
Herrera Environmental Consultants, Seattle, Washington. June 22.
< https://portorchardwa.gov/documents/port-orchard-watershed-
prioritization/ >
62
Herrera. 2022c. City of Port Orchard Stormwater and Watersheds
Program Evaluation and Recommendations. Prepared for the City
of Port Orchard by Herrera Environmental Consultants, Seattle,
Washington. February 24.
Herrera. 2020. Port Orchard Shoreline Master Program Update.
Prepared for the City of Port Orchard, by Herrera Environmental
Consultants, Inc., Seattle, Washington.
OFM. 2022. Population of Cities, Towns and Counties Used for
Allocation of Selected State Revenues State of Washington. <https://
ofm.wa.gov/site s/default/files/public/dataresearch/pop/april l/ofm—
april l_population—final.pdf>
Puget Sound Regional Council. 2020. Vision 2050 A Plan for the
Central Puget Sound Region. Puget Sound Regional Council, Seattle,
Washington. Adoption Date: October 29, 2020. < https://www.psrc.
org/sites/default/files/2022-02/vision-2050-plan%20%281%29.pdf >
Port Orchard. 2020. Blackjack Creek Floodplain Restoration Project
Engineering Design Plans. 2020. Port Orchard, Washington.
Port Orchard and Makers Architecture and Urban Design. 2022.
Ruby Creek Subarea Plan. Port Orchard, Washington. Adoption
Date: September 22, 2022. < https:Hstorage.googleapis.com/
proudcity/portorchardwa/uploads/2020/09/FINAL-ADOPTED-Ruby-
Creek-Neighborhood-Subarea-Plan-09222020-1.pdf >
Reid Middleton. 2018. 2018 Annapolis Creek Culvert Replacement —
30% Design & Permitting Coordination Report, Prepared for the City
of Port Orchard by Reid Middleton, Inc., Everett, Washington.
Reid Middleton. 2020. Downtown Basin Stormwater Plan, Prepared
for the City of Port Orchard by Reid Middleton, Inc., Everett,
Washington.
63
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This Stormwater and Watersheds Comprehensive Plan (Plan) was produced through
the combined efforts, ideas and contributions of the following City of Port Orchard staff,
appointed and elected officials, and consultants. Photos courtesy of Herrera staff.
Mayor City Council
Planning Commission
Rob Putaansu Shawn Cucciardi
Annette Stewart
Jay Roasapepe
Stephanie Bailey
Scott Diener
Tyler McKlosky
John Clauson
Paul Fontenot
Cindy Lucarelli
David Bernstein
Fred Chang
Bek Ashby
Mark Trenary
Joe Morrison
City Staff
Zack Holt ...........................
Stormwater Permit Manager
Tony Lang .........................
Director of Public Works
Mark Dorsey .....................
Former Director of Public Works
Chris Hammer ..................
City Engineer
Jacki Brown ......................
Utility Manager
Nick Bond .........................
Director of Community Development
Ian Smith ..........................
Engineer
Jim Fisk ............................
Senior Planner
Darren Padroza................
GIS/Inspections
Herrera Environmental Consultants, Inc.
Matthew Fontaine .............
Project Manager
Mindy Fobn .-------.Watcrobod
Planning
Rvb000m Dugopolski .........
NPZ)E8Permit Specialist
Julianne Cbechonover.......
Staff Engineer
Katie Wingrove ------
Geographic Information Systems Load
Briao8noiek ......................
Capital Project Planning
Jonathan Waggoner ---.
Capital Project Planning
BriauzuuBlaud....................
Capital Project Planning
_---~ Vayanos ....................
Graphic Design
Reid Middleton, Inc.
Mark Davis .........................
Engineer
GeoEngineers
Joe ------'
Biologist
Adam -------
Biologist
FCS Group
John GhUardncci................
Principal
Take Aaker..........................
Project Manager
3
01 INTRODUCTION
10 Stormwater Runoff and Effects
11 Purpose of this Plan
12 Stormwater Management Mission Statement
13 Long-term Goals
16 Opportunities and Challenges
17 Plan Development
02 BACKGROUND
18 City Watersheds
22 City Stormwater System
24 Stormwater Impacts on Watersheds
26 Applicable Policies and Regulations
28 Program Accomplishments
30 Planning for Future Development
32 Climate Change
03 CAPITAL IMPROVEMENT PROGRAM (CIP)
34 Capital Improvement Program (CIP)
35 Problem and Project Identification
36 Project Prioritization
04 STORMWATER MANAGEMENT PROGRAM
EVALUATION AND RECOMMENDATIONS
38 Levels of Service
40 Recommendations
M
05 WATERSHED PLANNING
48 City Watersheds
52 Lower Blackjack Creek Watershed
06 PLAN IMPLEMENTATION
54 CIP Plan Implementation
56 Staffing and Funding Needs
58 Financial Analysis Summary
60 Linkages to Other Programs
61 Pursuit of Outside Funding
■ 07 REFERENCE
08 APPENDICES
A Appendix A - Stormwater Management Program
Staffing and Funding Matrix
B Appendix B - Capital Improvement Program
Summary Sheets, and Project Prioritization
C Appendix C - Stormwater Management Action Plan
D Appendix D - Financial Analysis
5
TABLE 1 Watershed Stormwater Impact Rating
TABLE 2 Climate Change Impacts
TABLE 3 Prioritized Projects and Ranking
TABLE 4 Summary of Major Watershed Habitat Conditions
for Salmon and Forage Fish
TABLE 5 Capital Improvement Program Implementation Schedule
TABLE 6 Staff FTE Summary by Year and Tier
TABLE 7 Funding Summary by Year and Tier
TABLE 8 Monthly Rate per Impervious Surface Unit by Level of Service
TABLE 9 Capital Facility Charge by Level of Service
24
33
36
50
55
57
57
58
59
I
FIGURE 1 City Watersheds 19
FIGURE 2 Presence of Key Stream and Nearshore Fish Species in City 20
of Port Orchard Watersheds
FIGURE 3 Stormwater Infrastructure 23
FIGURE 4 Stormwater Influence Upon Watersheds 25
FIGURE 5 Projected 100 Year Marine Flood Extent Under Sea Level 32
Rise Scenario
FIGURE 6 Top 10 Capital Projects 37
FIGURE 7 Nearshore and Major Watershed Stream Habitat Condition 51
FIGURE 8 Lower Blackjack Creek Catchment C 53
FIGURE 9 Levels of Service and Full Time Equivalents 56
7
BMP
Best management practice
CFC
Capital Facilities Charge
CTE
Career & Technical Education
CIP
Capital improvement program
City
City of Port Orchard
CMMS
Computerized maintenance management system
Ecology
Washington State Department of Ecology
ESA
Federal Endangered Species Act
FTE Full Time Equivalent
GIS Geographic information systems
GMA Washington State Growth Management Act
IDDE Illicit discharge detection and elimination
ISU Impervious Surface Unit
LID Low Impact Development
MS4 Municipal separate storm sewer system
NPDES National Pollutant Discharge Elimination System
0&M
Operations and Maintenance
11
OFM
Office of Financial Management
Permit Western Washington Phase II Municipal Stormwater Permit
PMC Port Orchard Municipal Code
QAPP
Quality Assurance Project Plan
RCW
Revised Code of Washington
SAM
Stormwater Action Monitoring
SMAP
Stormwater Management Action Planning
STEM
Science, technology, engineering, and math
TMDL
Total Maximum Daily Load
UGA Urban Growth Area
UIC
Underground Injection Control
WAC
Washington Administrative Code
WRIA
Water Resource Inventory Area
WREC Watershed Restoration and Enhancement
WSPER West Sound Partners for Ecosystem Recovery
WSSOG West Sound Stormwater Outreach Group
0
Stormwater Runoff and Effects
The City of Port Orchard (City) operates a system of drainage
pipes and ditches to convey stormwater runoff to receiving waters
including streams and Sinclair Inlet. The drainage system prevents
and minimizes damage to private properties, city streets, and other
infrastructure. As rain falls and travels across hard surfaces, such
as roofs, yards, and streets, pollutants are picked up and carried
to receiving waters. The City is faced with the challenge to convey
runoff safely, while minimizing adverse high -flow impacts (erosion,
flooding, and sediment deposition) and water quality degradation to
receiving waters.
In 2008, the City established the storm drainage utility (Utility) to
create a funding source to address stormwater and receiving water
management issues citywide. State and federal regulations related
to stormwater have evolved since 2007, when the City was issued
its first National Pollutant Discharge Elimination System (NPDES)
Western Washington Phase 11 Stormwater Permit (Permit) from
the Washington Department of Ecology (Ecology), leading to more
stringent requirements for implementing projects, programs, and
maintenance.
10
Watershed signage, City of Port Orchard
Purpose of this Plan
City water resources include freshwater streams, marine
water shorelines and estuaries, upland wetlands, and aquifers
underground. These waters support aquatic wildlife, terrestrial
wildlife, and people, in the form of recreation and drinking water.
A watershed is the area of land where surface water flows to
a receiving water body. supporting salmon in a stream, where
children play at the beach, or the nearshore environment
nourishing shellfish and forage fish.
The City has chosen to develop and implement its first surface
and stormwater comprehensive plan with a focus on watersheds
spanning the landscape and stormwater influence on water
resources. This approach recognizes the ecosystem function and
value of receiving waters and maps out a plan to accommodate
future growth, correct existing flooding problems, involve the
public, preserve functioning habitat, and enhance habitat where
opportunities are found.
This Stormwater and Watersheds Comprehensive Plan (Plan)
sets a course for stormwater programs and capital projects for
years to come and addresses current and anticipated regulatory
requirements, future development, existing flooding and water
quality concerns, infrastructure maintenance and management, and
the resources needed for the City to fully implement this Plan.
11
Stormwater Management Mission Statement
The mission of the stormwater management program is to regulate
and manage use of the City's municipal separate storm sewer system
(MS4) as required by the City's NPDES permit while conscientiously
managing and protecting surface and receiving waters for public health
and enjoyment.
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Long-term Goals
FLOOD REDUCTION
Conveyance infrastructure that meets the Public Works Engineering
Standards (City Standards) (convey the 100-yr return period flow; 50-yr
return period flow if the 100-yr overflow does not threaten buildings and
critical structures) for the entire city.
The City's tidally influenced stormwater infrastructure is resilient to tidal
fluctuation including projected sea level rise.
The City has a complete understanding of system deficiencies and a plan
to address those deficiencies that is balanced with available funding.
GROUND AND SURFACE WATER QUALITY
Infiltrated stormwater does not negatively affect groundwater quality.
Streams meet water quality standards for human health and aquatic life.
GROUND AND SURFACE WATER QUANTITY
Groundwater supply is replenished by infiltration from developed
areas at a rate that is equal to the volume infiltrated under natural
forested conditions.
Streams have adequate summer flow volume and natural winter storm
flow regimes to support local aquatic life.
HABITAT ENHANCEMENT
• City -influenced streams are fully restored to forested hydrologic
conditions and meet designated uses and water quality standards.
• City culverts that carry fish -bearing streams allow fish to pass
unimpeded.
• Pocket estuaries adjacent to city lands are ecologically functional and
not negatively affected by stormwater runoff or hydraulic constraints
from stormwater infrastructure.
• Shorelines adjacent to city lands are not negatively affected by
stormwater.
• City watersheds are characterized and prioritized according to
potential environmental restoration, conservation, or development
so that investments in stormwater and watershed projects can be
directed to where they achieve the maximum benefit.
MAPPING AND ASSET MANAGEMENT
Stormwater system asset attributes and conditions are tracked and
managed in one cohesive system that is compatible with all other
city systems.
The stormwater system asset management system supports planning
and prioritizing repairs, upgrades, and maintenance, as well as generating
and tracking work orders to support annual review and evaluation.
14
PUBLIC PARTICIPATION (EDUCATION, OUTREACH, AND INVOLVEMENT)
• Community members understand the relationship between their actions
and stormwater quantity and quality and take action to minimize their
stormwater impacts and habitat damage.
1
• City residents and people that work in the city support the mission of the
stormwater and watersheds program.
• The community has access to public natural areas for education and
aesthetic enjoyment without creating negative impacts to sensitive habitat.
• The community views stormwater and watershed management and
planning as a necessary function for citizen enjoyment of water resources.
POLLUTANT SOURCE CONTROL
i
• Pollutants from developed lands and roads do not enter surface water or
groundwater at levels that are harmful to aquatic life or human health.
• Citizens and businesses implement pollution prevention practices to the
maximum extent feasible.
INFRASTRUCTURE OPERATIONS AND MAINTENANCE
All City -owned and privately -owned stormwater infrastructure, including
flow control and water quality facilities, function as designed.
DEVELOPMENT PRACTICES
All development and redevelopment projects comply with City
Standards for stormwater management.
The City's approach to development and redevelopment oversight
enables money spent on stormwater management to have the
maximum benefit for water resources.
Runoff from all manmade development and construction sites is
mitigated by stormwater facilities in accordance with current City
Standards prior to discharge to surface water bodies.
COMPREHENSIVE PLANNING, ADMINISTRATION, AND FUNDING
• The City's storm drainage utility has a comprehensive strategy to
manage infrastructure protect water resources, restore damaged
habitats, and ensure sustainable development.
• The City's storm drainage utility is adequately funded to meet
regulatory requirements and the stormwater related needs of citizens.
• Existing property owners and developers pay for an equitable share of the
necessary improvement and expansion of the City's stormwater system.
• The City has a complete understanding of existing unmanaged
manmade surfaces and a plan to retrofit those surfaces that is
balanced with available funding.
15
Opportunities and Challenges
As part of the stormwater and watersheds comprehensive planning
process, the City identified opportunities and challenges faced
by the Utility. The relationship between these opportunities and
challenges and the City's long-term goals is discussed in more
detail below.
Opportunities
The process to develop this Plan allowed City staff to identify long-
term goals, describe the ideal state for managing stormwater runoff,
and identify and plan capital projects to invest in the future of the
City stormwater system. Existing activities, future programs and
projects, and future regulatory requirements were evaluated when
developing this Plan. This Plan sets a road map for the future of
stormwater management.
Challenges
The City is operating its stormwater program according to the 2019-
2024 Permit (Ecology 2019). Challenges facing the City include
meeting more stringent requirements in the 2019-2024 Permit,
such as: business source control and inspection program, public
education, reporting, watershed planning, and adoption of a new
stormwater manual. Additionally, a new NPDES Permit will be
issued in 2024 and is expected to have additional requirements.
Lack of dedicated staff time is the primary challenge facing the
City. Staff conduct the activities required by the 2019-2024 Permit,
track progress, and report to Ecology on an annual basis. Staff also
respond to flooding and water quality issues submitted by citizens
and conduct inspections during construction, post -construction, and
for maintenance of selected stormwater drainage facilities. The City
lacks available staff time to manage stormwater capital projects and
submit and manage grant applications and funds.
Evaluate Stormwater Identify Initial List of Complete Receiving
and Watersheds Capital Improvement Water Conditions
Program Program (CIP) Assessment and
Projectsa I Prioritization
Complete
Stormwater and Develop Summary Complete Stormwater
Watersheds Program Sheets for Priority Management Action
Evaluation and CIP Projects Plan (SMAP)
Recommendations
Define Levels of Service for
Programs and CIP Projects
Conduct Financial Develop Draft Plan
Analysis
Assemble Final Plan
City Watersheds
This chapter summarizes background information of existing
conditions, regulations and environmental considerations influencing
Plan development and implementation.
Within the City of Port Orchard, there are 17 distinct watersheds
(see Figure 2). These watersheds were delineated and characterized
as part of the City's Watershed Inventory and Assessment (Herrera
2022a). The major watersheds (or watersheds with the most
jurisdictional control) located within the City include:
• Annapolis Creek
• Downtown County Campus
• Anderson Creek
• Caseco Creek
• Johnson Creek
• Blackjack Creek (including Lower, Middle, and
Upper Blackjack Creeks)
• Melcher Creek
• Ross Creek
• Ruby Creek
• Stream 270
The minor watersheds (or watersheds with the least jurisdiction
control) located within the City include:
• Karcher Creek
• Coulter Creek
• Rocky Creek
• Sacco Creek
• Square Creek
Figure 1. City Watersheds.
18
1
• Legend
Port Orchard City Limit
Watershed Boundary
Stream '
Roads
— Waterbody
_ Wetland
441 AN
w w
r
Gorst Creek Anderson
Creek
(Coulter
Creek•
T
��- Rocky
Creek
M"T/
Sacco
Creek
Annapolis
Creek
Upper �,,....,
Blackjack .� +
Creek
Ross
%
Creek
!;• ;� " Karcher
Creek
Middle —
16
Blackjack
i Creek
I
Lower
Blackjack
Creek
Ruby 4
Creek
�.Square�
Cree19
i
City Watersheds, Continued...
Some watersheds support salmon while others support other aquatic
species (see Figure 3). Streams, such as Johnson Creek, Annapolis
Creek, Karcher Creek and Stream 270, support up to three salmonid
species, while other larger stream systems associated with valued
wetlands, such as Lower Blackjack Creek, Anderson Creek, Ross
Creek, and Ruby Creek, support a wider variety of salmonid
species which may include fall and summer chum, coho, fall
chinook and steelhead. Smaller stream systems such as Downtown
County Campus, Melcher Creek and Caseco Creek, do not support
salmonids and may host other species including sculpin, freshwater
eels, and other small stream aquatic species.
Important species that utilize the nearshore marine environment of
Sinclair Inlet are forage fish including surf smelt and sand lance (see
Figure 3). These small fish serve to provide recreation for the local
community in the form of "smelting" during the open season at Ross
Point, and provide an essential food source for larger fish, seals,
and river otter, to name a few local wildlife often seen from City
shorelines. Refer to the City's Watershed Inventory and Assessment
(Herrera 2022a) for detailed characteristics of each watershed.
Above: Photo of Johnson Creek.
Figure 2. Presence of Key Stream and Nearshore Fish Species in City of Port Orchard Watersheds.
20
O
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Stream y
270 j
Ruby':
Creek`-�,
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Sacco
' Creek
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Legend
r _ Port Orchard City Limit
L_
` Watershed Boundary
- Waterbody
Roads
Stream
Surf Smelt Spawning
Sand Lance Spawning
Species Run (Documented Presence)
Coho
Resident Coastal Cutthroat
Fall Chinook
Fall Chum
Summer Chum
N
Winter Steelhead
21
4
T
City Stormwater System
The City stormwater system (inlets, pipes, ditches, vaults, swales,
culverts, and ponds) collects runoff from streets, yards, rooftops,
and parking lots (see Figure 4). That runoff is discharged through
stormwater outfalls to either waterbodies (streams or marine
nearshore) or to an adjacent municipality.
ism-) . a 7"
Figure 3. City of Port Orchard Stormwater Infrastructure.
Legend
O Outfall
Conveyance
O Stormwater Vault
Culver
j ; Port Orchard City Limit
Pipe
Watershed Boundary
Ditch
Detention Pond
-•••- Swale
- Waterbody
Stream
Roads
a%
Sinclair Inlets
Stormwater Impacts on Watersheds
The degree to which the City stormwater system impacts local
receiving waters can be categorized from low to high by assessing
the dominance of City lands in the watershed and the level of
stormwater infrastructure (see Figure 4 and Table 1).
The total percent of impervious lands in a watershed is correlated to
the health of receiving waters. The greater the percent impervious
lands, the likely greater level of degradation upon water resources.
City stormwater influence is highest in Downtown County Campus,
Annapolis Creek and Johnson Creek watersheds, and lowest in the
more rural or limited City presence in the Square Creek, Stream 270,
Gorst Creek, Rocky Creek and Coulter Creek watersheds.
Annapolis Creek
High
55%
30%
1
4
Johnson Creek
High
100%
29%
2
2
Lower Blackjack Creek
Moderate/High
68%
22%
10
12
Ross Creek
Moderate/High
65%
13%
10
13
Melcher Creek
Moderate
100%
12%
0
3
Caseco Creek
Moderate
100%
12%
1
1
Anderson Creek
Moderate
60%
9%
4
5
Ruby Creek
Moderate
54%
5%
6
NA
Karcher Creek
Moderate
11%
28%
3
0
Sacco Creek
Moderate
22%
18%
0
0
Square Creek
7%
4%
1
NA
Stream 270
L
45%
3%
0
NA
Gorst Creek
Low
5%
4%
1
NA
Rocky Creek Low 'M 1% 2% 0 NA
Coulter Creek Low � 1% <1% 0 NA
Figure 4. Stormwater Influence Upon Watersheds.
24
Legend
Watershed Boundary
r Port Orchard City Limit
- Waterbody
Roads
Stream
Level of City Stormwater Impact
Very High
High
Moderate/High
Moderate
Low
Gorst Creek
A
J I
l
Annapolis's
166 ' Creek _
Upper
Blackjack
Creek".- -+
- 1
Ross 1
Creek
r Karcher
1 �
1 Creek
16
1 ♦ a Middle �.
6 Blackjack
Creek
1
1 1
e Lower
1 Blackjack
1 --- • Creek
1 �4
1 1 � `
I -■ 1
1 1 1
Ruby I r - -- + I
reek - - -
!- -J
Creek - -
Coulter
Creek 1
Square
Creek
Rocky
Creek �
0
Sacco
Creek
0
1
25
Applicable Policies And Regulations
In addition to addressing drainage and water quality concerns impacted
by stormwater runoff, the Surface Water Management Program
must also comply with several local, state, and federal regulatory
requirements. They include:
NPDES Permit
The 2019-2024 Permit (Ecology 2019) has broad requirements
associated with stormwater runoff and requires the City to develop
distinct program components. The first Phase II Permit was issued
by Ecology in 2007, reissued in 2012, and again in 2019. The
requirements for the City's stormwater program have become more
stringent with each new permit issuance. The permit requires that
the City's program meet requirements in I primary areas:
• Stormwater planning
■ ■ • Public education and outreach
a ..
•
' ' ■ Public involvement and participation
• Municipal separate storm sewer system (MS4) permit mapping
and documentation
• Illicit discharge detection and elimination (IDDE)
• Controlling runoff from new development, redevelopment,
and construction sites
• Operations and maintenance (O&M)
• Source control program for existing development
• Compliance with Total Maximum Daily Load (TMDL)
requirements
• Monitoring and assessment
• Reporting requirements
Washington State Growth Management Act (GMA)
:.
The Washington State Growth Management Act (GMA) is a series
■� ' '■ of statues, which include requirements for the inventory and
46 protection of environmentally critical areas. Environmentally critical
areas include steep slopes, wetlands, and streams (Chapter 36.70A
of the Revised Code of Washington [RCW]). The GMA also requires
fast-growing cities and counties to develop comprehensive plans to
ensure environmentally responsible and economically sustainable
development, which includes planning for stormwater related
capital facilities.
26
. Port Orchard Municipal Code
Several chapters of the Port Orchard Municipal Code (POMC)
govern aspects of stormwater management on new development and
redevelopment project sites, as well as inspection and maintenance
requirements for private stormwater facilities. The primary chapters
in the POMC related to surface and stormwater management include:
• Chapter 13.06 — Storm Drainage Utility
• Chapter 15.30 —Illicit Discharge Prevention, Detection,
,b
and Elimination
Ro• Chapter 20.140 — Land Disturbing Activity
• Chapter 20.150 — Stormwater Drainage
Ecology Total Maximum Daily Load Implementation Plans
m
A TMDL cleanup action is required for water bodies that have been
identified as impaired on Ecology's Section 303(d) list due to poor
water quality. The City implements actions in compliance with the
Sinclair/Dyes Inlet Fecal Coliform TMDL as required per Appendix 2
of the 2019-2024 Permit.
Federal Endangered Species Act
The Federal Endangered Species Act (ESA) prohibits the take of
all listed species, including a take that could result from the City's
stormwater facility operations or private development stormwater
management activities that are permitted by the City.
Underground Injection Control Program
The underground injection control (UIC) program is a federal
program intended to ensure that underground sources of drinking
water are protected from surface discharges to the ground. In the
. State of Washington, the UIC program is administered by Ecology
m through Chapter 173-218 of the Washington Administrative Code
(WAC). The Guidance for UIC Wells that Manage Stormwater
(Ecology 2006) lays out the requirements for UIC wells, and
Ecology has included additional guidance in the latest version of the
Stormwater Management Manual for Western Washington, released
in 2019.
27
Program Accomplishments
Since the storm drainage utility was founded in 2008, the City of
Port Orchard has made significant progress in reducing detrimental
effects of stormwater runoff on receiving waters in and around Port
Orchard. The City has planned and built capital projects to alleviate
drainage problems throughout the City. The City has also provided
stewardship opportunities through education and outreach. The
City's accomplishments for the past four years are described in
chronological order below:
City staff hosted a springtime shoreline cleanup and beach
education activity. Participants were encouraged to remove any
trash they encountered, as well as recovering and removing any
riprap or shoring materials that had fallen on the beach from the
upland shoreline. While participants worked, City staff provided
educational guidance regarding ecosystem recovery efforts,
shoreline biodiversity, effects of stormwater on shoreline habitats
and anthropogenic effects on intertidal habitats in general.
City staff provided outreach to assist with stormwater, stream,
and habitat education at South Kitsap High School, supporting the
school's Career & Technical Education and Science, Technology,
Engineering, and Math (CTE/STEM) program. This outreach event
included providing demonstrations and descriptions of methods for
establishing student stewardship activities relating to monitoring
water quality, measuring discharge, and habitat and riparian
monitoring methods at Annapolis Creek.
The City completed the Tremont Street Widening project, which
included stormwater detention, oil control, and enhanced treatment
to protect critical downstream creeks and waterways (i.e., Johnson
and Ross Creeks). Detention was provided by two underground
stormwater vaults, a 164-foot-long by 20-foot-wide by 10-foot
deep vault on the west end of the project and 100-foot-long by
20-foot-wide by 10-feet-deep vault on the east end, to provide flow
control for downstream water bodies and mitigate stormwater
issues. Stormwater conveyance was also upgraded to properly
accommodate the volume of flow in the area.
The City began developing the Downtown Basin Stormwater Plan.
The area surrounding the downtown basin is shown in Figure 6.
This plan is developing a roadmap for implementing water quality
treatment and flow control best management practices for water
quality outcomes in receiving waters. It will include the identification
of feasible actions and implementable capital improvement projects
that will modernize infrastructure and provide flow control in the
downtown and nearshore areas of Port Orchard.
Figure 6. Aerial Image of the City of Port Orchard's downtown Basin (photo courtesy of City of Port Orchard).
City staff participated in the West Sound Partners for Ecosystem
Recovery Lead Entity for Water Resource Inventory Area (WRIA)
UL J 15 and the Watershed Restoration and Enhancement Committee
(WREC) for WRIA 15. This committee connected and engaged
citizens and stakeholders in watershed level discussions and actions
related to water quality, salmon enhancement, and stormwater.
Participation in the WREC was completed in 2021.
29
Planning for Future Development
Due to the City's proximity to the urban centers of Bremerton and
Tacoma and connection to Seattle via ferry transportation, Port
Orchard is designated as a "high capacity transit community" by
the Puget Sound Regional Council (Puget Sound Regional Council
2020). The Office of Financial Management (OFM) estimates that
the City's population is 16,400 people as of 2022 and is expected to
grow by much as 36%, or to 28,086 people by 2024 (Kitsap Regional
Coordinating Council 2022; OFM 2022). This is one of many reasons
why new development within the city will be significant in the
coming years.
Land development regulations and subarea planning efforts will
be used to address environmental and water resource concerns.
New development and redevelopment are and will continue to be
regulated in accordance with the most recent flow control and water
quality standards in the 2019 Public Works Engineering Standards
and defined in POMC Chapter 20.150.06. The City adopts the
following by reference:
2019 Washington State Department of Ecology Stormwater
Management Manual
2012 Puget Sound Partnership Low Impact Development (LID)
Technical Guidance Manual for Puget Sound
Definitions, minimum requirements, and adjustment and
variance criteria found in Appendix 1 of the 2019-2024 Permit,
with exception of the erosivity waiver.
Critical areas are regulated in accordance with POMC Chapter
20.162 addressing wetlands, fish and wildlife habitat conservation
areas and related plans, geologically hazardous areas and related
reports, frequently flooded areas, and critical aquifer recharge areas.
30
ar �
IL
•
Vol Z
Recently, the City completed the Ruby Creek Subarea Plan (City
of Port Orchard 2022). The plan vision was to foster densification,
future growth, walkable neighborhood, and business amenities,
while accommodating the natural function of Ruby Creek and
Blackjack Creek (see Figure 7). Similar planning efforts within the
City will accommodate both people and aquatic species.
W
Aerial Rendition of the north end of the Ruby Creek Neighborhood.
(image courtesy of City of Port Orchard)
31
Climate Change
In 2020, the City of Port Orchard collaborated with Kitsap
County and the City of Bremerton to develop the Kitsap County
Climate Change Resiliency Assessment (Kitsap County 2020).
The assessment reviewed and summarized current and future
climate change drivers, impacts, and risks for Kitsap County. These
projected impacts were grouped into impacts to social and economic
systems and biophysical impacts, of which the following are related
to this Plan:
• Public infrastructure and support systems (stormwater),
• Hydrology & hydrogeology (hydrologic changes and stream and
riverine flooding), and
• Habitat (freshwater and aquatic habitat).
As part of the assessment, specific impacts to the City of Port
Orchard were evaluated and have been summarized by the City's
stormwater management component in Table 2.
Legend
0 Outfalls
•••••••• DNR Shoreline
Flood Scenarios
C 100 Year Marine Flood 2020 ..r
100 Year Marine Flood + 50°/u
Probability SLR Projection 2040
100 Year Marine Flood + 1%
Probability SLR Projection 2040 a
....
100 Year Marine Flood + 50% {
Probability SLR Projection 2100 194W
❑�
•54 W
190W
,F
f'p 186WOQ 184W°i
C
182 W
174W0176W
170W 0 172W
1 164W
150W 0
148W
• 146W a
w162W
Bi
144W 160W
}} 158W
E
* O4ST 0
3636E
s
3632E
=r • .+i
O+
m_
Table 2. Climate Change Impacts.
Stormwater Infrastructure
Stream Flows
Potential overload, degradation, and damage of
stormwater infrastructure from sea level rise and more
intense rain storms
Winter stream flooding will become more frequent
Lower spring and summer flows
Groundwater recharge may be affected by hydrologic
Groundwater Supply changes (e.g., increasing temperatures and potential for
saltwater intrusion; declining summer flows; low water
tables; and sea level rise) 0
Flood Risk Higher flood risk for low-lying coastal infrastructure,
including stormwater conveyance and facilities
Water Quality Regionally warmer stream temperatures
Cold -water fish species across multiple life -cycle stages will
be impacted by hydrologic changes.
Possible loss of streamside vegetation
Decrease in cooler/oxygenated aquatic habitat
Habitat Wetland habitats are likely to contract and threaten shelter
for juvenile fish and habitats for a variety of species
Aquatic benthic invertebrates, amphibians, and salmonids
will be impacted and will have downstream ecosystem and
food -web impacts
Capital Improvement Program (CIP)
This section summarizes the surface water and stormwater capital
improvement program (CIP). The purpose of the CIP is to define
capital projects that make progress towards the City's long-term
goals including:
Flood Reduction
Groundwater and Surface Water Quality
Groundwater and Surface Water Quantity
++
Habitat Enhancement
WOO Public Participation (Education, Outreach, and Involvement)
Infrastructure Operations & Maintenance
F
Comprehensive Planning, Administration, and Funding
34
Problem and Project Identification
Previous surface water and stormwater plans and input from
City staff were used to develop an initial list of problems to be
addressed during work on this Plan. Surface and stormwater plans
reviewed included the following:
• 2018 Port Orchard Comprehensive Plan (City of Port
Orchard 2018)
• Blackjack Creek Watershed Assessment and Protection and
Restoration Plan (ESA 2017)
• Ruby Creek Subarea Plan (City of Port Orchard 2022)
• Downtown Basin Stormwater Plan (Reid Middleton 2020)
• 2018 Annapolis Creek Culvert Replacement — 30% Design &
Permitting Coordination Report (Reid Middleton 2018)
• Blackjack Creek Floodplain Restoration Project Engineering
Design Plans (City of Port Orchard 2020)
Additional problems were identified by surveying City staff
through Esri's ArcGIS Survey123 and hosting workshops with the
City. Problems were evaluated using desktop methods and field
evaluation to assess site -specific opportunities and constraints.
Potential capital projects were developed to address the problems.
The initial list of projects, problem descriptions, and solutions are
provided in Appendix B.
35
1
Project Prioritization
The initial surface water and stormwater CIP project list was ranked
by City staff to determine the top 10 projects. The top 10 projects
are shown in Figure 8. Once the top 10 projects were chosen,
these projects were prioritized using a quantitative process that
considered further input from City staff, review of background
documents, and field reconnaissance of existing problems. This
prioritization was then used to develop an implementation schedule
that emphasized early completion of the projects providing the
greatest benefit. An overview of the CIP project prioritization
and goals is included in Table 3. Detailed prioritization results
and CIP project summary sheets are provided in Appendix B.
The CIP project implementation schedule is included in the Plan
Implementation section of this Plan.
South Sidney Regional Facility
Johnson Creek Estuary Restoration
Downtown Basin Stormwater Upgrades
3 South Blackjack Creek Floodplain Restoration
6%"
Central Sidney Stormwater Improvements
6 Annapolis Creek Culvert Replacement
7 SE Salmonberry Road, Lower Blackjack Creek
Culvert Retrofit
M
Ruby Creek Culvert Replacement
South Blackjack Creek Culvert Removal and Bridge
Installation
10 Anderson Creek Culvert Replacement
d& C?
70
55
45
.0
35
Opposite: Figure 6. Top 10 Capital Projects.
36
Legend
Q CIP Projects
r--I
Port Orchard City Limit
Watershed Boundary
- Waterbody
Stream
Roads
I I
I I
Anderson
Creek Culvert
Replacement
` I
I
I
I
I
I
Downtown Stormwater
Basin Upgrades
Johnson Creek
Estuary Restoration
O/
3
L-
L-
r I I �
I
i
Annapolis Creek '
Culvert Replacement `
A
/I
� I
' I
I
L — J
1
r
J .r_�-- _ _ -
fJ
Central Sidney
Stormwater
Improvements
c\
L �
I /
I
South Sidney �` Q
f I Regional Facility I SE Salmonberry Road,
( I Lower Blackjack Creek
Culvert Replacement
Ruby Road Creek --�-
1
Culvert Replacement L I
I _ — ` I
IJ
I
I /
I
I
I
I
South Blackjack Creek
I�_
I �
I
Floodplain Restoration
J
\ I
I
i
South Blackjack Creek
Culvert Removal and
I — —
Bridge Installation
I
37
Levels of Service
This chapter summarizes surface water and stormwater
recommendations for the City's stormwater management program.
Recommendations are organized by the long-term goals and levels of
service defined below.
The City has identified three levels of service for this Plan: Level
1, Level 2, and Level 3. Level 1 recommendations are shown for all
long-term goals. Levels 2 and 3 are not included when no additional
recommendations were identified. The levels of service are defined
as follows:
Level 1 Represents activities needed to meet 2019-2024 Permit
requirements, potential future permit requirements, and essential
program activities.
Level 2 Includes everything in Level 1 and several additional improvements
to expand public education and stewardship opportunities,
implement the new asset management program, and increase
staffing to adequately inspect construction projects and private
stormwater facilities to improve environmental protection.
Level 3 R Includes everything in Levels 1 and 2 and represents staffing and
funding to move towards achieving the City's goals. This level of
service would result in the greatest benefits for the community and
- the environment, but would have the highest cost. Level 3 includes
expanding public involvement and environmental monitoring activities.
Recommendations
Recommendations are organized by the long-term goals and
levels of service previously defined in this Plan. Detailed tables of
recommendations with associated funding and staffing requirements
are provided in City of Port Orchard Stormwater and Watersheds
Program Evaluation and Recommendations (Herrera 2022c) and
in Appendix A. Implementation of these recommendations are
discussed in the Plan Implementation section of this Plan.
39
Recommendations Continued...
Flood Reduction
Level 1:
• Design and construct upgrades to the existing conveyance
infrastructure
Groundwater and Surface Water Quality
Level 1:
• Respond to spills and water quality complaints
• Develop Pollution Control Program Plans (Quality Assurance
Project Plan [QAPPI equivalent) to monitor stream health and
provide water quality status updates
• Make annual payments to the collective fund for S8 Monitoring
and Assessment
• Seek opportunities to participate with Kitsap County and other
local jurisdictions in an integrated and coordinated monitoring
assessment program
• Provide information as requested for effectiveness and source
identification studies that are under contract with Ecology as
active Stormwater Action Monitoring (SAM) projects
0.25 FTE for Water Quality Technician
Groundwater and Surface Water Quantity
Aft Level 1:
• Design and construct upgrades to the existing conveyance
infrastructure
.m
Habitat Enhancement
Level 1:
• Conduct outreach on private property tree preservation and
wetland buffers within Lower Blackjack Creek Catchment C
Mapping and Asset Management
Level 1:
• Update the City's MS4 map on an ongoing basis, including all known
connections from the MS4 to a privately owned stormwater system
• Collect size and material data for known MS4 outfalls during
the normal course of inspections and maintenance and update
electronic records
• Locate and map additional outfall
• Additional 0.25 FTE for geographic information systems
(GIS) Technician
Level 2:
• Includes all recommendations in Level 1
• Select and implement a computer maintenance management
system (CMMS)
• Additional 0.50 FTE for Asset Management Specialist
41
Public Participation (Education, Outreach
and Involvement)
0011� Level 1:
00 • Review and update existing public education materials as needed
Develop materials for one new target audience and subject area
annually
• Partner with West Sound Stormwater Outreach Group (WSSOG)
on implementing social marketing campaigns
• Host and/or advertise volunteer events related to stewardship
opportunities and provide opportunities for public input
• Continue collaborations with local builders' associations and
participating in West Sound Partners for Ecosystem Recovery
(WSPER)
• 0.25 FTE for Education Specialist
Level 2:
• Develop an education and outreach plan for commercial and
private facility owners related to LID principles and practices
• Expand the partnership with South Kitsap School District
• Additional 0.25 FTE for Education Specialist (0.50 FTE total)
Level 3:
• Develop materials for two additional target audiences and two
additional subject areas annually (three target audiences and
three subject areas total when combined with the Level 1 tier)
• Create a volunteer stream team
• Additional 0.50 FTE for Education Specialist (1.0 FTE total)
42
Pollutant Source Control
Level 1:
• Update the City's website with pollution control best management
practice (BMP) resources
• Perform field screening and tracking of illicit connections, illicit
discharges, and spills
• Continue to implement spill hotline and staff training program
• Report illicit discharge data to Ecology using WQWebIDDE
• Review and update public education materials gathered by the
Business Inspection Group (BIG) to create a basic set of resources for
the City's source control program
• Provide enhanced source control technical assistances to businesses
within the Lower Blackjack Creek Catchment C
• 0.25 FTE for Source Control Program Coordinator
Level 2:
• Increase staff support to screen outfalls on an annual basis
• Develop additional public education materials to supplement
those gathered by the BIG to create a broader set of resources
for the City's source control program
43
Infrastructure Operations & Maintenance
Level 1:
• Continue to implement a program to verify adequate long-term
O&M of stormwater treatment and flow control BMPs/facilities
• Use a third -party contractor to conduct private facility
inspections
• Document inspections and enforcement actions for private
stormwater flow control and treatment BMPs/facilities
• Perform spot checks and inspections after storms
• Inspect catch basins and maintain as needed
• Conduct additional outfall inspections
• Clean targeted catch basins in Lower Blackjack Creek Catchment C
• Continue to implement staff training program
Level 2:
• Have a dedicated inspector to conduct private facility inspections
• Inspect and maintain additional catch basins
• 0.50 —1.0 FTE for O&M Technician (0.50 FTE in 2024, 1.0 FTE
in 2025-2028)
Development Practices
Level 1:
• Continue to implement stormwater plan review, inspection, and
escalating enforcement processes
• Refine and improve inspections and enforcement procedures
• Conduct annual review of stormwater standards
• Continue to implement staff training program
• Add engineering capacity to the capital project design team to
assist with stormwater retrofit projects and upcoming SMAP
implementation
• Develop a policy and standards for considering more intense
future precipitation and sea level rise in stormwater capital
improvement projects
• 0.25 FTE for Engineer
Level 2:
• Have a dedicated inspector to conduct construction inspections
• 1.0 FTE for Construction Inspector
• Increase engineering capacity for the capital project design team
to assist with stormwater retrofit projects and upcoming SMAP
implementation
• Additional 0.25 FTE for Engineer (0.50 FTE total)
Level 3:
• Increase engineering capacity for the capital project design team
to assist with stormwater retrofit projects and upcoming SMAP
implementation
• Develop a policy and standards for new and redevelopment
projects to design for more intense future precipitation
• Additional 0.25 FTE for Engineer (0.75 FTE total)
45
Comprehensive Planning, Administration,
and Funding
Level 1:
• Continue to meet regularly to direct planning, development,
46 and implementation of the City's Stormwater and Watersheds
Comprehensive Plan, SMAP development, and continue to
review and implement LID code updates
Implement the SMAP activities
Prepare annual reports summarizing coordination with long-
range planning efforts
Annually assess administrative or regulatory barriers to
implementation of LID principles or LID BMPs
• 0.25 FTE for Planner
pro#
14
m
rnZ'
0
J
3
City Watersheds
The 2019-2024 Permit required the City to conduct watershed
planning using a process defined by the permit as "Stormwater
Management Action Planning" (SMAP). The SMAP process required
the City to view watersheds through the lens of stormwater impacts
to receiving water health and actions to protect or improve these
water resources.
This planning was completed in three distinct steps:
• Develop an inventory of watershed characteristics, including
water resource conditions, aquatic life and community uses,
stormwater influence, and social equity (Herrera 2022a),
• Apply a prioritization process to identify the highest priority
watershed (Herrera 2022b), and
• C letekan "Action Plan" that includes retrofit projects,
Gor 'o a�rhe�rthancements, and land marAodWSMtegies,
associated costs, and schedule (Appendie�&Qk
Coulter
Creek
The goal of SMAP was t6S, city watershed where
investments in stormwatergement are most likely to lead to
environmental improveme
Ross
Creek
Ruby
Creek
166
Upper
QI-% r%iei-% r%ie
Artwork at Blackjack Creek estuary
Creek
Anderson Creek (Gorst)
Annapolis Creek
Downtown County Campus
Gorst Creek
Johnson Creek
Karcher Creek
Lower Blackjack
Ross Creek
Ruby Creek
Stream 270
City Watersheds Continued...
Marine nearshore and stream habitat conditions within major
watersheds informed the prioritization process (See Table 4 and
Figure 9). As a guiding principle, water resources with moderate
or good habitat conditions for salmon and nearshore forage fish
would benefit from water quality and flow control actions. However,
the City also intends to invest in watersheds with poor habitat
conditions to alleviate flooding and address water quality issues,
where feasible.
Good
Good
Poor Poor
Fair Good
Poor
Good
Poor
Good
Good
Good
Fair
Fair
Good
Fair
fr Good
Good
Good
Fair
Fair
Poor
Good
AN Fair
Good
Poo
*NA = Not Applicable,
* = City lands within Ruby Creek and Stream 270 Watersheds are not directly
connected to the marine nearshore
Good Poor
Good Fair
Fair Good
NA*
Good NA
Figure 7. Nearshore and Major Watershed Stream
50 Habitat Condition
-1
Legend
Port Orchard City Limit
- Waterbody
Minor Watershed
Roads
Nearshore Habitat Condition
Good
o Fair
Poor
Major Watershed Stream
Habitat Condition
Good
Fair
Poor
Gorst Cree
Coulter
Creek
Rocky
Creek
Johnson Creek
Melcher Creek
Sinclair Inlet
W w Sacco
Creek
A napol
Cree
.ower
ickreek
k '
;reek �
Karcher
Creek
1
51
Lower Blackjack Creek Watershed
Lower Blackjack Creek watershed was selected as the highest
priority watershed based on the following characteristics:
• High receiving water use, including use by multiple salmonid species
• Moderate level of development and future growth
• Good water quality and habitat condition
• Higher jurisdiction control
• Promotes other plans and projects, most notably the Blackjack
Creek Watershed Assessment and Restoration Plan (ESA 2017).
Upon review with City staff, Catchment C (Figure 8) in the
watershed was selected for the SMAP (Appendix C). The selected
catchment was chosen due to the greater concentration of older
development for retrofit opportunities.
Above: Blackjack Creek Floodplain
Right: Figure 8. City of Port Orchard Lower Blackjack Creek Catchment C
52
i r '
Legend
QCatchment E
0 Waterbody
Stream
53
This section presents detailed information on implementing the
recommended surface water and stormwater program activities
presented in Stormwater Management Program Evaluation and
Recommendations section and the capital projects described in
Capital Improvement Program section. The major components
of plan implementation include the completion of CIP projects,
addressing staffing and resource needs, interdepartmental
collaboration, interagency collaboration, and utility finances.
CIP Plan Implementation
The CIP projects are described in the Capital Improvement Program
section and additional details on each project can be found in
the project summary sheets (Appendix B). Table 5 presents an
implementation schedule that aligns with the Level 1 level of
service. Additional levels of services, which implement some CIP
projects on accelerated schedules, are included in Appendix B.
This schedule balances project priority, project complexity,
and coordination with other projects. Capital projects are reviewed
regularly by the City and the implementation schedule shown
in Table 5 is subject to change based on evolving regulatory
requirements, City priorities, and available resources.
54
Annapolis Creek Culvert
Replacement $400,000 $800,000
South Sidney Regional Facility
Downtown Basin Stormwater
Upgrades
Ruby Creek Culvert
Replacement
Johnson Creek Estuary
Restoration
Ongoing Conveyance System
Improvement Program
SE Salmonberry Road, Lower
Blackjack Creek Culvert
Retrofit
South Blackjack Creek
Floodplain Restoration
South Blackjack Creek
Culvert Removal and Bridge
Installation
Central Sidney Stormwater
Improvements
Anderson Creek Culvert
Replacement
J
$700,000 $2,800,000
$100,000 $100,000 $100,000 $100,000
$1,760,000 $1,100,000 $982,000
$400,000 $1,200,000
a All costs are in 2022 dollars.
b In 2023, $100,000 in capital funding is scheduled for Ongoing Conveyance System Improvement Program.
°The projects listed in the `out years' column are scheduled after the six year planning period.
$2,500,000
$13,000,000
$300,000
$7,000,00%
$1,600,000■
$4,000,0A
55
Staffing and Funding Needs
Under the current level of staffing, City staff can address surface
water and stormwater problems that arise on a daily basis and
troubleshoot specific issues that arise with development project
reviews. However, they are not fully able to perform activities that
would enable continual improvement of the City's stormwater
management program. Current staffing levels will not be adequate to
meet the rest of the requirements of the 2019-2024 Phase II Permit
and make progress towards long-term goals defined as part of this
Plan. The activities listed in the Stormwater Management Program
Evaluation section of the Plan will require additional staffing and
funding.
Below are the number of full time equivalents (FTEs) and funding
that are recommended for each level of service (see Figure 11 and
Tables 6 and 7). Additional staffing and funding will be needed
in Level 2 to support the City's source control, private facility
inspection, education and outreach, asset management, and 0&M
programs. In addition to the staffing and funding needed for Level 2,
Level 3 includes an increase in education and outreach, and capital
planning support.
It should be noted that these recommendations start in 2023, but
no new staffing and funding is included in the financial analysis for
2023. Refer to the Financial Analysis section for further information
about the rate impacts of implementing the levels of service.
Detailed estimates of staffing and funding needs can be found in
Appendix A.
56
Figure 9. Levels of Service and Full Time Equivalents.
"I
co
Cn 4
m
cc
3
C7
w
m
2
U-
1
0
Level - Level - Level
2023a 2024 2025 2026 2027 2028
Year
a No new staffing in 2023 is included in the financial analysis
Year Year 2 Year 3 Year 4 Year 5 Year 6
Tier 1
2023a 2024 2025 2026 2027 2028
TotalLevel 2 FWAM ..
0!"1 Ah M
4.04
4.70
5.51
Level 1 Total $10,000 $10,000 $60,000 $10,000 $10,000
Level 2 To $30,000 M$30,00dj $60,000 `$10,001 $10,000
$30,000 $ 30,000 $60,000 10,000 $110,000
a No new staffing in 2023 is included in the financial analysis
° No new funding in 2023 is included in the financial analysis
$110,000
$150,000
$250,000
57
Financial Analysis
The activities and projects listed in this section would be funded
primarily by revenue from the storm drainage utility. A financial
analysis was conducted to define utility rate adjustments that are
necessary to implement the levels of service listed in this Plan.
During the financial analysis, the City evaluated the regulatory
needs and stormwater-related issues facing the City to find a balance
between level of service and increased utility rates. Table 8 includes
the monthly rate per impervious surface unit (ISU) for the six -year
planning period by level of service and the change (increase) from
the previous year's monthly rate. An ISU is defined as one residential
unit or 3,000 impervious square feet on non-residential parcels (e.g.,
commercial, multi -family).
The full utility rate study report is included in Appendix D. The
report documents assumptions for programmatic and capital project
implementation for all three levels of service and includes monthly
rates per ISU for years 2023 to 2041.
revel1 $14.00 $16.94 $20.50 $24.80 $25.55 $26.31
Change to Monthly Rate $2.94
$3.56
$4.30
$0.75
$0.76
Level $14.00 $18.34
$24.03
$31.47
$32.42
$33.39
Change to Monthly Rate $4.34
$5.69
$7.44
$0.95
$0.97
111111=_ IIM� a $14.00 7
T$29.64 r
$43.12
$44.42
$45.75
Change to Monthly Rate
$9.27
$13.48
$1.30
$1.33
The City is interested in considering a capital facilities charge (CFC)
for stormwater, which would recover a proportionate share of the
cost of existing and future system assets from new customers as
growth occurs. The City already has CFCs for water and wastewater
utilities. Table 9 presents the maximum defensible CFC that can be
implemented by the City for each level of service. City Council could
opt to adopt a lower CFC than shown in Table 9.
.ram A'•
Rk
ram..;: •� " !� � a � ��
19
01 y
- . ��.. d: .l ��'i r r bhp . .� •
C
Table 9. Capital Facility Charge by Level of Service
Level of Service Capital Facility Charge
Level 3
Image from Kitsap Conservation District
Linkages to Other City Programs
Interdepartmental Collaboration
The City's stormwater management program is led by staff in the Public
Works Department. Plan implementation will require contributions from
staff in the Public Works Operations and Maintenance, Engineering,
Community Development, and Finance departments.
Interagency Collaboration
To address ongoing regional efforts, the City should continue to
work with regional stakeholder groups and local governments in
shared drainage basins to manage and treat stormwater effectively.
Below are agencies and regional programs related to implementing
program elements.
Comprehensive Stormwater Planning
• Coordinating with the Cities of Bremerton, Bainbridge Island,
Poulsbo, and Kitsap County on the Dyes/Sinclair Inlets Fecal
Coliform TMDL Implementation Plan
• Coordinating with the City of Bremerton, Kitsap County, and
Pierce County on potential future Stormwater Management
Action Planning for shared drainage basins
Public Education and Public Involvement
• Coordinating with the West Sound Stormwater Outreach Group
(WSSOG) on regional messaging and programs
• Coordinating with the Kitsap Conservation District on potential
future efforts including the homeowner rain garden cost share
program
• Coordinating with the South Kitsap School District on a school
stormwater curriculum and field visits
Capital Improvement Projects and Programs
• Coordinating with the Suquamish Tribe and other relevant tribes
on review of salmon habitat projects
• Coordinating with the West Sound Partners for Regional
Recovery on prioritization of regional salmon habitat projects
• Coordinating with the Washington State Department of
Fish and Wildlife on review of projects and their impacts to
fish habitat
• Coordinating with the Washington State Department of
Transportation on City projects adjacent to state lands
• Coordinating with Kitsap Regional Coordinating Council on
regional transportation and land use decisions
• Coordinating with Puget Sound Regional Council on
transportation, growth management, and economic development
.•
Pursuit of Outside Funding
All of the CIP projects identified in this Plan are eligible for outside
funding. The City should pursue state grants for stormwater retrofit
projects; habitat, fish passage, and floodplain improvement grants
for culvert, floodplain, and estuary projects; and low interest loans
for capital projects that are purely conveyance improvements.
kill'
xe
zo
61
REFERENCES
Ecology. 2019. Western Washington Phase II Municipal Stormwater
Permit. State of Washington Department of Ecology. Olympia,
Washington 98504-7600. Issuance Date: July 1, 2019.
ESA. 2017. Blackjack Creek Watershed Restoration Assessment and
Protection and Restoration Plan. Prepared for Suquamish Tribe and
Washington Department of Ecology, by ESA Consultants, Seattle,
Washington.
Mauger, Guillaume. 2017. Climate Change and Stormwater. Climate
Impacts Group, University of Washington. 1-25.
Kitsap County. 2021. Buildable Lands Report, Kitsap County,
Washington. FINAL. https://www.kitsapgov.com/dcd/PEP%20
Documents/FINAL%20Buildable%20Lands%2OReport—
November%202021.pdf
Kitsap Regional Coordination Council. February 15, 2022.
Land Use Planning Policy Committee Meeting. <https://
static1.squarespace.com/static/5660ba88e4bOe83ffe8O32fc/
t/6205bOf793b6a1302e7c8f41/1644540153978/
KRCC+P1anPOL+Feb+15+2022+Meeting+Packet.pdf. >
Herrera. 2022a. City of Port Orchard Watershed Inventory and
Assessment — Technical Memorandum. Prepared for the City of
Port Orchard by Herrera Environmental Consultants, Seattle,
Washington. March 21.< https://portorchardwa.gov/documents/
port -orchard -watershed -inventory/>
Herrera. 2022b. City of Port Orchard Watershed Prioritization —
Technical Memorandum. Prepared for the City of Port Orchard by
Herrera Environmental Consultants, Seattle, Washington. June 22.
< https://portorchardwa.gov/documents/port-orchard-watershed-
prioritization/ >
62
Herrera. 2022c. City of Port Orchard Stormwater and Watersheds
Program Evaluation and Recommendations. Prepared for the City
of Port Orchard by Herrera Environmental Consultants, Seattle,
Washington. February 24.
Herrera. 2020. Port Orchard Shoreline Master Program Update.
Prepared for the City of Port Orchard, by Herrera Environmental
Consultants, Inc., Seattle, Washington.
OFM. 2022. Population of Cities, Towns and Counties Used for
Allocation of Selected State Revenues State of Washington. <https://
ofm.wa.gov/site s/default/files/public/dataresearch/pop/april l/ofm—
april l_population—final.pdf>
Puget Sound Regional Council. 2020. Vision 2050 A Plan for the
Central Puget Sound Region. Puget Sound Regional Council, Seattle,
Washington. Adoption Date: October 29, 2020. < https://www.psrc.
org/sites/default/files/2022-02/vision-2050-plan%20%281%29.pdf >
Port Orchard. 2020. Blackjack Creek Floodplain Restoration Project
Engineering Design Plans. 2020. Port Orchard, Washington.
Port Orchard and Makers Architecture and Urban Design. 2022.
Ruby Creek Subarea Plan. Port Orchard, Washington. Adoption
Date: September 22, 2022. < https:Hstorage.googleapis.com/
proudcity/portorchardwa/uploads/2020/09/FINAL-ADOPTED-Ruby-
Creek-Neighborhood-Subarea-Plan-09222020-1.pdf >
Reid Middleton. 2018. 2018 Annapolis Creek Culvert Replacement —
30% Design & Permitting Coordination Report, Prepared for the City
of Port Orchard by Reid Middleton, Inc., Everett, Washington.
Reid Middleton. 2020. Downtown Basin Stormwater Plan, Prepared
for the City of Port Orchard by Reid Middleton, Inc., Everett,
Washington.
63
APPENDIX A
Stormwater Management Program
Staffing and Funding Recommendations
December 2022
HERRERA
City of Port Orchard Stormwater and Watersheds Comprehensive Plan
Table A-1. Recommended Activities for Stormwater Planning.
Funding
Staff Hours I
One-Timea Ongoing
Staff
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Recommendation Staff Support Assumptions
Funding Support Funding (hours/ FTE`
(hours)
2023
2024
2025
2026
2027
2028
2023 2024 2025 2026 2027 2028
year)
Level
1
The interdisciplinary team will continue to meet regularly to direct planning,
development, and implementation of the City's Stormwater and Watersheds
Interdisciplinary team
$0
0
$0
0
0
Comprehensive Plan, SMAP development, and continue to review and implement
LID code updates. Assumes funding and staff support would be included with the
current level of storm drainage utility funding. (Ongoing)
Prepare report summarizing coordination with long-range planning efforts.
Long-range planning
$0
0
$0
0
0
Assumes funding and staff support would be included with the current level of
storm drainage utility funding. (Due January 2023)
The City will continue to annually assess whether any administrative or regulatory
barriers to implementation of LID principles or LID BMPs were identified. Assumes
LID code review
$0
0
$10,000
40
0.023
$ 10,000
$ 10,000
$ 10,000
$ 10,000
$ 10,000
$ 10,000
40 40
40
40
40
40
$10,000 of consultant support and 40 staff hours annually. (Ongoing starting
2023)
Receiving water assessment
$0
0
$0
0
0
Receiving water assessment has been completed. (Due March 2022)
Receiving water prioritization
$0
0
$0
0
0
Receiving water prioritization has been completed. (Due June 2022)
Prepare a Stormwater Management Action Plan (SMAP) for one high priority area.
Assumes funding has already been set aside for this work and staff support would
SMAP
$0
0
$0
0
0
be included with the current level of storm drainage utility funding. (Due March
2023)
Implement the SMAP. Assumes 0.25 FTE of staff time will be needed starting in
SMAP implementation
$0
0
$0
442
0.25
442
442
442
2026 to carry out activities defined in the SMAP.
Level 1 Total
$0
0
$10,000
482
0.27
$ 10,000
$ 10,000
$ 10,000
$ 10,000
$ 10,000
$ 10,000
40
40
40
482
482
482
Level 2
All activities from Level 1
$0
0
$10,000
482
0.27
Same assumptions as Level 1.
$10,000
$10,000
$ 10,000
$ 10,000
$ 10,000
$ 10,000
40
40
40
482
482
482
Level 2 Total
$0
0
$10,000
482
0.27
$10,000
$10,000
$ 10,000
$ 10,000
$ 10,000
$ 10,000
40
40
40
482
482
482
Level 3
All activities from Level 2
$0
0
$10,000
482
0.27
Same assumptions as Level 2.
$10,000
1 $10,000
1 $ 10,000
$ 10,000
$ 10,000
$ 10,000
40
40
40
482
482
482
Level 3 Total
$0
0
$10,000
482
0.27
$10,000
1 $10,000
1 $ 10,0001
$ 10,000
1 $ 10,0001
$ 10,000
1 40
1 40
1 40
1 482
1 482
1482
a One-time activities are completed once, such as hiring a consultant to develop new training materials
b Ongoing activities occur every year, such as continuing an inspection program or annual review of procedures
FTE, or Full-time equivalent staff, assumes 1,768 hours worked per year for one full-time staff member
City of Port Orchard Stormwater and Watersheds Comprehensive Plan October 2022
Table A-2. Recommended Activities for Public Education and Outreach.
Funding
Staff Hours
One-Timea Ongoing
Staff
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Recommendation Staff Support Assumptions
Funding Support Funding (hours/ FTE`
(hours)
2023 2024 2025 2026 2027 2028
2023 2024 2025 2026 F2027 2028
year)
Level 1
Review and update existing public education materials as needed. Develop
General awareness public education
$0
0
$0
221
0.125
materials for one new target audience and one new subject area annually. Assumes
221 221 221 221 221 221
materials
0.125 FTE of staff time will be needed starting in 2023. (Ongoing)
Add additional Mutt Mitt pet waste pick up stations and conduct outreach within
Lower Blackjack Creek Catchment to align with the SMAP. Outreach topics include
SMAP outreach
$0
80
$0
80
0.05
private property stormwater impacts, stormwater practices, tree preservation, and
80 80 80 80
wetland buffers. Assumes 0.05 FTE of staff time will be needed starting in 2024.
(Onaoina startin 2024
Evaluate behavior change program
$0
0
$0
0
0
Evaluation of the Mutt Mitt program has been completed. (Due July 2020)
Partner with WSSOG on implementing a natural lawn care social marketing
Implement social marketing for
campaign as a behavior enhancement in attempt to reduce the use of chemical
$0
80
$0
0
0
40 40
existing program
lawn treatments from 2021-2023. Assumes 80 hours total of additional staff time
needed for implementation in 2023. (Ongoing through 2023)
Summarize the changes in understanding and adoption of targeted behaviors
Report behavior changes
$0
160
$0
0
0
related to the behavior change program. Assumes 80 hours of additional staff time
80 80
needed in 2023 and 2024. (Due March 2024).
Continue to host and/or advertise volunteer events related to stewardship
Continue stewardship opportunities
$0
0
$0
221
0.125
opportunities (shoreline cleanups and rain gardens). Assumes 0.125 FTE of staff
221 221 221 221 221 221
time will be needed starting in 2023. (Ongoing)
Level 1 Total
$0
320
$0
522
0.3
$
$
$
$
$
$
562
562
522
522
522
522
Level 2
All activities from Level 1
$0
320
$0
522
0.3
Same assumptions as Level 1.
$
$
$
$
$
$
562
562
522
522
522
522
Develop education and outreach materials for commercial and private facility
Develop LID outreach materials
$20,000
80
$0
0
0
owners related to LID principles and practices. Assumes $20,000 of consultant
$ 20,000
80
support and 80 hours of staff support in 2024. (Complete in 2024).
Expand the public education program by creating two additional stewardship
opportunities and including field demonstrations/ interactive monitoring in the
Expand stewardship opportunities
$0
0
$0
442
0.25
442
442
442
442
442 442
partnership with South Kitsap School District. Assumes 0.25 FTE of staff time will be
needed starting in 2023. (Ongoing starting 2023)
Level 2 Total
$20,000
400
$0
964
1 0.55
$
$ 20,000
$
1 $
1 $
1 $
1004
1 1084
1 964
1 964
1 964
1 964
Level 3
All activities from Level 2
$20,000
400
$0
964
0.55
Same assumptions as Level 2.
$
$ 20,000
$
$
$
$
1004
1084
964
964
964
964
Develop materials for two additional target audiences and two additional subject
Develop new general awareness
$0
0
$0
442
0.25
areas annually. Assumes 0.25 FTE of staff time will be needed starting in 2023.
442
442
442
442
442
442
public education materials
(Ongoing starting 2023)
Create a volunteer stream team for the City that would be trained on monitoring
activities such as B-IBI sampling, and habitat/invasive species monitoring and
Expand stewardship opportunities
$0
0
$0
442
0.25
442
442
442
442
442
442
management. Assumes 0.25 FTE of staff time will be needed starting in 2023.
(Ongoing starting 2023)
Level 3 Total
$20,000
400
$0
1848
1 1.05
1
1 $
$ 20,000
$
$
$
$
1,888
1,968
1,848
1,848
1,848
1,848
a One-time activities are completed once, such as hiring a consultant to develop new training materials
b Ongoing activities occur every year, such as continuing an inspection program or annual review of procedures
` FTE, or Full-time equivalent staff, assumes 1,768 hours worked per year for one full-time staff member
City of Port Orchard Stormwater and Watersheds Comprehensive Plan October 2022
Table A-3. Recommended Activities for Public Involvement and Participation.
Funding
Staff Hours I
One-Timea Ongoing
Staff
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Recommendation Staff Support Assumptions
Funding Support Funding (hours/ FTE`
(hours)
2023
2024
2025
2026
2027
2028
2023
2024
2025
2026
2027
2028
I year)
Level 1
Continue collaborations with local builders' associations related to permit changes
and stormwater issues. Continue participation in WSPER, WREC, WSSOG and
Collaborate with local stakeholders
$0
0
$0
0
0
expanding ways to reach and involve overburdened communities. Assumes
funding and staff support would be included with the current level of storm
drainage utility funding. (Ongoing)
Continue to post SWMP and latest Annual Report on City's website. Assumes
Post SWMP Plan and Annual Report
$0
0
$0
0
0
funding and staff support would be included with the current level of SWM
funding. (Ongoing)
Level 1 Total
$0
0
$0
0
0
$
$
$
$
$
$
0
0
0
0
0
0
Level 2
All activities from Level 1
$0
0
$0
1 0
1 0
Same assumptions as Level 1.
Level 2 Total
$0
0
$0
0
1 0
$
$
$
$
$
$
0
0
0
0
0
0
Level 3
All activities from Level 2
$0
0
$0
1 0
1 0
ISame assumptions as Level 2.
1
Level 3 Total
$0
0
$0
1 0
1 0
1
$
$
$
$
$ -
$
0
0
0
0
0
0
a One-time activities are completed once, such as hiring a consultant to develop new training materials
b Ongoing activities occur every year, such as continuing an inspection program or annual review of procedures
FTE, or Full-time equivalent staff, assumes 1,768 hours worked per year for one full-time staff member
City of Port Orchard Stormwater and Watersheds Comprehensive Plan October 2022
Table A-4. Recommended Activities for MS4 Mapping and Documentation.
Funding
Staff Hours
One -Times Ongoing
Staff
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Recommendation Staff Support Assumptions
Funding Support Funding (hours/ FTE`
(hours)
2023
2024
2025
2026
2027
2028
2023
2024
2025
2026
2027
2028
year)
Level 1
Continue to update the City's MS4 map on an ongoing basis. Assume 0.25 FTE
Ongoing map updates
$0
0
$0
442
0.25
additional staff time needed starting in 2023 to manage additions and updates to
442
442
442
442
442
442
stormwater mapping. (Ongoing)
Locate and map additional outfalls. Assumes 40 hours total of additional staff time
Locate and map additional outfalls
$0
40
$0
0
0
40
needed to find and document outfalls. (Complete by 2024)
Continue to collect size and material data for known MS4 outfalls during the
normal course of inspections and maintenance and update records. Assumes
Map outfall attributes
$0
0
$0
0
0
funding and staff support would be included with the current level of storm
drainage utility funding. (Ongoing)
Continue to map all known connections from the MS4 to a privately owned
Map known private connections
$0
0
$0
0
0
stormwater system. Assumes funding and staff support would be included with the
current level of storm drainage utility funding. (Due August 2023)
Map new private connections when as-builts are received. Assumes funding and
Continue to maintain electronic maps
$0
0
$0
0
0
staff support would be included with the current level of storm drainage utility
funding. (Ongoing)
Levell Total
$0
40
$0
442
0.25
$
$
$ -
$
$ -
$
442
482
442
442
442
442
Level 2
All activities from Level 1
$0
40
$0
442
0.25
Same assumptions as Level 1.
$
$
$
$
$
$
442
482
442
442
442
442
Work with consultant to select a computerized maintenance management system
Implement computerized
(CMMS) and implement the CMMS. Assume that funding for consultant (and staff
$0
0
$0
884
0.50
884
884
884
884
884
884
maintenance management system
time to manage the consultant) is already in place and 0.5 FTE is needed to
implement and manage the CMMS starting in 2023. (Ongoing)
Level 2 Total
$0
40
$0
1,326
1 0.75
$
$
$
$
$
$
1,326
1,366
1,326
1,326
1,326
1,326
Level 3
All activities from Level 2
$0
40
$0
1 1,326
1 0.75
ISame assumptions as Level 2.
$
$
$ -
$
$ -
$
1,326
1,366
1,326
1,326
1,326
1,326
Level 3 Total
$0
40
$0
1 1,326
1 0.75
$
$
$ -
$
$ -
$
1,326
1,366
1,326
1,326
1,326
1,326
a One-time activities are completed once, such as hiring a consultant to develop new training materials
b Ongoing activities occur every year, such as continuing an inspection program or annual review of procedures
` FTE, or Full-time equivalent staff, assumes 1,768 hours worked per year for one full-time staff member
City of Port Orchard Stormwater and Watersheds Comprehensive Plan October 2022
Table A-5. Recommended Activities for Illicit Discharge Detection and Elimination.
Funding
Staff Hours I
One -Times Ongoing
Staff
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Recommendation Staff Support Assumptions
Funding Support Funding (hours/ FTE`
(hours)
2023
2024
2025
2026
2027
2028
2023
2024
2025
2026
2027
2028
year)
Level 1
Continue to update the City's website with pollution control BMP resources.
Post pollution control BMP resources
$0
0
$0
0
0
Assumes funding and staff support would be included with the current level of
storm drainage utility funding. (Ongoing)
Continue field screening for illicit connections and illicit discharges. Assumes
Field screening
$0
0
$0
0
0
funding and staff support would be included with the current level of storm
drainage utility funding. (Ongoing)
Continue to implement staff training program. Assumes funding and staff support
Staff training program
$0
0
$0
0
0
would be included with the current level of storm drainage utility funding.
(Ongoing)
Continue to respond to spills and water quality complaints. Assumes funding and
Source tracing/respond to spills and
$0
0
$0
0
0
staff support would be included with the current level of storm drainage utility
water quality complaints
funding. (Ongoing)
Report illicit discharge data to Ecology using WQWebIDDE. Assumes funding and
Report to Ecology
$0
0
$0
0
0
staff support would be included with the current level of storm drainage utility
funding. (Ongoing)
Level 1 Total
$0
0
$0
0
0
$
$
$
$
$
$
0
0
0
0
0
0
Level 2
All activities from Level 1
$0
0
$0
0
0
Same assumptions as Level 1.
$
$
$
$ -
$
$
0
0
0
0
0
0
Integrate IDDE tasks into the computerized maintenance management system
Integrate IDDE into computerized
$0
0
$0
0
0
(CMMS). Assume this work will be performed by staff implementing the CMMS
maintenance management system
(see Table B-4), so no additional staff time needed.
Level 2 Total
$0
0
$0
0
0
$
$
$
$
$
$
0
0
0
0
0
0
Level 3
All activities from Level 2
$0
0
$0
1 0
1 0
ISame assumptions as Level 2.
$
$
$
$
$
$
0
0
0
0
0 0
Level 3 Total
$0
0
$0
0
0
$
$
$
$
$
$
0
0
0
0
0 0
a One-time activities are completed once, such as hiring a consultant to develop new training materials
b Ongoing activities occur every year, such as continuing an inspection program or annual review of procedures
FTE, or Full-time equivalent staff, assumes 1,768 hours worked per year for one full-time staff member
City of Port Orchard Stormwater and Watersheds Comprehensive Plan October 2022
Table A-6. Recommended Activities for Controlling Runoff from New Development, Redevelopment, and Construction Sites.
Funding
Staff Hours
One -Timed
Ongoing
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Staff
Recommendation
Staff
Support
Assumptions
Funding
Support Funding
(hours/
FTE`
(hours)
2023
2024
2025
2026
2027
2028
2023F24
2025
2026
2027
2028
year)
Level 1
The Port Orchard Municipal Code (POMC) update to adopt Ecology's 2019
Ordinance
$0
0
$0
0
0
SWMMWW has been completed. (Due June 30, 2022)
Continue to implement stormwater plan review program. Assumes funding and
Stormwater plan review
$0
0
$0
0
0
staff support (including the recent new hire) would be included with the current
level of storm drainage utility funding. (Ongoing)
I
Conduct a review of stormwater standards on an annual basis. Assumes 0.02 FTE
Stormwater standards review
$0
0
$0
40
0.02
40
40
40
40
40
of staff time will be needed starting in 2024. (Ongoing starting 2024)
Refine and improve the stormwater plan review, inspection, and escalating
enforcement processes. Assumes funding and staff support (including the recent
Permit tracking system
$0
0
$0
0
0
new hire) would be included with the current level of storm drainage utility
fundin (Ongoing)
Provide training opportunities for inspection practices, recordkeeping, and
erosion control, update the staff training plan as needed, and improve record
Staff training program
$0
0
$0
0
0
keeping/documentation of training for City staff. Assumes funding and staff
support would be included with the current level of storm drainage utility
funding. (Ongoing)
Level 1 Total
$0
0
$0
40
0
$
$
$
$
$
$
0
40
40
40
40
40
Level 2
All activities from Level 1
$0
0
$0
40
0
Same assumptions as Level 1.
$
$
$
$
$
$
40
40
40
40
40
Hire a dedicated stormwater inspector (1 FTE starting in 2024) to assist with
Construction inspections
$0
0
$0
1,768
1.00
1,768
1,768
1,768
1,768
1,768
construction inspections. (Ongoing)
Level 2 Total
$0
0
$0
1,808
1.02
$
$
$
$
$
$
0
1,808
1,808
1,808
1,808
1,808
Level 3
All activities from Level 2
$0
0
$0
1 1,808
1 1.02
ISame assumptions as Level 2.
$
$
$
$
$
$
1,808
1,808
1,808
1,808
1,808
Level 3 Total
$0
0
$0
1 1,808
1 1.02
1
$
$
$
$
$
$
0
1,808
1,808
1,808
1,808
1,808
a One-time activities are completed once, such as hiring a consultant to develop new training materials
b Ongoing activities occur every year, such as continuing an inspection program or annual review of procedures
` FTE, or Full-time equivalent staff, assumes 1,768 hours worked per year for one full-time staff member
City of Port Orchard Stormwater and Watersheds Comprehensive Plan October 2022
Table A-7. Recommended Activities for Operations and Maintenance.
Funding
Staff Hours
One- Timea Ongoing
Staff
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Recommendation Staff Support Assumptions
Funding Support Funding (hours/ FTE`
(hours)
2023
2024
2025
2026
2027
2028
L
2023
2024
2025
T
2026
2027
2028
year)
Level 1
Continue implement private facility inspectors via a third -party contractor.
Private facility inspections $0 0 $0 0 0 Assumes funding and staff support would be included with the current level of
storm drainage utility funding. (Ongoing)
Maintenance SOPS
$0
0
$0
0
0
Stand-alone SOPS, to address the practices, policies, and procedures listed in
the NPDES permit, have been developed. (Due December 2022)
Continue to annually inspect and maintain municipally owned or operated
Public facility inspections and
stormwater treatment and flow control BMPs/facilities according to permit
$0
0
$0
0
0
maintenance
conditions. Assumes funding and staff support would be included with the
current level of storm drainage utility funding. (Ongoing)
Continue to implement spot checks and inspections after major storms.
Spot checks
$0
0
$0
0
0
Assumes funding and staff support would be included with the current level of
SWM funding. (Ongoing)
Continue to inspect catch basins and maintain as needed. Assumes funding and
Catch basin inspections
$0
0
$0
0
0
staff support would be included with the current level of storm drainage utility
funding. (Ongoing)
Continue to implement training programs for staff whose work could impact
O&M training
$0
0
$0
0
0
stormwater. Assumes funding and staff support would be included with the
current level of storm drainage utility funding. (Ongoing)
Inspect additional outfalls. Assumes locating and mapping outfalls process is
Outfall inspections
$0
200
$0
0
0
complete and 200 hours total of additional staff time needed to inspect the
200
outfalls in 2025. (Complete in 2025)
Clean targeted catch basins in the Lower Blackjack Creek Catchment to align
Catch basin cleanings
$0
0
$0
120
0.07
with the SMAP. Assumes 0.07 FTE of staff time will be needed starting in 2024.
120
120
120
120
120
l(Ongoing starting 2024)
Continue to conduct annual SWPPP inspections. Assumes funding and staff
Conduct annual SWPPP
$0
0
$0
0
0
support would be included with the current level of storm drainage utility
inspections
funding. (Ongoing)
Conduct and document SWPPP training for staff. Assumes funding and staff
SWPPP training
$0
0
$0
0
0
support would be included with the current level of storm drainage utility
funding. (Ongoing)
Level 1 Total
$0
200
$0
120
1 0.07
$
$
$
$
$
$
0
120
320
120
120
120
Level 2
All activities from Level 1
$0
200
$0
120
0.07
Same assumptions as Level 1.
$
$
$
$
$
$
120
320
120
120
120
Private facility inspections
$0
0
$0
884
0.50
Add 0.25 FTE in 2024 and increase to 0.5 FTE total in 2026 to implement private
442
442
884
884
facility inspections with City inspectors. (Ongoing)
Catch basin inspections
$0
0
$0
884
1 0.50
Add 0.5 FTE in 2024 to support catch basin inspection and cleaning. (Ongoing)
884
884
884
884
884
Level 2 Total
$0
200
$0
1,888
1 1.1
$
$
$
$
$
$
0
1004
1,646
1,446
7888
1,888
Level 3
All activities from Level 2
$0
200
$0
1,888
1.1
Same assumptions as Level 2.
$
$
$
$
$
$
1004
1,646
1,446
1,888
1,888
Level 3 Total
$0
200 -4
$0
1,888
1.1
$
$
$
$
$
$
0
1004
1,646
1,446
1,888
1,888
a One-time activities are completed once, such as hiring a consultant to develop new training materials
b Ongoing activities occur every year, such as continuing an inspection program or annual review of procedures
`FTE, or Full-time equivalent staff, assumes 1,768 hours worked per year for one full-time staff member
City of Port Orchard Stormwater and Watersheds Comprehensive Plan October 2022
Table A-8. Recommended Activities for Source Control Program for Existing Development.
Funding
Staff Hours I
One -Times
Ongoing
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
St aff
Recommendation
Staff
St
Support
Assumptions
Funding
Support Funding
(hours/ FTE`
(hours)
2023
2024
2025
2026
2027
2028
2023
2024
2025
2026
2027
2028
year)
Level 1
The City's Stormwater Ordinance to address source control program and
Ordinance
$0
0
$0
0
0
enforcement has been developed. (Due August 2022)
Source control inventory
$0
0
$0
0
0
The City's initial source control inventory has been developed. (Due August 2022)
Review and update public education materials gathered by the Business Inspection
Review/update public education
Group (BIG) to create a basic set of resources for the City's source control
$0
0
$0
40
0.02
40
40
40
40
40
40
materials
program. Assumes ongoing staff support of 40 hours per year starting in 2023 to
update materials. (Ongoing)
Conduct annual source control inspections on 20% of the businesses and/or
properties included in the updated source control inventory. Prioritize inspections
Source control inspections
$0
0
$0
280
0.16
in the Lower Blackjack Creek Catchment to align with the SMAP. Assumes 0.16 FTE
280
280
280
280
280
280
will be needed to implement the inspection program (total staff need for Source
Control will be 0.25 FTE). (Ongoing starting in 2023)
Investigate sites identified through legitimate complaints. Assumes approximately
Investigate complaints
$0
0
$0
40
0.02
40
40
40
40
40
40
40 hours of staff support needed annually. (Ongoing starting January 2023)
Ongoing maintenance of inspection records and enforcement documentation.
Source control recordkeeping
$0
0
$0
80
0.05
Assumes 80 hours of staff support needed annually starting in 2023 to implement
80
80
80
80
80
80
recordkeeping system. (Ongoing)
Provide enhanced source control technical assistances to businesses within the
Enhanced business source control
$0
0
$0
40
0.02
Lower Blackjack Creek Catchment. Assumes 0.02 FTE of staff time will be needed
40
40
40
40
40
technical assistance
starting in 2024. (Ongoing starting 2024)
Conduct and document source control training for staff. Assumes funding and staff
Staff training program
$0
0
$0
0
0
support would be included with the current level of storm drainage utility funding.
(Ongoing starting in 2023)
Level 1 Total
$0
0
$0
480
0.27
$
$
$
$
$
$
440
480
480
480
480
480
Level 2
All activities from Level 1
$0
0
$0
480
0.27
Same assumptions as Level 1.
$
$
$
$
$
$
440
480
480
480
480
480
Develop additional public education materials to supplement those gathered by
the BIG and developed as part of Level 1 to create a broader set of resources for
Develop additional public education
$20,000
0
$0
40
0.02
the City's source control program. Assumes $20,000 of consultant support in 2023
$ 20,000
40
40
40
40
40
materials
and ongoing staff support of 40 hours per year starting in 2024 to update
1
materials. (Ongoing)
Level 2 Total
$20,000
0
$0
520
0.29
$ 20,000
$
$
$
$
$
440
520
520
520
520
520
Level 3
All activities from Level 2
$20,000
0
$0
1 520
1 0.29
ISame assumptions as Level 2.
$ 20,000
1
$
$
$
$
$
440
520
520
520
520
520
Level 3 Total
$20,000
0
$0
1 520
1 0.29
1
$ 20,000
It
$
$
$
$
440
520
520
520
520
520
a One-time activities are completed once, such as hiring a consultant to develop new training materials
b Ongoing activities occur every year, such as continuing an inspection program or annual review of procedures
` FTE, or Full-time equivalent staff, assumes 1,768 hours worked per year for one full-time staff member
City of Part Orchard Stormwater and Watersheds Comprehensive Plan October 2022
Table A-9. Recommended Activities for Total Maximum Daily Load (TMDQ Requirements.
Funding
Staff Hours
One-Timea
Ongoing
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Staff
Recommendation
Staff
Support
Assumptions
Funding
Support
Funding
(hours/
FTE`
(hours)
2023
2024
2025
2026
2027
2028
2023
2024
2025
2026
2027
2028
year)
Level 1
Prioritize IDDE screening in areas discharging to Sinclair Inlet via Blackjack,
Annapolis, and Karcher Creeks and to shorelines (2021-2023). Assumes funding and
IDDE screening in high priority areas
$0
0
$0
0
0
staff support would be included with the current level of storm drainage utility
funding. (Continue into 2023)
Develop a Pollution Prevention Control Plan (QAPP equivalent) to monitor stream
health and provide water quality status updates by the end of 2023. Assume cost to
Pollution Prevention Control Plan and
$0
0
$0
442
0.25
prepare Pollution Prevention Control Plan is included with the current level of storm
442
442
442
442
442
442
ongoing monitoring
drainage utility funding, but that implementation in 2023 and beyond would require
0.25 FTE staff support. (End of 2023 for Plan; Ongoing for monitoring)
Level 1 Total
$0
0
$0
442
0.25
$
$
$
$
$
$
442
442
442
442
442
442
Level 2
All activities from Level 1
$0
0
$0
442
0.25
Same assumptions as Level 1.
$
$
$
$
$
$
442
442
442
442
442
442
Level 2 Total
$0
0
$0
442
0.25
$ -
$
$
$ -
$
$ -
442
442
442
442
442
442
Level 3
All activities from Level 2
$0
0
$0
1 442
1 0.25
ISame assumptions as Level 2.
$
$
$
$
$
$
442
442
442
442
442
442
Level 3 Total
$0
0
$0
1 442
1 0.25
1
$ -
$
$
$
$
$ -
442
442
442
442
442
442
a One-time activities are completed once, such as hiring a consultant to develop new training materials
b Ongoing activities occur every year, such as continuing an inspection program or annual review of procedures
FTE, or Full-time equivalent staff, assumes 1,768 hours worked per year for one full-time staff member
City of Port Orchard Stormwater and Watersheds Comprehensive Plan October 2022
Table A-10. Recommended Activities for Monitoring and Assessment.
Funding
Staff Hours I
One-Timea Ongoing
Staff
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Recommendation Staff Support Assumptions
Funding Support Funding (hours/ FTE`
(hours)
2023
2024
2025
2026
2027
2028
2023
2024
2025
2026
2027
2028
year)
Level 1
The City should continue to pay into the Regional Status and Trends Monitoring at
the annual contribution amount specified in Appendix 11 of the 2019-2024
Regional status and trends
$0
0
$0
0
0
permit. This is already included in the annual budget. The City should also seek
monitoring
opportunities to participate with Kitsap County and other local jurisdictions in an
integrated and coordinated monitoring assessment program.
The City should continue to pay into the Regional Effectiveness Studies and
Effectiveness studies and source
Source Identification Studies at the annual contribution amount specified in
$0
0
$0
0
0
identification studies
Appendix 11 of the 2019-2024 permit. This is already included in the annual
budget.
The City will continue to implement monitoring required by TMDLs (see Table B-9
TMDL requirements
$0
0
$0
0
0
for funding and staffing).
$
$
$
$ -
$
$ -
0
0
0
0
0
0
Level 1 Total
$0
0
$0
0
0
Level 2
All activities from Level 1
$0
0
$0
1 0
1 0
Same assumptions as Level 1.
$
$
$
$
$ -
$
Level 2 Total
$0
0
$0
0
0
$
$
$
$ -
$
$ -
0
0
0
0
0
0
Level 3
All activities from Level 2
$0
0
$0
1 0
1 0
Same assumptions as Level 2.
$
$
$
$
$ -
$
Level 3 Total
$0
0
$0
0
0
$
$
$
$ -
$
$ -
0 0
0
0
0
0
a One-time activities are completed once, such as hiring a consultant to develop new training materials
b Ongoing activities occur every year, such as continuing an inspection program or annual review of procedures
FTE, or Full-time equivalent staff, assumes 1,768 hours worked per year for one full-time staff member
City of Port Orchard Stormwater and Watersheds Comprehensive Plan October 2022
Table A-11. Recommended Activities for Reporting.
Funding
Staff Hours I
One-Timea
Ongoing
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Staff
Recommendation
Staff
Support
Assumptions
Funding
Support
Funding
(hours/
FTE`
(hours)
2023
2024
2025
2026
2027
2028
2023
2024
2025
2026
2027
2028
year)
Level 1
Continue to update the SWMP plan and answer the Annual Report questions each
Annual report and SWMP plan
$0
0
$0
0
0
year. Assumes funding and staff support would be included with the current level
updates
of storm drainage utility funding. (Due March 31 st each year)
Continue retaining records for a minimum of 5 years. Assumes funding and staff
Record keeping
$0
0
$0
0
0
support would be included with the current level of storm drainage utility funding.
(Ongoing)
Level 1 Total
$0
0
$0
0
0
$
$
$
$
$
$
0
0
0
0
0
0
Level 2
All activities from Level 1
$0
0
$0
0
0
Same assumptions as Level 1.
$
$
$
$
$
$
Level 2 Total
$0
0
$0
0
0
$
$
$
$
$
$ -
0
0
0
0
0
0
Level 3
All activities from Level 2
$0
0
$0
1 0
1 0
ISame assumptions as Level 2.
$
$
$
$
$
$
Level 3 Total
$0
0
$0
0
0
1
$
$
$
$
$
$ -
0 0
0
0
0
0
3 One-time activities are completed once, such as hiring a consultant to develop new training materials
b Ongoing activities occur every year, such as continuing an inspection program or annual review of procedures
FTE, or Full-time equivalent staff, assumes 1,768 hours worked per year for one full-time staff member
City of Port Orchard Stormwater and Watersheds Comprehensive Plan October 2022
Table A-12. Recommended Activities for Other SWM Program Support.
Funding
Staff Hours
One -Time' Ongoing
Staff
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Year 1 Year 2 Year 3 Year 4 Year 5 Year 6
Recommendation Staff Support Assumptions
Funding Support Funding (hours/ FTE`
(hours)
2023
2024
2025
2026
2027
2028
2023
2024
2025
2026
2027
2028
year)
Level 1
Add engineering capacity to the capital project design team to assist with
Capital project design and project
$0
0
$0
442
0.25
stormwater retrofit projects and upcoming SMAP implementation projects.
442
442
442
442
management
Assumes h i i n f 2 FTE in in 2 2 n in
Develop a po icy an Stan ar s or consi Bring more intense future preapitation
Climate change in capital
$50,000
100
$0
0
0
and sea level rise in stormwater capital improvement projects. Assumes $40,000
$ 50,000
100
improvement projects
Level 1 Total
$50,000
100
$0
442
0.25
$
$
$ 50,000
$ -
$ -
$
0
0
542
442
442
442
Level 2
All activities from Level 1
$50,000
100
$0
442
0.25
Same assumptions as Level 1.
$
$
$ 50,000
$
$
$
542
442
442
442
Increase engineering capacity for the capital project design team to assist with
Additional capital project design and
$0
0
$0
442
0.25
stormwater retrofit projects and upcoming SMAP implementation projects.
442
442
442
442
project management
Assumes the addition of 0.25 FTE starting in 2025. (Ongoing)
Level 2 Total
$50,000
100
$0
884
1 0.50
$
$
$ 50,000
$
$
$
0
0
984
884
884
884
Level 3
All activities from Level 2
$50,000
100
$0
884
0.50
Same assumptions as Level 2.
$
$
$ 50,000
$
$
$
984
884
884
884
Increase engineering capacity for the capital project design team to assist with
Additional capital project design and
$0
0
$0
442
0.25
stormwater retrofit projects and upcoming SMAP implementation projects.
442
442
442
442
project management
Assumes the addition of 0.25 FTE starting in 2025.
Climate change in private
Develop a policy and standards for new and redevelopment projects to esign or
$100,000
100
$0
0
0
more intense future precipitation. Assumes $40,000 of consultant support and
$ 100,000
100
development projects
Level 3 Total
1 $150,000
1 200
$0
1 1,326
1 0.75
1
1 $
$
$ 50,000
$
$ 100,000
$
0
0
1,426
1,326
1,426
1,326
a One-time activities are completed once, such as hiring a consultant to develop new training materials
b Ongoing activities occur every year, such as continuing an inspection program or annual review of procedures
FTE, or Full-time equivalent staff, assumes 1,768 hours worked per year for one full-time staff member
City of Port Orchard Stormwater and Watersheds Comprehensive Plan October 2022
Table A-13. Cost Summary by Program Area, Year, and Tier.
Program Area
Tier
Year 1
Year 2
Year 3
Year 4
Year 5
Year 6
Total
2023
2024
2025
2026
2027
2028
Stormwater Planning
Level
$10,000
$10,000
$10,000
$0
$0
$0
$10,000
$10,000
$10,000
$10,000
$10,000
$10,000
$10,000
$10,000
$10,000
$10,000
$10,000
$10,000
$10,000
$10,000
$10,000
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$60,000
$60,000
$60,000
Level 2
Level3
Public Education and Outreach
Level
$0
$20,000
$20,000
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$20,000
$20,000
Level 2
Leve13
Public Involvement and Participation
Level
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
Level 2
Leve13
MS4 Mapping and Documentation
Level
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
Level 2
Leve13
Illicit Discharge Detection and Elimination
Level
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
Level 2
Level
Controlling Runoff from New Development,
Redevelopment, and Construction Sites
Levell
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
Level 2
Level
Operations and Maintenance
Level
$0
$0
$0
$0
$0
1 $0
$0
$0
$0
$0
$0
1 $0
$0
$0
1 $0
$0
$0
1 $0
$0
$0
$0
Level 2
Level
Source Control Program for Existing Development
Level
$0
$20,000
$20,000
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$20,000
$20,000
Level 2
Leve13
TMDL Requirements
Level
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
Level 2
Level
Monitoring and Assessment
Level
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
Level 2
Leve13
Reporting
Level
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
Level
Level
Other SWM Support
Level
$0
$0
$0
$0
$0
$0
$50,000
$50,000
$50,000
$0
$0
$0
$0
$0
$100,000
$0
$0
$0
$50,000
$50,000
$150,000
Level 2
Leve13
City of Port Orchard Stormwater and Watersheds Comprehensive Plan October 2022
ITable A-14. Cost Summary by Year and Tier.
Tier
Year 1
Year 2
Year 3
Year 4
Year 5
Year 6
Total
2023
2024
2025
2026
2027
2028
Level 1 Total
$10,000
$10,000
$60,000
$10,000
$10,000
$10,000
$110,000
Level 2 Total
$30,000
$30,000
$60,000
$10,000
$10,000
$10,000
$150,000
Level 3 Total
$30,000
$30,000
$60,000
$10,000
$110,000
$10,000
$250,000
City of Port Orchard Stormwater and Watersheds Comprehensive Plan October 2022
Table A-15.
Program Area
Stormwater Planning
`Public Education and Outreach
Public Involvement and Participation
MS4 Mapping and Documentation
Illicit Discharge Detection and Elimination
Controlling Runoff from New Development,
Redevelopment, and Construction Sites
Operations and Maintenance
Staff Hours
Summary by Program Area, Year, and Tier.
Total
Tier
Year 1 Year 2 Year 3 Year 4
Year 5 Year 6
2023
2024
2025
2026
2027
2028
Level
40
40
40
40
40
40
40
40
40
482
482
482
482
482
482
482
482
482
1,566
1,566
1,566
Leve12
Leve13
Levell
562
1,004
1,888
562
1,084
1,968
522
924
1,848
522
964
1,848
522
964
1,848
522
964
1,848
3,212
5,904
11,248
0
0
0
2,692
7,996
7,996
0
0
0
Leve12
Leve13
Level
0
0
0
442
1,326
1,326
0
0
0
0
0
0
442
1,326
1,326
0
0
0
442
1,326
1,326
0 0
0 0
0 0
442 442
1,326 1,326
1,326 1,326
Leve12
Leve13
Levell
I 482
1,366
1,366
Leve12
Level
Level
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
40
1,808
1,808
0
0
0
40
1,808
1,808
Level 2
Leve13
Levell
0
0
0
40
1,808
1,808
40
1,808
1,808
40
1,808
1,808
200
9,040
9,040
Leve12
Leve13
Levell
0
0
0
120
1,004
1,004
320
1,646
1,646
120
1,446
1,446
120
1,888
1,888
120
1,888
1,888
800
7,872
7,872
Leve12
Leve13
Source Control Program for Existing
Development
TMDL Requirements
Monitoring and Assessment
Reporting
Other SWM Support
Level 1
440
440
440
480
520
520
480
520
520
480
520
520
480
520
520
480
520
520
2,840
3,040
3,040
2,652
2,652
2,652
Leve12
Leve13
Levell
442
442
442
442
442
442
442
442
442
442
442
442
442
442
442
442
442
1 442
Leve12
Leve13
Levell
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
Leve12
Leve13
Levell
0
0
0
0 0
0 0
0 0
0
0
0
0 0
0 0
0 0
0
0
0
Leve12
Leve13
Levell
0
0
0
0
0
0
542
984
1,426
442
884
1,326
442 442
884 884
1,426 1,326
1,868
3,636
5,504
Leve12
Leve13
Table A-16. Staff Hours Summary by Year and Tier.
Tier
Year 1
Year 2
Year 3
Year 4
Year 5
Year 6
2023
2024
2025
2026
2027
2028
Levell Total
1,926
2,166
2,828
2,970
2,970
2,970
Level 2 Total
3,252
6,264
7,690
7,872
8,314
8,314
Level 3 Total
4,136
7,148
9,056
9,198
9,740
9,640
Table A-17. Staff FTE
Summary by Year and Tier.
Tier
Year 1
Year 2
Year 3
Year 4
Year 5
Year 6
2023
2024
2025
2026
2027
2028
Levell Total
1.09
1.23
1.60
1.68
1.68
1.68
Level 2 Total
1.84
3.54
4.35
4.45
4.70
4.70
Level 3 Total
2.34
4.04
5.12
5.20
5.51
5.45
City of Port Orchard Stormwater and Watersheds Comprehensive Plan October 2022
Table A-18. Funding and Staffing Summary by Program Area and Tier.
Program Area
Tier
One-Timea
Ongoing
Funding
Staff Support
(hours)
Funding
Staff Support
(hours/year)
FTE
Stormwater Planning
Level
$0
$0
$0
0
0
1 0
$10,000
$10,000
$10,000
482
482
482
0.27
0.27
0.27
Level 2
Level
Public Education and Outreach
Level
$0
$20,000
$20,000
320
400
400
$0
$280
$0
$0
$0
$0
522
964
1,848
0.30
0.30
1.05
Level 2
Level
Public Involvement and Participation
Level
$0
$0
$0
0
0
1 0
0
0
0
0
0
1 0
Level 2
Level
MS4 Mapping and Documentation
Level
$0
$0
$0
40
40
40
$0
$0
$0
442
1,326
1,326
0.25
0.75
0.75
Level 2
Level
Illicit Discharge Detection and Elimination
Level
$0
$0
$0
0
0
0
$0
$0
$0
0
0
0
0
0
0
Level 2
Level
Controlling Runoff from New Development,
Redevelopment, and Construction Sites
Level
$0
$0
$0
0
0
0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
$0
�$0
$0
$0
40
1,808
1,808
0
1.02
1.02
Level 2
Level 3
Operations and Maintenance
Level
$0
$0
$0
200
200
200
120
1,888
1,888
480
520
520
442
442
442
0
0
0
0
0
0
442
884
1,326
0
1.07
1 1.07
Level 2
Level 3
Source Control Program for Existing Development
Level
$0
$20,000
$20,000
0
0
0
0.27
0.29
0.29
Level 2
Level
TMDL Requirements
Level
$0
$0
$0
0
0
0
0
0
0
Level 2
Level
Monitoring and Assessment
Level
$0
$0
$0
0
0
0
0
0
0
Level 2
Level
Reporting
Level
$0
$0
$0
0
0
0
$0
$0
$0
$0
$0
$0
0
0
0
Level
Level
Other SWM Support
Level
$50,000
$50,000
$150,000
100
100
200
0.25
0.50
0.75
Level 2
11-evel 3
a One-time activities are completed once, such as hiring a consultant to develop new training materials
b Ongoing activities occur every year, such as continuing an inspection program or annual review of procedures
FTE, or Full-time equivalent staff, assumes 1,768 hours worked per year for one full-time staff member
City of Port Orchard Stormwater and Watersheds Comprehensive Plan October 2022
December 2022
t,i HERRERA
City of Port Orchard Stormwater and Watersheds Comprehensive Plan
APPENDIX B
Capital Improvement Program
December 2022
t,i HERRERA
City of Port Orchard Stormwater and Watersheds Comprehensive Plan
APPENDIX B.1
Initial Capital Improvement Projects, Problem
Descriptions, and Solutions
December 2022
* HERRERA
City of Port Orchard Stormwater and Watersheds Comprehensive Plan
Table 1. Initial Capital Improvement Projects, Problem Descriptions, and Solutions.
ID
Project Name
Basin
Problem Description
Solution
Phase II Scope a
Project Type I
The two existing culverts are undersized for fish
Replace undersized culverts with fish passable box culverts
Conduct a site assessment to determine the necessary
Culvert Retrofits or
1
Anderson Creek Culvert Retrofits
Anderson Creek
passage and have not been able to be
or a bridge. Coordinate the project with water main
culvert size. Develop a summary sheet, figure, and
Replacement
inspected in the past 10 years.
replacement on Old Clifton Road.
analogous cost estimate.
The existing culvert is failing, which is impairing
Replace the failing culvert with new modern fish passable
Develop a project summary sheet and figure. The details
2
Annapolis Creek Culvert
Annapolis Creek
upstream estuary conditions, and contributing
o
culvert and restoring estuary processes upstream. 30%
in the summary sheet and cost estimate will come from
Culvert Retrofits or
Replacement
to local flooding and property damage.
design has been completed by Reid Middleton. Currently in
design work that is underway.
Replacement
the process of selecting a preferred alternative.
SE Salmonberry Road Lower
The existing culvert at SE Salmonberry Road
Replace the failing culvert with new modern fish passable
Identify a reference reach and conduct a site assessment
Culvert Retrofits or
3
Blackjack Creek Culvert
Lower Blackjack Creek
crossing has collapsed.
culvert. Coordinate with Bethel and Sedgwick Road
to determine the necessary culvert size. Develop a
Replacement
Replacement
Corridor Stormwater Improvement projects.
summary sheet, figure, and analogous cost estimate.
Blackjack Creek Floodplain
The mainstem of Blackjack Creek and the
surrounding floodplain are impaired. The
Restore natural channel configuration and floodplain
Develop conceptual solution for restoration of fluvial
Floodplain and
4
Restoration and Stormwater
Lower Blackjack Creek
floodplain currently lacks adequate water
function on Blackjack Creek to improve Stormwater
process and floodplain function, summary sheet, figure,
Stream Restoration
Management
treatment, infiltration, and water storage for low flows.
and analogous cost estimate.
storage.
There are multiple storm outfalls that need
Conduct site assessment to confirm existing conditions
Outfall Condition
5
Blackjack Creek Storm Outfall
Lower Blackjack Creek
rehabilitation. The outfalls have inadequate
Rehabilitate the outfalls.
and develop conceptual solutions. Create a summary
Assessment and
Assessment and Retrofits
energy dissipation, infiltration, and water
sheet, figure, and analogous cost estimate.
Rehabilitation
quality treatment.
November 2021
4 HERRERA
City of Port Orchard Stormwater and Watersheds Comprehensive Plan
Table 1. Initial Capital Improvement Projects, Problem Descriptions, and Solutions.
ID
Project Name
Basin
Problem Description
Solution
Phase II Scope a
Project Type I
Old and undersized stormwater infrastructure is
Construct adequately sized stormwater conveyance
Conduct hydrologic modeling to size the regional facility.
Stormwater
Central Sidney Stormwater
Downtown -County
resulting in frequent flooding of the roadway
infrastructure throughout the neighborhood and construct
Develop conceptual plan for conveyance system and
Conveyance and
6
Improvements
Campus
and private property. Stormwater runoff
a regional facility / stormwater park to provide flow control
regional facility location. Create a summary sheet, figure,
Water Quality
currently discharges untreated to Unnamed
and water quality treatment in accordance with current
and analogous cost estimate.
Treatment
Stream negatively affecting aquatic organisms.
stormwater requirements.
The Downtown -County Campus Basin has
The Downtown Basin Stormwater Plan is underway. It
Develop project summary sheets and figures for
Stormwater
7
Downtown Basin Stormwater
Downtown -County
inadequate conveyance, water quality
includes infrastructure, condition assessment, and
approximately five projects. The details in the summary
Conveyance and
Upgrades
Campus
treatment, and flow control to manage
modeling. The work will define approximately five new
sheet and cost estimate will come from the Downtown
Water Quality
stormwater runoff.
capital projects.
Basin Stormwater Plan.
Treatment
Glenwood Road Ruby Creek
There are multiple undersized fish barrier
Remove undersized culverts and replace with fish passable
Conduct a site assessment to determine the necessary
Culvert Retrofits or
8
Culvert Replacement
Ruby Creek
culverts and drainage issues near Glenwood
culverts.
culvert sizes. Develop a summary sheet, figure, and
Replacement
Road.
analogous cost estimate.
Feasibility assessment and alternatives analysis for
Johnson Creek Stream
There are 18 fish barrier culverts along Johnson
realigning Johnson Creek and Port Orchard Boulevard to
Conduct field assessment to size the new culverts.
Culvert Retrofits or
9
Realignment
Johnson Creek
Creek, many of which are unnecessary. Johnson
restore stream channel function and fish passage. This will
Develop a summary sheet, figure, and analogous cost
Replacement (Full
Creek also has alignment issues.
involve removing the 18 culverts and potentially installing
estimate.
Stream Realignment)
fish passable culverts.
The Johnson Creek estuary has been filled by
Feasibility assessment and alternatives analysis to restore
Conduct field assessment to define estuary footprint.
10
Johnson Creek Estuary
Johnson Creek
development and contains potentially
the estuary. Remove two 30" pipes in the easement and
Develop a summary sheet, figure, and analogous cost
Estuary Restoration
Restoration
contaminated soils.
restore the estuary. This will require property acquisition at
estimate.
the mouth of Johnson Creek.
McCormick Woods Drive Culvert
There are three failing culverts along
Remove the three failing culverts and replace with fish
Conduct field assessment to size the culverts. Create a
Culvert Retrofits or
11
Barrier Replacement
Anderson Creek
McCormick Woods Drive that need to be
passable culverts.
summary sheet, figure, and analogous cost estimate.
Replacement
removed and replaced.
November 2021
4 HERRERA
City of Port Orchard Stormwater and Watersheds Comprehensive Plan
Table 1. Initial Capital Improvement Projects, Problem Descriptions, and Solutions.
ID
Project Name
Basin
Problem Description
Solution
Phase II Scope a
Project Type I
Stormwater outfalls in the Eastern Shoreline are
Confirm number of outfalls on public and private
12
Port Orchard East Shoreline
Lower Blackjack Creek
not accessible for inspection and maintenance.
Acquire access to all shoreline properties east of Rockwell
property. Develop a summary sheet, figure, and
Shoreline Acquisition
Acquisition and Easement Right
The shoreline is currently inaccessible to the
Park to eastern city limit.
analogous cost estimate.
public.
The Rockwell Area has inadequate water quality
treatment. The area also has a high
Rockwell Area Stormwater
groundwater table and steep grade resulting in
Install water quality treatment system(s) for the Rockwell
Develop conceptual plan for water quality treatment
Water Quality
13
Improvements
Lower Blackjack Creek
high stormwater flow rates and sediment
Area.
system(s). Create a summary sheet, figure, and
Treatment
accumulation at the following intersections: Bay
analogous cost estimate.
Street and Seattle Avenue; Bay Street and
Rockwell Avenue.
Ross Creek and the surrounding floodplain are
Conduct field assessment to identify locations for beaver
14
Ross Creek Beaver Dam Analogs
Ross Creek
impaired. The floodplain currently lacks
Install beaver dam analogs or other in -stream elements to
dam analogs or other in -stream elements along Ross
Floodplain and
Installation
adequate water storage.
improve floodplain connectivity in the most effective areas.
Creek. Develop a summary sheet, figure, and analogous
Stream Restoration
cost estimate.
Ross Creek Estuary Restoration
The Ross Creek estuary is impaired and there is
Restore estuary function and processes in Ross Creek and
Develop a summary sheet, figure, and analogous cost
Estuary Restoration
15
and Beach Recreation Area
Ross Creek
limited public recreation access at the nearby
open privately owned beaches for recreation activities.
estimate.
Shoreline Acquisition
beaches.
Sidney Road SW Ruby Creek
There is a failing culvert under Sidney Road SW.
Create a summary sheet, figure, and analogous cost
16
Culvert Replacement and Bridge
Ruby Creek
The culvert is a fish barrier due to a plunge pool
Replace the culvert under Sidney Road SW.
estimate. The details in the summary sheet and cost
Culvert Retrofits or
Installation
and elevation drop.
estimate will come from design work that is underway
Replacement
(Brian Abbott grant).
Silver Creek, a Type F tributary to Blackjack
Redirect flow into a deep pipe, trapezoidal channel, or
Conduct a site assessment to define a conceptual
Floodplain and
Stream Restoration
17
Silver Creek Rehabilitation
Lower Blackjack Creek
Creek, requires rehabilitation to restore its
through private property.
solution. Develop a summary sheet, figure, and
Stormwater
original fluvial function.
analogous cost estimate.
Conveyance
November 2021
4 HERRERA
City of Port Orchard Stormwater and Watersheds Comprehensive Plan
Table 1. Initial Capital Improvement Projects, Problem Descriptions, and Solutions.
ID
Project Name
Basin
Problem Description
Solution
Phase II Scope a
Project Type I
18
South Blackjack Creek Culvert
Lower Blackjack Creek
There is a failing fish barrier culvert under
Sedgwick Road. The culvert needs to be
Remove culvert under Sedgwick Road and replace with a
Conduct site assessment to size the bridge. Develop a
Culvert Retrofits or
Removal and Bridge Installation
removed and replaced.
large span bridge. Coordinate with TIP projects.
summary sheet, figure, and analogous cost estimate.
Replacement
Old and undersized stormwater infrastructure is
resulting in frequent flooding on Sherman
Avenue and private property in nearby cul-de-
sacs. There is no visible stormwater conveyance
Conduct hydrologic modeling to size the regional facility.
19
South Sidney Regional Facility
Lower Blackjack Creek
system nearby. Stormwater runoff currently
Construct a regional facility that includes infiltration. This
Develop conceptual plan for regional facility location.
Water Quality
discharges untreated to Blackjack Creek
project will require property acquisition.
Create a summary sheet, figure, and analogous cost
Treatment
negatively affecting aquatic organisms. There is
estimate.
also a need for residential pedestrian
connectivity between Bravo Terrace and South
Sidney.
Old and undersized stormwater infrastructure is
resulting in localized flooding. There is currently
no water quality treatment in the area.
Develop conceptual plan for water quality treatment and
Stormwater
20
Westbay Stormwater
Lower Blackjack Creek
Stormwater runoff currently discharges
Install stormwater conveyance and water quality treatment
conveyance upgrades. Create a summary sheet, figure,
Conveyance and
Improvements
untreated to Sinclair Inlet negatively affecting
infrastructure.
and analogous cost estimate.
Water Quality
aquatic organisms. The area has steep slopes
Treatment
and limited right-of-way, making this a difficult
project.
November 2021
4 HERRERA
City of Port Orchard Stormwater and Watersheds Comprehensive Plan
APPENDIX B.2
Capital Improvement Project Summary Sheets
December 2022
HERRERA
City of Port Orchard Stormwater and Watersheds Comprehensive Plan
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Existing Site Plan
Site Characteristics and Constraints
Basin Available Space Grades and Elevations
• Annapolis Creek Bay Street ROW Flat stream grade
Basin • 9 feet elevation drop from
road to culvert invert
Soils and Groundwater
Critical Areas
Utilities
• Site soils consist of fill material,
Fish stream channel
Existing sewer force main
beach, and estuary deposits
and shoreline
and water main along
• Groundwater at 7 feet
Bay Street
Problem Description
The existing wood -framed box culvert under
Bay Street is deteriorating causing
maintenance costs to increase. Flooding
occurs in the area due to tidal influences.
The 36-inch culvert that connects to the box
culvert creates a fish passage barrier.
Existing Conditions
36-inch culvert inlet
Existing utilities crossing through box culvert
CHARD. * HERRERA t i i GMENGINEERS_
Wood -framed box culvert at high tide
October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Project Description
Replace existing 36-inch culvert and wood -
framed box culvert with a 12-ft wide bottomless
concrete box culvert on concrete foundations.
Existing utilities will continue to pass through
the culvert walls.
Permits Required
Hydraulic Project Approval (WDFW)
USACE Section 404 Permit
SEPA DNS
Right -of -Way Permit
Commercial Permit
Critical Areas Documentation
Shoreline Permit
Estimated Costs
Total Construction Cost (2022)
$1,200,000
Prioritization Matrix
Concept Site Plan
Flood Reduction I Groundwater and Surface i Groundwater and Surfa
Water Quality Water Quantity
15
n
61
ri
Sak
4
L4 y M1 �y
Culvert Section
5
7
-
f
I r^
f� 7
7
77
12' wide box culverts —`
_ r
� rry
-
1S
Y I
�~y � k mod,•-Y
5
�J~I Wing walls
5�
■j� 57I 5/%�� ���'�.�� �Y �5 5y5 55 45 L5
• � {� i� 5x 55\ 5ti � 51 � 5,
C7'
Program Elements (0 -15 Scale)
,e
Habitat Enhancement
Infrastructure
Public Participation
Comprehensive Planning,
Total
Operations and
(Education, Outreach, and
Administration, and Funding
Maintenance
Involvement)
10
5
0
10
45
QRCHARD�. * HERRERA - i GEoENGINEER�
r1T October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Existing Site Plan
Site Characteristics and Constraints
Problem Description
Old and undersized stormwater infrastructure is
resulting in frequent flooding on Sherman Avenue
and private property in nearby cul-de-sacs. There is
no visible stormwater conveyance system nearby.
Stormwater runoff currently discharges untreated to
Blackjack Creek negatively affecting aquatic
organisms. The neighborhood currently lacks
sidewalks and walkability.
Existing Conditions
Undeveloped Parcel at the South End of Sherman Avenue
(Photos Courtesy of Google Earth)
saw_
Available Space
"L- 0 L
Grades and Elevations
I I
Soils and Groundwater
Critical Areas
Utilities
LEE—
• Lower Blackjack Creek
1;;;E iiiil
No available space without property acquisition
Steeper slopes on eastern and
southern sides of the property
Mostly Kitsap Silt Loam (Hydrologic Soil
Group A)
Stream buffer located on the east
side of the property
— .
• No known utility conflicts on the property
• Multiple ROW utilities (e.g., overhead
power, gas, water, sewer) are present
CHARD. * HERRERA -144 � F i GEOENGINEER�
October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Project Description
Build a new regional stormwater facility on the parcel
southeast of Sherman Avenue. The facility will
provide centralized flow control and treatment of an
approximately 30-acre upstream drainage area
extending from Sidney Avenue to Sherman Avenue.
The facility could incorporate elements from
constructed wetlands, bioretention, and infiltration
ponds. The facility will serve as a neighborhood
amenity and will enhance aesthetics, biodiversity,
and habitat. A combination of surface (swale) and
subsurface (piped) stormwater conveyance will be
constructed to convey flow to the facility. This project
will require property acquisition and facilitate the
construction of sidewalks in the neighborhood.
Design Precedent
Whispering Firs Stormwater Park Example (Photo Courtesy of Contech
Engineered Solutions, LLC)
Permits Required
Hydraulic Project Approval (WDFW)
USACE Section 404 Permit
SEPA DNS
Estimated Costs
Concept Site Plan
Prioritization Matrix
Total design + permitting + construction cost does Program Elements (0 -15 Scale)
not include property acquisition.
Flood Groundwater and Groundwater and Habitat Infrastructure Public Participation Comprehensive Planning,
Total Design + Permitting + Construction Cost (2022) Reduction Enhancement Surface Water Surface Water Operations and (Education, Outreach, Administration, and
Quality Quantity Maintenance and Involvement) Funding
$3,500,000 —
5 15 10 10 0 15 1 15
ORCHARD, HERRERA i i GEoENGINEERS�
October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Existing Site Plan
Site Characteristics and Constraints
Basin Available Space Grades and Elevations
Downtown -County Public Road ROWs Steep slopes in the upper
Campus Basin • City owned parking lots in part of the basin
marina and boat launch • Flatter grades north of
Bay Street
Soils and Groundwater
Site soils consist of Harstine
gravelly ashy sandy loam in the
upper basin
Urban land-Alderwood in the
lower basin
Critical Areas
Stream channel
Shoreline
Utilities
Existing water, sewer, and
storm pipes throughout the
basin
Problem Description
Most of the stormwater from the basin
discharges to Sinclair Inlet without treatment.
Some of the existing infrastructure is under
capacity and pipe routing is inefficient. Flooding
of the lower basin occurs during high tide events.
Existing Conditions
Typical drain inlets in Downtown Basin
IJ
•� a�' -
"Y � ,; I. ;.fir
41
Drainage structure with crossing utility pipes
QRCHARD. V HERRERA ' • t i i GEOENGINEERS� One of two water quality facilities in
ram_
Downtown Basin October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Project Description
Install tide gates in new manhole structures at all
outfall pipes directly discharging into Sinclair Inlet.
Install water quality vaults in centralized locations to
collect and treat stormwater runoff. Replace and
reconfigure convoluted storm pipe systems to new
water quality facilities. Remove smaller pipe outfalls
prone to tidal flooding. Install optional detention
vault (2500 CF) to reduce flooding during large tidal
and storm events.
This project aligns with the Downtown Subarea Plan
and Community Events Center (CEC), and is related
to the federal funding to improve Bay Street in
Downtown Port Orchard.
Permits Required
Right -of -Way Permit
Commercial Permit
Estimated Costs
Total Design + Permitting + Construction Cost (2022)
$1,760,000
Prioritization Matrix
Flood Reduction
15
Groundwater and Surface
Water Quality
15
Concept Site Plan
Groundwater and Surface
Water Quantity
n
Program Elements (0 - 15 Scale)
Habitat Enhancement
Infrastructure
Operations and
Maintenance
10
Public Participation
(Education, Outreach, and
Involvement)
X
Comprehensive Planning,
Administration, and Funding
QRCHA�RD. * HERRERA GEOENGINEERS�
r1� October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Project Description
Install tide gates in new manhole structures at all
outfall pipes directly discharging into Sinclair Inlet.
Install water quality vaults in centralized locations to
collect and treat stormwater runoff. Replace and
reconfigure convoluted storm pipe systems to
improve function and maintenance. Install optional
detention vaults (2500 CF) to reduce flooding during
large tidal and storm events.
This project aligns with the Downtown Subarea Plan
and Community Events Center (CEC), and is related
to the funding to improve Bay Street in Downtown
Port Orchard.
Permits Required
Right -of -Way Permit
Commercial Permit
Estimated Costs
Total Design + Permitting + Construction Cost (2022)
$970,000 (Near City Hall) or $1,100,000 with Optional
Detention
$982,000 (Near Kitsap County Courthouse)
Prioritization Matrix
Flood Reduction Groundwater and Surface
Water Quality
15
Q CHARD. *HERRERA
15
Concept Site Plan
Program Elements (0 - 15 Scale)
Groundwater and Surface Habitat Enhancement Infrastructure
Water Quantity Operations and
Maintenance
0 0 10
Jei:dMiddleton •
Public Participation
(Education, Outreach, ar
Involvement)
0
d
Comprehensive Planning,
Administration, and Funding
Total
15
55
October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Existing Site Plan
Site Characteristics and Constraints
Basin
Available Space
uraaes ana
Soils and Critical Areas
Utilities
Other
Elevations
Groundwater
• Ruby Creek Basin •
Sidney Rd ROW.
Flat stream gradient
Site soils consist of Streams and
Existing water main within
New dense residential development under
• Mixed - sparse •
Need temporary
Approximately 12
Bellingham silty clay wetlands - WDFW
Sidney Road.
construction within contributing basin -
residential,
construction
feet of fill cover over
loam habitat assessment
Storm outfall enters
new culvert should be sized appropriately
lawn/pasture, new
easements on
the culvert
reports frequent
downstream channel from
for increased storm flood magnitude and
dense residential,
private property
areas of ponding and
the north
time period.
forested
beaver activity.
7 CHARD.
HERRERA
F i
GEoENGINEER�
Problem Description
Existing 8' wide CMP elliptical culvert has
a damaged inlet and rusted bottom and is
a partial fish barrier.
Existing Conditions
Damaged culvert inlet
Rusted culvert outfall with short water surface drop
Geotextile fabric -lined upstream right bank
October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Project Description
Replace existing culvert under Sidney Road
SW with a proposed bottomless 14-ft wide box
culvert using trenchless methods for
installation.
This project aligns with the Ruby Creek
Subrea Plan and Parks Plan.
Permits Required
Hydraulic Project Approval (WDFW)
USACE Section 404 Permit
SEPA DNS
Right -of -Way Permit
Commercial Permit
Critical Areas Documentation
Estimated Costs
Total Design + Permitting + Construction Cost (2022)
$1,600,000
Prioritization Matrix
Concept Site Plan
56
54
52
:.,.--
50
1,000 1,100 1,200 1,300
Sidney Road Crossing
1.400 '.5c0 1500
Distance (ft) from Blackjack Creek Confluence
1.'00 1,300 1,900 2,000
Program Elements (0 -15 Scale)
Flood Reduction Groundwater and Surface Groundwater and Surface Habitat Enhancement Infrastructure Public Participation Comprehensive Planning, Total
Water Quality Water Quantity Operations and (Education, Outreach, and Administration, and Funding
Maintenance Involvement)
5 1 0 1 5 1 10 1 5 1 0 1 10 1 35
1PQV HERRERA 04- ' • -HARD, GEOENGINEERORC�
October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Existing Site Plan
11
T
Site Characteristics and Constraints
See historic
estuary in
Existing
Conditions
Photo.
DEKALE ST
�s
r
.4
capital Improvement Projects
Q Stormwater Structures
outfalls
Topo (5ft)
Streams
Conveyance
aterbodies
Roads
Pa rce Is
itsap CGunty Wetlands
FEMA Flood Zones
Pork Orchard City Limits
0 40 80 160
Feet
Basin
Available Space Grades and Elevations
Soils and Groundwater
Critical Areas
Utilities
Other
• Johnson Creek Basin
Heavily constrained by
Site is relatively flat and
• Extensive fill
• Marine
Multiple
Property
• Mouth of Johnson
existing structures, SR
accessible
• Area within historical
Shoreline
utilities cross
acquisition is
Creek, within middle to
116, and Port Orchard
tidal zone
• Stream
Johnson Creek
required
high end of tidal range
Boulevard
under SR 116
of Sinclair Inlet
Problem Description
Johnson Creek and its estuary were piped and filled
during development of Port Orchard. Estuary habitat
has been completely lost and fish passage is difficult
at best. Several businesses and houses as well as SR
116 are built over the fill. Multiple major utility lines
are routed along SR 116.
Existing Conditions
highlighted yellow)
Downstream end of culvert under public dock
t
++Si
+7
i
tir
o
CHARD• * HERRERA -144 � F i GEOENGINEER�
Historical T-Sheet (#t1637, ca. 1881) showing extent of
estuary fill October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Project Description
Restoration of the Johnson Creek Estuary will require acquisition of
multiple properties prior to removal of structures and fill from the
nearshore. Coordination with WSDOT will be required for construction of
a bridge on SR 116, replacement of existing utility lines, and connection
of pedestrian access to the public pier. Additional investigation of the
stability of Port Orchard Boulevard will be required. The central location
and nearby parking makes the estuary an excellent location for walkways,
overlooks, and educational opportunities.
This project aligns with the Downtown Subarea Plan and Parks Plan.
Permits Required
Hydraulic Project Approval (WDFW)
USACE Section 404
SEPA DNS
Right -of -Way Permit
Cultural Resources (DHAP)
Critical Areas Documentation
Shoreline Permit
Estimated Costs
Total Cost (2022)
Property Acquisition and Easements: $2,500,000
Planning, Design, and Permitting: $1,000,000
Construction: $2,500,000
Total Project Cost: $6,000,000
Prioritization Matrix
Flood Reduction Groundwater and I Groundwater and Surface
Surface Water Quality Water Quantity
5
10
F
Concept Site Plan
Program Elements (0 -15 Scale)
Habitat Enhancement Infrastructure
Operations and
Maintenance
15 10
Public Participation
(Education, Outreach,
and Involvement)
10
Not to scale
Comprehensive Planning, I Total
Administration, and Funding
15 1 70
Q CHARD. HERRERA t i i GEOENGINEER�-5
October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Existing Site Plan
Existing temporary relief channel}
.�
Existing sinkhole ar-'- ` '
I I
M.
Capital Irnprovernent Projects
Culvert to be replaced
Stormwater Structures
o
SE. PN4 SE SALJVQNJ3ERRy Rl) T C�#
J (5ft)
z Strearns
Conveyance
Roads
Pa roels
`■+�r 0 Pork Orchard City Limits
-
�r-�..� 0 40 SO 160
Feet
Site Characteristics and Constraints
Basin
Available Space
Grades and Elevations
Soils and Groundwater
Critical Areas
Utilities
Other
• Lower Blackjack Creek Basin
SE Salmonberry
Flat road and culvert grades
• Site soils consist of
Stream channel
• No existing water
WFC observed
• Wild Fish Conservancy (WFC)
Rd ROW
Ragnar fine sandy loam
and sewer service
Type-F flow into
2013 survey found the upstream
Will require
within
the Salmonberry
headwaters at Bethel Road near
property
Salmonberry.
road culvert in
Sylvis Lane
easements
• Storm culverts
2013, pre -
resent
blockage
CHARD. * HERRERA i i GEoENGINEERS�
Problem Description
Previous work to convey stream channel under
Salmonberry Road and through private property
with a culvert has failed. Flooding occurs at the
Salmonberry Road crossing. The culvert across
the site is damaged and caused sinkhole on the
property. Drainage fix with temporary relief
channel and piping is not functioning properly.
Upstream stream/pond
Sinkhole on property from damaged culvert
Temporary relief channel dug on northern property
October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Project Description
Remove and replace existing crossing
culverts under SE Salmonberry Road with
new storm conveyance system. New storm
pipe system to extend from channel outfall
to an existing swale channel west of the
crossing. The swale drains to the Blackjack
Creek tributary channel. It's anticipated that
a fish passage culvert is not required since
fish habitat only occurs north of SE
Salmonberry Road.
This project is adjacent to the City's Bethel
and Sedgwick Road Corridor Plan.
Permits Required
Hydraulic Project Approval (WDFW)
USACE Section 404 Permit
SEPA DNS
Right -of -Way Permit
Commercial Permit
Critical Areas Documentation
Estimated Costs
Total Design + Permitting + Construction Cost
(2022)
$300,000
Prioritization Matrix
Concept Site Plan
LEGEND
STORM PIPE (EXISTING)
STORM PIPE (PROPOSED) .1 _
CATCH BASIN (EXISTING)
T� ~
CATCH BASIN (PROPOSED) } I 1k�
DRAINAGE SWALE (EXIST) -- - - - - --
) I !
POND/STREAM (EXIST)
,k JIM
ho I
,I
I f �
Roadway — -
Overflow Water Surface SE SALMONBERRY RD
Y-
Normal W.S. i1
Weir Opening • .x ;' 3.+ „«.
Existing r .
Channel/
Ponded
Area
Proposed storm {
structures and storm
Pipe! Ak
New Storm Profile - -
'+'•.: Not to scale
Program Elements (0 -15 Scale)
Flood Reduction
Groundwater and Surface
Groundwater and Surface Habitat Enhancement
Infrastructure
Public Participation
Water Quality
Water Quantity
Operations and
(Education, Outreach, and
Maintenance
Involvement)
15
0
5
5
10
0
HqR�.
*HERRERA
- i GEoENGINEER�
Comprehensive Planning, Total
Administration, and Funding
5 1 40
October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Existing Site Plan
- _- — -- - Lecend
...-._� _. AlzP1 �� _ . [� Existing Floodplain
EkIS11NG FLOOOPLAIN ,' Q
TO REMAIN _ t n
l 0 Proposed Floodplain Restoration
s b �15 Existing Stream Location (Approximate)
BLACKJACK
• r � tsar � > \. I ti .n O
Sy 54L
r I
3Y CREEK PROPOSED FLOODPLAIN
RESTORATION -12.5 AGY
�n
p
$5
1 �
F�
t
� t �• 4
>
l Z
op LLI
Lo
rJIDhiEy iZd $w .... - Scale in F•A
HI::•,=��; Proposed Conditions ,.,�
p City of Port Orchard °"'�' Fau•zt,�
° AH��� . Floodplain Resloralion Project 216 PPosoeclstreet
APPR�YE➢ UK _ Blackjack Creek Port 6rcharci, WA S8366
''-'T� 914Er 9 CF 5
Site Characteristics and Constraints
Basin
• Stream with good fish
Available Space
Floodplain and wetland
Grades and Elevations
Shallow gradient
Soils and Groundwater
Critical Areas
Utilities
Soils in the flood zone
Freshwater emergent
Existing water main
habitat, but limited
habitat, designated
throughout open space,
are dominated by Kitsap
wetlands; Chinook and chum
along SW Sedgwick
floodplain and wetland
FEMA Flood Zone west of
with slope upward
silt loam and Bellingham
salmon and steelhead stream
Road.
connectivity.
Blackjack Creek.
towards Sidney Road SW.
silty clay loam.
use; and FEMA flood zone.
Problem Description
Existing reach of Blackjack Creek is confined along eastern
edge of the open space with minimal floodplain and wetland
connectivity. While the stream channel has good riparian
cover, vegetation throughout the property is a mix of native
and invasive species. A rock dam located approximately 50
feet upstream from the confluence with Ruby Creek likely
contributes to the observed backwatered conditions and
supports established wetlands within the floodplain.
Existing Conditions
Good riparian cover over stream
Adjacent floodplain and wetland habitat
CHARDHERRERA t t i - i GEoENGINEER
.S�
Placed rock dam immediately downstream of confluence
with Ruby Creek
October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Project Description
The main objective of the project is to increase floodplain
connectivity. The project includes creating alluvial
streambeds for off channel habitat with depressional
water storage and placing large woody debris on
Blackjack and Ruby Creeks. A mix of coniferous trees and
riparian understory will be planted to create a wetland
forest complex. This project was designed by the City of
Port Orchard. It may be impacted by upcoming work by
the Washington Department of Transportation and Kitsap
Transit on State Road (SR) 16 and SR 16 Park and Ride,
respectively.
Permits Required
Section 7 ESA Consultation and Magnuson -Stevens
Fishery and Conservation Act
Section 106 Review
SEPA DNS
Hydraulic Project Approval (WDFW)
USACE Section 404 Permit
Critical Areas Documentation
Estimated Costs
Total Cost (2022)
Planning, Design, and Permitting: $1,000,000
Construction: $5,000,000
Property Acquisition: $1,000,000
Total Project Cost: $7,000,000
Prioritization Matrix
Concept Site Plan
EXISTING FLO LAIN Yp
.jam• TO REMAIN
w�° ram. ��• 65J
IN
91
oc �� �t • � � �
�
RU3YCRLL�
0, Ole
Sri a i . ` • l
4' sscxf4A
c
REEK \,
sr0 4
' 4
N,
7
1� 4
o�
I
Legend:
Large Woody debris Floodplain Assemblage
Qepressional Water Storage) Wetland
Complex with Wetland Plant Mix
Alluvium Streambed
Coniferous Trees (CedarlFir/Hem Mix)
Riparian Llnderstory Planting Mix
Existing Stream Location (Approximate)
Al A0 .
ti r 40
rE 40
> 4 aa¢ a
a say _1 .L .
_ Z
N IN L7
{
sInNFr xa sw
1i�4�iN1Fli fi- f.HiF Proposed Site Plan
� City of Port Orchard
4H R� Floodplair+Restarali0oProjecl 216PFospwSvDel
arc«Eo ORCHARD.
Fo Blackjack Creek Port Orchard. WA 9896fi
ucaeren -
Sr k in F¢[
w.E. Fa4, 7�, 7oQ9
LRAM1HGMlFlm1
C3.00
ORC_HgRD* HERRERA GEOENGINEER�
r1� . October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Existing Site Plan
-.,5W SEDGW1CK RD
7.0 to 6+ac ae�...reek
.f
_��� .
Site Characteristics and Constraints
Basin
• South Blackjack Creek Basin
• Productive fish stream, areas of
ditched channel through pasture
and un-channelized wetland
Available Space
• SW Sedgwick Road ROW
• Need temporary
construction easements
on private property
A
144.
; Culvert to be replaced
j .V • r r r f
01
Pr Jw
Ap
10
�� tdI
i'Arlp WNW
�f
,3F_lr ..
1 f?
R �•
capital improvement Projects
Q SbDrmwater Structures
Topo (5ft)
— Streams
Conveyance
Roads
Parcels
Kitsap County Wetlands
FEMA Flood Zone
Pork Orchard City Limits
Feet
/ Y ,Wyµ
Grades and Elevations Soils and Groundwater
• Flat road and culvert Site soils consist of
grades Bellingham silty clay
• Less than 5 feet of loam
pipe cover
Critical Areas Utilities
• Fish stream • Existing water main
channel, FEMA within SW Sedgwick
flood zone, and Road
overbank wetlands • Storm culverts present
Problem Description
Existing CMP culvert is undersized for
the site and restricts ecological and
floodplain function.
Existing Conditions
SW Sedgewick Road
Stream channel stretch upstream of crossing
Q CHARD. qm HERRERA i i GEOENGINEERS-
Culvert inlet
October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Project Description
Replace existing culvert under SW Sedgwick Road
with a bridge structure (40'x26'). A wider structure
may be necessary to accommodate upstream debris
potential and floodplain backwater effects. Further
geomorphic investigation will be needed to access
the stream sediment debris concerns.
Permits Required
Hydraulic Project Approval (WDFW)
USACE Section 404 Permit
SEPA DNS
Right -of -Way Permit
Commercial Permit
Critical Areas Documentation
Estimated Costs
Total Design + Permitting + Construction Cost (2022)
$1,600,000
Prioritization Matrix
Concept Site Plan
Existing
Pavement
High Flow
Low Flow Channel
Channel Section
53
52
51
50
SW Sedgwick Road
i T
1,s0o i,sso 1,9aa =°:
Program Elements (0 -15 Scale)
Flood Reduction Groundwater and Surface Groundwater and Surface Habitat Enhancement
Water Quality I Water Quantity
5
15
10
5
Sedgwick Road Crossing
2,150 2,200 2,250 2300 2 350 2,400
Distance (ft) from Ruby Creek Confluence
Infrastructure Public Participation Comprehensive Planning, I Total
Operations and (Education, Outreach, and Administration, and Funding
Maintenance Involvement)
5 0 10 35
ORCHg�RD* HERRERA t i i GEoENGINEERS�
r1� . October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Existing Site Plan
Site Characteristics and Constraints
Basin
Available Space
Grades and Elevations
• Downtown -County Basin Available space is located near Steeper slopes on eastern and
existing ditch and underneath southern sides of Givens
the baseball fields Playfield
QRCHARD. HERRERA t i i GEOENGINEER�_5
Soils and Groundwater
• Mostly Harstine gravelly ashy
sandy loam (Hydrologic Soil
Group C)
Critical Areas
• No critical areas
Problem Description
Old and undersized stormwater infrastructure in the
vicinity of Givens Playfield is resulting in frequent
flooding of the roadway and private property.
Stormwater runoff currently discharges untreated to
Unnamed Stream (not shown) negatively affecting
aquatic organisms.
Existing Conditions
�, rl
Givens Playfield Facing East (Courtesy of Explore Port Orchard)
Givens Playfield Facing North (Courtesy of Google Earth)
Utilities I Other
• Existing stormwater ditch flows
south to north through Givens
Playfield
• Overhead powerlines may be in
conflict
• Givens Playfield is owned by the
City of Port Orchard
October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Project Description
Construct a bioswale through Givens Playfield to
help convey flow and treat stormwater. Install new
synthetic turf with a subsurface drainage system at
Givens Playfield to provide additional flow control in
accordance with current stormwater requirements.
Design Precedents
1 ')"
0.5-1.0% Slope
5,and
Fine Gravel
Subsurface Drainage Example (Courtesy of Pacific Northwest Extension)
Bioswale Example
Estimated Costs
Total design + construction + permitting cost does
not include lights, fencing, dugouts, walkways, and
emergency vehicle access.
Total Design + Permitting + Construction Cost (2022)
$4,000,000
Concept Site Plan
Prioritization Matrix
Flood
Reduction
Program Elements (0 -15 Scale)
Groundwater and Groundwater and Habitat Infrastructure Public Participation Comprehensive Planning,
Surface Water Surface Water Enhancement Operations and (Education, Outreach, Administration, and
Quality Quantity Maintenance and Involvement) Funding
10
10
10
C
10
10
Total
55
CHARD. * HERRERA t i i GMENGINEERS�
October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Existing Site Plan
Site Characteristics and Constraints
Basin
Available
Space
Grades and Soils and
Elevations Groundwater
Critical Areas
Utilities
Other
Anderson Creek Basin
0 Road ROW
• Flat stream • Underlying soils consist
Stream channel
• Existing storm and
Semi -frequent
Crossing located in upper watershed
0 City owned
grade of Shalcar muck
surrounded by
water along Old
wildlife/traffic
Tributary confluence —2 miles
property
• 15 feet of • Very poorly drained soil
wetlands and
Clifton Road
incidents
downstream with multiple active and relic
downstream of
culvert cover
multiple beaver
• New development
reported
beaver ponds upstream and downstream
crossing
ponds
ongoing
CHARD. * HERRERA i i
GEOENGINEERS�
Problem Description
The existing 36-inch concrete culvert is
undersized and submerged due to upstream
and downstream beaver activity, creating
backwater conditions through the crossing.
Existing Conditions
lewly installed stormwater input at the
Channel conditions looking upstream
from the crossing inlet
Wetland and stream conditions looking
downstream from the crossing outlet
October 2022
City of Port Orchard Stormwater and Watersheds Comprehensive Plan -Capital Improvement Projects
Project Description
Replace existing 36-inch culvert with a bridge
structure or large arch/box culvert to accommodate
fish and wildlife passage through the crossing. A
larger structure sized to accommodate flow, debris,
and sediment transport during high flow events,
including potential failure of the beaver dam will
provide long-term resilience to local infrastructure
and restore natural ecological processes.
Structure size likely 25 - 35 feet to accommodate
geomorphic setting with wetlands and beaver
activity.
Permits Required
Hydraulic Project Approval (WDFW)
USACE Section 404 Permit
SEPA DNS
Right -of -Way Permit
Commercial Permit
Critical Areas Documentation
Estimated Costs
Total Design + Permitting+ Construction Cost (2022)
$1,600,000
Prioritization Matrix
Flood Reduction
5
Concept Site Plan
Existing
Pavement Concrete
Approach
Brid a Deck r,
Proposed bridge
High Flaw
optional Wildlife
tl� Low Flow Channel Grossing Bench
Channel Section
122
120
w 119
J01d Clifton Road Crossing
Beaver Dam
116 ,
0 50 100 _-- 250 300 350 400 450
Groundwater and Surface Groundwater and Surface
Water Quality Water Quantity
0 5
Program Elements (0 -15 Scale)
Habitat Enhancement Infrastructure
Operations and
Maintenance
10 5
Public Participation
(Education, Outreach, and
Involvement)
I
Comprehensive Plar
Administration, and FI
R
CHARD. * HERRERA t i i GMENGINEERS_
October 2022
December 2022
APPENDIX B.3
Prioritization Results
t,i HERRERA
City of Port Orchard Stormwater and Watersheds Comprehensive Plan
SE Salmonberry
South Blackjack
Anderson Creek
Annapolis Creek
South Blackjack
Central Sidney
Downtown Basin
Johnson Creek
Ruby Creek Culvert
Road, Lower
Creek Culvert
South Sidney
Culvert Retrofits
Culvert Replacement
Creek Floodplain
Stormwater
Stormwater
Estuary Restoration
Replacement
Blackjack Creek
Removal and Bridge
Regional Facility
Restoration
Improvements
Upgrades
Culvert Replacement
Installation
Groundwater and
Groundwater and
Groundwater and
Groundwater and
Habitat
Habitat
Goals and Outcomes
Primary Criteria
Flood Reduction Surface Water
Flood Reduction Surface Water
Surface Water
Flood Reduction Surface Water Flood Reduction
Enhancement
Enhancement
Quality
Quality
Quality
Quality
Flood Reduction Outcomes
Points
Prevents property damage caused by flooding or damage to other utilities
15
15
15
15
15
Prevents flooding of a major street (arterial or larger)
10
7
10
Prevent flooding of a low -volume street or improves City's ability to respond to flood
5
5
5
5
5
5
events or minor nuisance flooding
No impact to flood reduction
0
Groundwater and Surface Water Quality Improvement Outcomes
Points
Major water quality improvements for receiving water bodies
15
15
15
Moderate water quality improvements for receiving water bodies or improves City's
ability to control pollutants and perform water quality improvement activities
10
10
10
Minor water quality improvements for receiving water bodies
5
No water quality improvements for receiving water bodies
0
0
0
0
0
0
0
Groundwater and Surface Water Quantity Improvement Outcomes
Points
Major improvements to summer streamflow and/or groundwater supply
15
15
Moderate improvements to summer streamflow and/or groundwater supply
10
10
10
Minor improvements to summer streamflow and/or groundwater supply
5
5
5
5
5
5
5
No improvements to summer streamflow and/or groundwater supply
0
0
Habitat Enhancement Outcomes
Points
Corrects a significant fish passage barrier or creates significant habitat
15
15
15
Corrects a fish passage barrier (but immediate benefits are limited due to other
barriers) or creates a moderate amount of new habitat/public amenity
10
10
10
10
10
10
Minor improvements to habitat or public amenity
5
5
5
No habitat enhancement
0
0
Infrastructure Operations and Maintenance Outcomes
Points
Major reduction level of effort needed by operations and maintenance
15
Moderate reduction of level of effort needed by operations and maintenance
10
10
10
10
Minor reduction of level of effort needed by operations and maintenance
5
5
5
5
5
No benefit to operations and maintenance personnel
0
0
0
0
Public Participation (Education, Outreach, and Involvement) Outcomes
Points
High-level opportunity for public participation
15
15
Mid -level opportunity for public participation
10
10
10
Limited opportunity for public participation
5
5
No opportunity for public participation
0
0
0
0
0
0
0
Comprehensive Planning, Administration, and Funding Outcomes
Points
Strong candidate for external funding (e.g., fish passage grant, water quality grant,
transportation grant)
15
15
15
15
Average candidate for external funding (e.g., fish passage grant, water quality grant,
transportation grant)
10
10
10
10
10
Weak candidate for external funding (e.g., fish passage grant, water quality grant,
transportation grant)
5
5
5
5
Not a candidate for external funding
1 0
TOTALSCORE 30 45 55 55 55 70
RANK 10 6 3 3 3 1
8 7
8 1
City of Port Orchard Stormwater and Watersheds Comprehensive Plan
October2022
APPENDIX B.4
Level 2 and Level 3 Implementation Schedules
December 2022
* HERRERA
City of Port Orchard Stormwater and Watersheds Comprehensive Plan
City of Port Orchard Stormwater and Watersheds Capital Improvement Program (CIP) Projects
Stormwater and Watersheds Long-term CIP Project Implementation Schedule
Herrera Environmental Consultants
Level 2 includes:
Implementation of all projects within 20 years
Moderate grant funding. (projects would not proceed without grants)
Earlier implementation of Johnson Creek Estuary Restoration (begin 2027) and Downtown Basin Stormwater Upgrades (2024)
Infrastructucture rehab replacement funding increases to $1M+ per year in 2024 and continues through 2042 - Downtown Basin Plan Implementation and then $1M per year for ongoing conveyance system rehab / replacement
No funding for projects that are not currently defined aside from infrastructure rehab above.
Costs in 2022 dollars.
Project Name (Prioritization Score)
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033
2034
2035
2036
2037
2038
2039
2040
2041
2042
Total Cost to City
South Sidney Regional Facility (70)
$700,000
$2,800,000
South Sidney Regional Facility (70) - SFAP Grant 50%
-$350,000
-$1,400,000
Johnson Creek Estuary Restoration (70)
$2,500,000
$500,000
$500,000
$2,500,000
Johnson Creek Estuary Restoration - Estuary restoration, floodplains by design grant 50%
-$1,250,000
-$250,000
1 -$250,000
-$1,250,000
South Blackjack Creek Floodplain Restoration (55)
$1,000,000
$1,000,000
$5,000,000
South Blackjack Creek Floodplain Restoration - Salmon Recovery 50%
-$500,000
-$500,000
-$2,500,000
Downtown Basin Stormwater Upgrades (55)
$1,760,000
$1,100,000
$982,000
Downtown Basin Stormwater Upgrades - Low Interest Loan
Ongoing Conveyance System Rehab / Replacement Program
$100,000
$100,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
Central Sidney Stormwater Improvements (55)
$500,000
$3,500,000
Central Sidney Stormwater Improvements - SFAP Grant 50%
-$250,000
-$1,750,000
Annapolis Creek Culvert Replacement (45)
$400,000
$800,000
Annapolis Creek Culvert Replacement - Brian Abbott Grant 50%
-$200,000
-$400,000
SE Salmonberry Road, Lower Blackjack Creek Culvert Retrofit (40)
$300,000
None
South Blackjack Creek Culvert Removal and Bridge Installation (35)
$400,000
$1,200,000
South Blackjack Creek Culvert Removal and Bridge Installation - Fish Passage Grant (TBD) 50%
1
1
1
1
-$200,000
-$600,000
Ruby Creek Culvert Replacement (35)
$400,000
$1,200,000
Ruby Creek Culvert Replacement - Brian Abbott Grant 50%
-$200,000
-$600,000
Anderson Creek Culvert Replacement (30)
$400,000
$1,200,000
Anderson Creek Culvert Replacement - Fish Passage Grant (TBD) SO%
-$200,000
-$600,000
TOTAL - Cost to City (CIP Cost - Grant Funding)
$100,000
$2,410,000
$1,500,000
$2,382,000
$2,450,000
$1,850,000
$1,250,000
$2,250,000
$1,300,000
$1,000,000
$1,500,000
$1,500,000
$3,700,000
$1,600,000
$1,250,000
$2,750,000
$1,200,000
$1,600,000
$1,000,000
$1,000,000
$33,592,000
12/15/2022 1/1
City of Port Orchard Stormwater and Watersheds Capital Improvement Program (CIP) Projects
Stormwater and Watersheds Long-term CIP Project Implementation Schedule
Herrera Environmental Consultants
Level 3 includes:
Implementation of all projects within 6 years.
No grant funding.
Infrastructucture rehab replacement funding of $1M per year begins in 2028 and continues through 2042.
No funding for projects that are not currently defined aside from infrastructure rehab above.
Costs in 2022 dollars.
Project Name (Prioritization Score)
2023
2024
2025
2026
2027
2028
2029
2030
2031
2032
2033
2034
2035
2036
2037
2038
2039
2040
2041
2042
Total Cost to City
South Sidney Regional Facility (70)
$700,000
$700,000
$2,100,000
Johnson Creek Estuary Restoration (70)
$2,500,000
$500,000
$500,000
$2,500,000
South Blackjack Creek Floodplain Restoration (55)
$1,000,000
$5,000,000
Downtown Basin Stormwater Upgrades (55)
$1,760,000
$1,100,000
$982,000
Ongoing Conveyance System Rehab / Replacement Program
$100,000
$100,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
Central Sidney Stormwater Improvements (55)
$500,000
$3,500,000
Annapolis Creek Culvert Replacement (45)
$400,000
$800,000
SE Salmonberry Road, Lower Blackjack Creek Culvert Retrofit (40)
$300,000
South Blackjack Creek Culvert Removal and Bridge Installation (35)
$400,000
$1,200,000
Ruby Creek Culvert Replacement (35)
$400,000
$1,200,000
Anderson Creek Culvert Replacement (30)
$400,000
$1,200,000
TOTAL
$100,000
$3,300,000
$3,960,000
$9,200,000
$8,582,000
$5,700,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$1,000,000
$44,842,000
12/15/2022 1/1
December 2022
t,i HERRERA
City of Port Orchard Stormwater and Watersheds Comprehensive Plan
APPENDIX C
Stormwater Management Action Plan
December 2022
n� HERRERA
City of Port Orchard Stormwater and Watersheds Comprehensive Plan
CITY OF PORT ORCHARD
STORMWATER MANAGEMENT ACTION PLAN
Prepared for
City of Port Orchard
Prepared by
Herrera Environmental Consultants, Inc.
(NJA-
HERRERA
Note:
Some pages in this document have been purposely skipped or blank pages inserted
so that this document will print correctly when duplexed.
CITY OF PORT ORCHARD
STORMWATER MANAGEMENT ACTION PLAN
Prepared for
Zack Holt
City of Port Orchard
216 Prospect Street
Port Orchard, Washington 98366
Prepared by
Herrera Environmental Consultants, Inc.
2200 Sixth Avenue, Suite 1100
Seattle, Washington 98121
Telephone: 206-441-9080
October 24, 2022
CONTENTS
Purpose...............................................................................................................................................................................1
Background.......................................................................................................................................................................3
Watershed Prioritization Summary
5
Lower Blackjack Creek Watershed Function................................................................................................5
CatchmentConditions..........................................................................................................................................8
LandUse and Future Growth.................................................................................................................8
StormwaterInfluence...............................................................................................................................8
Stormwater Management Actions............................................................................................................................9
Process to Identify Stormwater Management Actions............................................................................9
Strategic Stormwater Retrofit Projects...........................................................................................................9
Land Management Strategies.........................................................................................................................12
Stormwater Program Enhancements............................................................................................................13
Illicit Discharge Detection and Elimination Field Screening....................................................13
Source Control Program for Existing Development....................................................................13
Operationsand Maintenance..............................................................................................................13
Public Education and Outreach..........................................................................................................14
Changesto Long Range Plans........................................................................................................................14
Budgetand Schedule..................................................................................................................................................15
Future Assessment and Feedback..........................................................................................................................17
References........................................................................................................................................................................19
APPENDICES
Appendix A Project Summary Sheet: South Sidney Regional Facility
Appendix B Project Summary Sheet: South Blackjack Floodplain Reconnection Project
n� HERRERA
sw 20-07401-001 smap-cityofportorchard 20221024.docx
TABLES
Table 1. City of Port Orchard Lower Blackjack Creek Catchment A Stormwater Retrofit
Projects.........................................................................................................................................................12
Table 2. City of Port Orchard Lower Blackjack Creek Catchment A Land Management
Strategies.....................................................................................................................................................12
Table 3. City of Port Orchard Lower Blackjack Creek Catchment A Stormwater Program
Enhancements...........................................................................................................................................14
Table 4. Lower Blackjack Creek Catchment A Stormwater Management Actions
Schedule and Cost Summary...............................................................................................................16
FIGURES
Figure 1. Lower Blackjack Creek Catchment A Overview Map....................................................................7
Figure 2. Lower Blackjack Creek Catchment A Stormwater Projects.......................................................11
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sw 20-07401-001 smap-cityofportorchard_20221024.docx
PURPOSE
The City of Port Orchard (City) Stormwater Management Action Plan (SMAP) is prepared
pursuant to requirements of S5.C.1.d.iii of the 2019 -2024 Western Washington Phase II National
Pollutant Discharge Elimination System (NPDES) Stormwater Permit issued by the Washington
Department of Ecology (Ecology).
The Plan is organized according to the permit language and identifies the following for the high
priority catchment located in the Lower Blackjack Creek watershed:
A description of the stormwater facility retrofits needed for the area, including the best
management practice (BMP) types and preferred locations.
Land management/development strategies and/or actions identified for water quality
management.
Targeted, enhanced, or customized implementation of stormwater management actions
related to permit sections within S5, including:
Illicit discharge detection and elimination (IDDE) field screening,
Prioritization of Source Control inspections,
Operations and Maintenance (O&M) inspections or enhanced maintenance, or
Public Education and Outreach behavior change programs.
If applicable, identification of changes needed to local long-range plans, to address SMAP
priorities.
A proposed implementation schedule and budget sources for:
Short-term actions (i.e., actions to be accomplished within six years), and
Long-term actions (i.e., actions to be accomplished within seven to 20 years).
A process and schedule to provide future assessment and feedback to improve the planning
process and implementation of procedures or projects.
October 2022
(kji HERRERA
City of Port—Orchard—Stormwater Management Action Plan
BACKGROUND
The City completed the "City of Port Orchard Watershed Inventory and Assessment" March 21,
2022 (Herrera 2022a) and the "City of Port Orchard Watershed Prioritization" June 22, 2022
(Herrera 2022b). Additionally, the City is in the process of developing their "Stormwater and
Watersheds Comprehensive Plan", anticipated in 2023. This SMAP will be incorporated within
the stormwater comprehensive planning process when developing programmatic and capital
improvement programs. Additionally, much of the watershed data and analysis conducted for
meeting the SMAP permit requirements will serve to better understand stormwater pressures
upon water resources on a watershed basis.
October 2022
n� HERRERA
City of Port—Orchard—Stormwater Management Action Plan
WATERSHED PRIORITIZATION SUMMARY
Eighteen watersheds were originally identified during the first step of the City's watershed
inventory. Thirteen watersheds were removed from the prioritization process due to low or no
City stormwater influence or because the watershed was smaller than the 400 acre size threshold
identified by Ecology in their SMAP guidance (Ecology 2019). The remaining five candidate
watersheds were subjected to a prioritization and scoring process. The prioritization process
resulted in selection of Lower Blackjack Creek watershed as the highest priority watershed based
on the following characteristics:
High receiving water use support
Moderate level of development and future growth
Good water and habitat condition
Highest jurisdiction control
Promotes other plans and projects, most notably the Blackjack Creek Watershed Assessment
Plan and Protection and Restoration Plan (ESA 2017).
LOWER BLACKJACK CREEK WATERSHED FUNCTION
Lower Blackjack Creek watershed processes are considered "functioning" for hydrologic regime,
sediment regime, riparian areas and wetlands, nutrient supply, floodplain channel interactions,
habitat connectivity, fish passage and water quality (ESA 2017). Organic matter input is rated
"Moderately Impaired" However, elevated summer stream temperatures and low dissolved
oxygen levels are a concern.
Lower Blackjack Creek supports an abundance of salmonid species. The creek supports
spawning and rearing activity for fall and summer chum and coastal cutthroat trout. The stream
corridor supports migration of coho salmon to extensive upper watershed areas for spawning
and rearing. Blackjack Creek is included in the area for endangered species for fall Chinook and
winter steelhead.
Lower Blackjack Creek stream health is good based upon aquatic insect scores. Aquatic insect
diversity is monitored at multiple locations within the Lower Blackjack Creek watershed. This
benthic index of biotic integrity (B-IBI) and many of the sub -indexes are strongly correlated with
stormwater impacts (both erosive flows and water quality). Station KCSSWM-035 (Blackjack
Middle) was monitored for 7 years between 2011 to 2021 with an average score of 52 and a
standard deviation of 12. Scores range from 33 (2014) to 76 (2019). Overall, the stream aquatic
October 2022
%HERRERA
City of Port—Orchard—Stormwater Management Action Plan
insect community index is classified as "Fair", where some years the score classifies as "Poor" and
other years as "Good" (Puget Sound Benthos Database, 2022).
The watershed was subdivided into three catchments, A, B and C, and Catchment A was selected
for development of the SMAP. This catchment has a greater concentration of older development
for retrofit opportunities. Catchment A is depicted in Figure 1.
* HERRERA
October 2022
City of Port Orchard—Stormwater Management Action Plan
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�J Port Orchard City Limits
A Overview Map.
Port Or a
Lower Blackjack Creek Watershed
Catchment Boundary
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HERRERA
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CATCHMENT CONDITIONS
Below is a brief description of the catchment for land use, growth and City stormwater influence.
This information provides background about Catchment A existing characteristics and potential
future conditions considered during development of the SMAP.
Land Use and Future Growth
Catchment A is 615 acres. Land use is diverse and comprised of commercial, single-family
residential, multi -family residential, high use state highways and City roads. Vacant lands are
targeted for development and the watershed within the City limits is developing rapidly. The City
of Port Orchard, due to its proximity to the urban centers of Bremerton and Tacoma and
connection to Seattle via ferry transportation, is designated as a "high capacity transit
community" by the Puget Sound Regional Council (Puget Sound Regional Coordination Council,
2020). The City is expected to grow as much as 36% by 2044 (Kitsap Regional Coordinating
Council, 2022).
Stormwater Influence
The City has four major stormwater outfalls (greater than 24" diameter) within Catchment A,
and multiple smaller outfalls. Washington State Department of Transportation also discharges
runoff within the catchment. Fourteen public and private stormwater ponds are located within
the catchment.
6 HERRERA
October 2022
City of Port Orchard—Stormwater Management Action Plan
STORMWATER MANAGEMENT ACTIONS
PROCESS TO IDENTIFY STORMWATER MANAGEMENT ACTIONS
The process to identity stormwater management actions included a detailed evaluation of
landscape characteristics and the existing stormwater system. Landscape characteristics
reviewed included zoning, vacant lands, stream buffers, wetlands, geohazard areas and
roadways . In general, actions potentially effective to protect the receiving water of Lower
Blackjack Creek were identified. All retrofit projects are one-time actions. However,
programmatic and land management strategy actions can be conducted one time, annually
during the term, or conducted during a three-year pilot project. Annual and pilot projects are
evaluated to determine if it is beneficial to continue the action or to end the action due to
completion, or if the action is determined to be ineffective.
The assessment of the stormwater system included identifying stormwater ponds (both City and
private) and stormwater outfalls. Stormwater pond owners were identified and the year the
pond built determined to assess the level of water quality and or flow control according to the
design requirements of the era it was designed. For all roadways the owners (City or State) were
identified. Current capital improvement projects (CIPs) that improve stormwater quality and/or
flow control or floodplain reconnection were identified including the location, drainage area,
and best management practice (BMP) type. Existing and future potential partnerships with local
agencies were also reviewed.
Based on this information a series of 'actions'were identified to further protect and/or enhance
ecosystem function of Catchment A. The actions cover three categories: strategic retrofits, land
management strategies and stormwater program enhancements. These actions were presented
to internal City and local stormwater and natural resource stakeholders prior to conducting two
workshops in August 2022. General cost estimates were provided for each action and
stakeholders provided their input on selection of Catchment A and prioritization of actions.
Stakeholder feedback was incorporated into this plan.
STRATEGIC STORMWATER RETROFIT PROJECTS
The potential benefits of stormwater retrofit implementation opportunities were examined
based on factors including location, degree of existing water quality or flow control, ownership
(more challenging to implement for private ownership versus City ownership), and likelihood to
succeed.
Three retrofit projects were identified in Lower Blackjack Creek Catchment A. The projects are
the South Sidney Regional Facility, Flowers Meadows St. Pond Retrofit and Naturalization, and
October 2022
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City of Port—Orchard—Stormwater Management Action Plan 9
the Sedgewick Water Campus Pond Naturalization. The locations of the three projects and
preliminary drainage areas are depicted in Figure 2. The projects and BMP types are described in
Table 1. The project summary sheet for the South Sidney Regional Facility project is included in
Appendix A.
6 HERRERA
October 2022
10 City of Port Orchard—Stormwater Management Action Plan
RD
Ruby
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Retrofit
Legend Figure 2. Lower Blackjack Creek Catchment
Stormwater Retrofits Preliminary Blackjack Creek A Stormwater Projects.
Floodplain Restoration Project
Q Catchment Boundary Area
Preliminary South Sidney Wetlands
Regional Facility Drainage Area N 0 500 1,000 2,000
Waterbody Feet
— Stream
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Kitsap County, 2020
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Table 1. City of Port Orchard Lower Blackjack Creek Catchment A
Stormwater Retrofit Projects.
Best Management Practice(s) to Be
Action
Considered'
Cost
South Sidney Regional Facility
Constructed wetlands
Design: $1,400,000
Biofiltration
Construction: $2,100,000
Infiltration ponds
Flower Meadows St. Pond Retrofit and
Enhance flow control and water quality
$45,000
Naturalization
Naturalize pond
Sedgewick Water Campus Pond
Naturalize pond
$45,000
Naturalization
Total Cost
$3,590,000
' These projects are still in early design phase and the specific BMP that will be implemented may change.
LAND MANAGEMENT STRATEGIES
The potential benefits of land management strategies were examined based on factors including
but not limited to the age of existing development, potential future land use, and opportunities
to enhance stream function. These were evaluated for opportunities to leverage and mitigate
future development to improve watershed health and reduce negative impacts from
development. As a result of this evaluation, three land management strategies were identified to
help protect or enhance ecosystem functions in Lower Blackjack Creek Catchment A (Table 2).
The strategies are the South Blackjack Creek Floodplain Restoration project, a pilot rain garden
and low impact development cost share program and regular review of stormwater standards
for new development and re -development. The project summary sheet for the South Blackjack
Creek Floodplain Restoration project is included as Appendix B.
Table 2. City of Port Orchard Lower Blackjack Creek Catchment A
Land Management Strategies.
Action
Description
Cost
South Blackjack Creek
Increase floodplain connectivity creating alluvial
Design: $1,000,000
Floodplain Restoration
streambeds for off channel habitat with depressional
Construction: $5,000,000
water storage, plant coniferous trees and riparian
buffer areas, and add large woody debris
Rain Garden and Low
Implement a pilot private property rain garden or
$60,000
Impact Development Cost
other low impact retrofit program with cost -share from
Share Pilot Program
the City
Regular Review of
Annual meeting of stormwater review staff to identify
$5,000
Stormwater Standards
process improvements in review, inspection and
enforcement of new development projects
Total Cost
$6,065,000
HERRERA
October 2022
12 City of Port Orchard—Stormwater Management Action Plan
STORMWATER PROGRAM ENHANCEMENTS
The City conducts a number of activities for compliance with the 2019-2024 Western
Washington Phase II NPDES Stormwater Permit (permit). These include activities associated with
Illicit Discharge Detection and Elimination, Source Control , Operations and Maintenance, and
Public Education and Outreach.
The City's existing procedures for implementing these activities were reviewed to consider what
enhancements would be beneficial for accelerating water quality and habitat improvements in
the Catchment A. This section describes the enhancements implemented within Catchment A
that will exceed NPDES permit required actions. Table 3 summarizes stormwater program
enhancement actions.
Illicit Discharge Detection and Elimination Field Screening
The City is required to inspect 12 percent of stormwater outfalls annually. The City will conduct
the following additional actions in Lower Blackjack Creek Catchment A:
Locate and map additional outfalls.
Visit and inspect stormwater outfalls annually.
Source Control Program for Existing Development
The City is required to implement an inspection program January 1, 2023. Twenty percent of the
inventory list is to be inspected annually with provisions for response to complaints and re -
inspection visits. The City will conduct the following additional actions in Lower Blackjack Creek
Catchment A:
Prioritize businesses for inspections the first year of the Source Control Program.
Revisit Source Control Program sites that require additional attention to promote better use
of BMPS to reduce pollution sources entering the storm drainage system.
Add multi -family properties to the Source Control Business Inspection inventory list.
Operations and Maintenance
The City is required to clean catch basins every two years, with provisions for reduced cleaning
based upon inspection. The City will conduct the following additional actions in Lower Blackjack
Creek Catchment A:
Clean City catch basins where inspection shows areas which accumulate sediment at higher
rates annually.
October 2022 H E R R E RA
City of Port—Orchard—Stormwater Management Action Plan 13
Public Education and Outreach
The City is required to implement public education and outreach programs to build awareness,
foster behavior change, and provide stewardship opportunities all related to water resource
protection. The City will conduct the following additional actions in Lower Blackjack Creek
Catchment A:
Identify new locations and add Mutt Mitt pet waste stations to key pet walking areas.
Conduct a one-time targeted public education effort to property owners to build awareness
about stormwater impacts to surface waters and best management practices, including
car washing, pet waste pickup, and other practices to reduce pollution.
Develop and distribute education materials to property owners about tree preservation and
wetland buffer best management practices.
Implement a three year pilot program for education and public participation in a citizen
volunteer stream team.
Implement a three year pilot program for technical assistance to property owners to improve
or establish riparian plantings.
Table 3. City of Port Orchard Lower Blackjack Creek Catchment A
Stormwater Program Enhancements.
Permit Section Action Cost
Illicit Discharge Detection Locate and map additional outfalls one time $1,200
and Elimination S.5.C.5 Inspect City stormwater outfalls annually $7,200
Source Control Program
Inspect businesses the first year of the program
$0
for Existing Development
Conduct enhanced technical assistance
$7,200
S.5.C.8
Include and inspect multi -family properties
$0
Operations and
Clean targeted City catch basins annually
$25,000
Maintenance S.5.C.7
Public Education and
Add Mutt Mitt pet waste pick up stations
$4,000
Outreach S.5.C.2
Conduct one time public education to build awareness about
$6,000
stormwater impacts to surface waters and best management
practices
Conduct one time education about tree preservation and
$12,000
wetland buffer best management practices
Implement a citizen stream team pilot program
$60,000
Implement a stream riparian planting pilot program
$60,000
Total Cost
$182,600
CHANGES TO LONG RANGE PLANS
The SMAP will be incorporated into the City 2024 Comprehensive Plan Periodic Update by
reference.
H E R R E RA October 2022
14
City of Port Orchard—Stormwater Management Action Plan
BUDGET AND SCHEDULE
Cost estimates for each SMAP action were developed and identified for either short-term (2024-
2030) or long-term(2O31-2044) implementation. These costs may be mitigated by grant funding
programs; the retrofit projects, the floodplain project and some of the education projects may
be grant eligible. For the purpose of this document, no assumptions have been included about
grant funds.
Some actions are implemented annually while others are a one-time project implemented as a
3-year pilot (see Table 4). The schedule does not assume continuation of programs identified as
"short-term" or "pilot" projects beyond the minimum time frame, either 2024-2030 or three year
pilot.
The total estimated cost for short-term actions is $1,467,600. The total estimated cost for long-
term actions is $8,370,000.
A summary of short-term and long-term actions costs are shown in Table 4.
October 2022
%HERRERA
City of Port—Orchard—Stormwater Management Action Plan 15
Table 4. Lower Blackjack Creek Catchment A Stormwater Management
Actions Schedule and Cost Summary.
Schedule
Short- or
Action Long -Term' Duration Cost
Design South Sidney Regional Facility
Short
One time
$1,400,000
Construct South Sidney Regional Facility
Design and Construct Flower Meadows St. Pond Retrofit and
Naturalization
Long
One time
$2,100,000
Long
One time
$45,000
Design and Construct Sedgewick Water Campus Pond
Naturalization
Long
One time
$45,000
Design South Blackjack Creek Flood lain Restoration
Long
One time
$1,000,000
Construct South Blackjack Creek Flood lain Restoration
Long
One time
$5,000,000
Conduct private property rain garden & LID retrofit program
Long
Annual for
3 year pilot
$60,000
(over 3 ears)
Conduct review of stormwater standards
Short
Annual
$5,000
(over 5 ears)
Locate and map additional outfalls
Short
One time
$1,200
Inspect City outfalls
Short
One time
$7,200
Inspect businesses the first year of the program
Short
One time
$0
Conduct enhanced Business Source Control technical assistance
Short
Annual
$7,200
(over 5 ears)
Include and inspect multi -family properties in Business Source
Control Program
Short
One time
$0
Clean targeted City catch basins
Short
Annual
$25,000
Add Mutt Mitt pet waste pick up stations
Short
One time
$4,000
Conduct private property stormwater impacts & practices outreach
Short
One time
$6,000
Conduct private property tree preservation and wetland buffer
Outreach Program
Short
Annual for
3 year pilot
$12,000
Implement a citizen stream team pilot program
Long
Annual for-
3 year pilot
$60,000
Implement a stream riparian planting pilot program Long Annual for
3 year pilot
Total Short -Term Costs
$60,000
$1,467,600
Total Long -Term Costs
1 $9,837,600
Note=Cost estimates are in 2022 dollars. Inflation and escalation of costs were not incorporated into cost estimates.
a Short-term = implementation between 2024 to 2030
Long-term = implementation between 2031 and 2044
LID= low impact development
(6 HERRERA
October 2022
16 City of Port Orchard-Stormwater Management Action Plan
FUTURE ASSESSMENT AND FEEDBACK
The purpose of the SMAP is to conduct actions in Catchment A to protect or enhance the
receiving water of Lower Blackjack Creek. The SMAP is comprised of retrofit projects, land
management strategies and enhanced programmatic activities. The City will assess
implementation by tracking project implementation, effectiveness and demand for programs,
and environmental monitoring data. This tracking will provide feedback to the City about SMAP
implementation.
Projects are typically reviewed and tracked as part of capital project planning and budgeting.
More detailed program analysis, financial assessment and capital project planning occurs on a
6- to 7-year cycle as part of comprehensive planning and provides an additional opportunity for
tracking. Projects (those shown in Figure 2) will be tracked for implementation. Design,
construction, and potential grant oversight will require City staff time. Staff capacity or lack of
grant funding may be limiting factors for implementation.
Programs are typically reviewed annually for NPDES permit reporting The City desires to
implement programs that are effective, in demand, and worthwhile continuing. Programs will be
evaluated to determine if they are not effective (due to lack of response or engagement) or no
longer effective (catch basin cleaning, business source control assistance). Successful programs
may be continued through the long term depending upon staff capacity and funding.
Environmental data collection also occurs annually as part of routine monitoring for stream flow
and benthic macroinvertebrates. These data may be useful in assessing trends of stream health
over time. B-IBI data will be evaluated for long-term trends and stream flow metrics related to
stormwater impacts will be evaluated.
October 2022
%HERRERA
City of Port—Orchard—Stormwater Management Action Plan 17
REFERENCES
Ecology. 2019. Stormwater Management Action Planning Guidance. Washington Department of
Ecology -Water Quality Program. Publication Number 19-10-010.
ESA. 2017. Blackjack Creek Watershed Restoration Assessment and Protection and Restoration
Plan. Prepared for Suquamish Tribe and Washington Department of Ecology, by ESA
Consultants, Seattle, Washington.
Herrera. 2022a. City of Port Orchard Watershed Inventory and Assessment — Technical
Memorandum. Prepared for the City of Port Orchard by Herrera Environmental Consultants,
Seattle, Washington. March 21.<httPS:Hportorchardwa.gov/documents/port-orchard-
watershed-i nventory/>
Herrera. 2022b. City of Port Orchard Watershed Prioritization — Technical Memorandum.
Prepared for the City of Port Orchard by Herrera Environmental Consultants, Seattle,
Washington. June 22. <httPS:Hportorchardwa.gov/documents/port-orchard-watershed-
prioritization/>
Kitsap Regional Coordination Council. 2022. Land Use Planning Policy Committee Meeting.
February 15.
< https:Hstaticl .squarespace.com/static/5660ba88e4bOe83ffe8O32fc/t/6205bOf793b6a l 302e7c8f
41/1644540153978/KRCC+PlanPOL+Feb+15+2022+Meeting+Packet.pdf. >
Puget Sound Benthos Database. 2022. Accessed August 1, 2022.
<https:HPugetsoundstreambenthos.org/>
Puget Sound Regional Council. 2020. Vision 2050 A Plan for the Central Puget Sound Region.
Puget Sound Regional Council, Seattle, Washington.
October 2022
n� HERRERA
City of Port—Orchard—Stormwater Management Action Plan 19
December 2022
t,i HERRERA
City of Port Orchard Stormwater and Watersheds Comprehensive Plan
December 2022
APPENDIX D
Financial Analysis
HERRERA
City of Port Orchard Stormwater and Watersheds Comprehensive Plan
0 CHARD
This entire report is made of readily
recyclable materials, including the bronze
wire binding and the front and back cover,
which are made from post -consumer
recycled plastic bottles.
�'_ to ____)
City of Port Orchard
tormwater Utility
Rate Study
FINAL REPORT
December 2022
Washington
7525 166th Avenue NE, Ste. D215
Redmond, WA 98052
425.867.1802
Oregon
5335 Meadows Road, Ste. 330
Lake Oswego, OR 97035
503.841.6543
Colorado
1320 Pearl St, Ste 120
Boulder, CO 80302
719.284.9168
www.fcsgroup.com
•
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• 7525166thAve NE, Ste. D-215 Oregon 1503.841.6543
Solutions -Oriented Consulting Redmond, Washington 98052 Colorado 1719.284.9168
December 15, 2022
Zack Holt, Public Works Stormwater Manager
City of Port Orchard
216 Prospect St.
Port Orchard, WA 98366
Subject: Stormwater Utility Rate Study
Dear Mr. Holt:
FCS GROUP is pleased to submit this report summarizing the results of the Stormwater Utility Rate
Study. We want to thank you and City staff for your assistance and participation in data collection,
analysis review, and discussion of key policy topics. This report includes consideration of three
stormwater levels of service, each with varying levels of staffing and capital project considerations.
The detailed methodologies used to derive the revenue needs for all levels of service (and a capital
facility charge for each) are included in this report. It has been a pleasure to work with you and City
staff on this study. Please let us know if you have any questions. Tage can be reached at (425) 615-
6487 or TageAkfcsgroup.com.
Sincerely,
A�-
John Ghilarducci Tage Aaker Luke Rosson
Project Principal Project Manager Analyst
City of Port Orchard
December 2022
Stormwater Utility Rate Study
page i
Table of Contents
Section I. Introduction/Summary ...........................
Utility Background ...................................................
RateStudy..............................................................
Utility Rate and Inflation ...........................................
Revenue Requirement Results by Level of Service...
Capital Facility Charge by Level of Service ...............
TABLE OF CONTENTS
Section II. Fiscal Policies ...............................................
Operating Reserve — Fund 421.........................................
Capital Reserve — Fund 423..............................................
Adopted City Fiscal Policies ..............................................
Stabilization Reserve — Fund 422......................................
DebtManagement............................................................
Rate Funded System Reinvestment (Rate Funded Capital)
Summary of Fiscal Policies ...............................................
Section III. Revenue Requirement ............
Economic & Inflation Factors ........................
Fund Balances .............................................
Staffing & Other Operational Funding Needs.
Capital Expenditures ....................................
Capital Funding Strategy ..............................
Revenue Requirement for Level of Service 1
Revenue Requirement for Level of Service 2
Revenue Requirement for Level of Service 3
Section IV. Capital Facility Charges ..........
Introduction..................................................
LegalBasis ..................................................
Methodology.................................................
Existing Cost Basis .......................................
Future Cost Basis .........................................
Estimated Customer Base (System Capacity)
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15
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•:;> FCS GROUP
www.fcsgroup.com
City of Port Orchard
December 2022
Stormwater Utility Rate Study
page ii
CFC Results
Section V. Summary ......................................
Capital Facility Charge .....................................
Single -Family Residential Rate Comparison.....
Single -Family Stormwater CFC Comparison.....
Updating This Study's Findings ........................
Model Appendices
.........................................................19
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20
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20
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20
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22
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22
23
•*;4 FCS GROUP
www.fcsgroup.com
City of Port Orchard Stormwater Utility Rate Study
December 2022 page 1
Section I. INTRODUCTION/SUMMARY
Utility Background
According to the City's Stormwater and Watersheds Comprehensive Plan 2023 (Comprehensive
Plan) by Herrera Environmental Consultants, "the City of Port Orchard (City) operates a system of
drainage pipes and ditches to convey Stormwater runoff to receiving waters including streams and
Sinclair Inlet. The drainage system prevents and minimizes damage to private properties, city streets,
and other infrastructure... The City is faced with the challenge to convey runoff safely, while
minimizing adverse high -flow impacts (erosion, flooding, and sediment deposition) and water quality
degradation to receiving waters." The City bills and collects fees from customers within its service
area to provide resources needed to plan, manage, design, construct, maintain, revise, and upgrade its
stormwater system.
Rate Study
The rate study has two main goals — to develop revenue requirement analyses and capital facility
charges for the City's stormwater utility. The results corresponding to each level of service vary
because each level of service incorporates different operational and capital project needs.
Revenue Requirement
One main purpose of this rate study is to develop a funding plan ("revenue requirement") for the
City's stormwater utility for the 2022-2041 study period. The revenue requirement identifies the total
amount of rate revenue needed to fully fund the utility on a standalone basis, considering operating
and maintenance expenditures, existing debt service, capital funding needs identified in the City's
capital plan, and fiscal policies. Exhibit 1 shows the general methodology of the rate study process.
Exhibit 1: Revenue Requirement Overview
Financial Policies
REVENUE
REQUIREMENT
t
Capital Facility Charge (CFC)
The other purpose of this rate study is to develop a capital facility charge, or CFC, for the City's
stormwater utility. The City currently has water and sewer utility CFCs, but none for its stormwater
utility. CFCs are designed to recover from new development a proportionate share of the cost of
capital facilities. CFCs are one-time charges, not ongoing rates. They are typically payable at the
time of development (or redevelopment to a higher intensity of development).
Capital facility charges serve two primary purposes: to provide equity between existing and new
customers; and to provide a source of capital funding for system capital costs, as growth occurs.
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City of Port Orchard Stormwater Utility Rate Study
December 2022 page 2
Utility Rate and Inflation
In June 2015, the City increased its monthly stormwater utility fee from $9.70 to $14.00 per
impervious surface unit (ISU). It has not increased since that time. Exhibit 2 compares that fee
against what that fee would have been if annual inflationary adjustments had been applied. The fee
would need to be roughly $18 in 2022 to have a similar amount of buying power as it did in 2015.
Since 2015, the utility has faced significant cost inflation and development. While new development
does result in new customers who pay the monthly rate, new development may also require
additional services and can result in additional costs for the utility to build and maintain the
infrastructure that serves the new development. Additionally, the City has gone through another
iteration of the National Pollutant Discharge Elimination System (NPDES) Municipal stormwater
permit (2019) which has resulted in increased regulatory requirements for the stormwater program.
Exhibit 2: City's Monthly Stormwater Fee vs. Consumer Price Index (CPI) Inflation
$20 $17.90
$15----------- - - - - -• f14.00
$10
$5
$0
2015 2016 2017 2018 2019 2020 2021 2022
� City's Fee • • • CPI Inflation Applied to 2015 Fee
Revenue Requirement Results by Level of Service
The following sections summarize revenue requirement results by level of service (LOS). In each
LOS, there is a three-year phase -in to help rates "catch up" to the level of service needs. After that,
inflationary -level adjustments are assumed — 3% per year for each level of service. In LOS 3,
increases drop to 1.5% in 2033 to avoid a large buildup of reserves. As previously noted, the forecast
goes through the end of 2041, but the tables below show results through 2031 due to space
limitations. To give City staff and City Council time to consider each level of service, and the
associated rate adjustments, it is assumed initial rate adjustments would not be made until 2024. If
the City were to incorporate rate increases earlier, say effective July 1, 2023, it would reduce future
rate increases by roughly $1-2 per month per ISU. Among the information listed for each level of
service are details regarding capital expenditures. Capital projects (net of grants) refers to net capital
expenditures after receiving grant funding; both factors vary based on level of service.
Level of Service 1
Level of Service 1 requires monthly rate increases averaging $3.60 per year for 2024-26. This level
of service funds approximately $36 million in capital projects (net of grants) inflated to the year of
construction (2022-2041) and provides funding for up to 1.7 additional FTEs.
Exhibit 3: Level of Service 1: Rate Adjustments
2023 1 2024 2025 1 2026 2027 2028 1 2029
Monthly Rate I ISU $14.00 $16.94 $20.50 $24.80 $25.55 $26.31 $27.10 $27.91 $28.75
Changein
Monthly Rate $2.94 $3.56 $4.30 $0.75 $0.76 $0.79 $0.81 i$
�
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City of Port Orchard
December 2022
Level of Service 2
Stormwater Utility Rate Study
page 3
Level of Service 2 requires monthly rate increases averaging $5.82 per year for 2024-26. This level
of service funds approximately $48 million in capital projects (net of grants) inflated to the year of
construction (2022-2041) and provides funding for up to 4.7 additional FTEs.
Exhibit 4: Level of Service 2: Rate Adjustments
I2023 1 2024 I 2 2026 2027 1 2028 2029 2030 1 2031
Monthly Rate / ISU $14.00 $18.34 $24.03 $31.47 $32.42 $33.39 $34.39 $35.42 $36.49
Change in $4.34 $5.69 $7.44 $0.95 $0.97 $1.00 $1.03 $1.07
Monthly Rate
Level of Service 3
Level of Service 3 requires monthly rate increases averaging $9.71 per year for 2024-26. This level
of service funds approximately $58 million in capital projects (net of grants) inflated to the year of
construction (2022-2041) and provides funding for up to 5.5 additional FTEs.
Exhibit 5: Level of Service 3: Rate Adjustments
I2023 I 2024 I 2025 1 2026 I 2027 I 2028 I 2029 I 2030 I 2031
Monthly Rate / ISU $14.00 $20.37 $29.64 $43.12 $44.42 $45.75 $47.12 $48.54 $49.99
Change in $6.37 $9.27 $13.48 $1.30 $1.33 $1.37 $1.42
Monthly Rate
Capital Facility Charge by Level of Service
The calculated stormwater capital facility charge varies by level of service. Each level of service
assumes a different amount of grants which are subtracted from the recoverable cost basis. The CFCs
by level of service, per impervious surface unit (ISU), are shown below. Per the City's municipal
code, one ISU is defined as one single-family residential account (including a mobile home) or 3,000
impervious square feet of ground cover for all other developed parcels.
• LOS 1: $2,469 per impervious surface unit
• LOS 2: $3,087 per impervious surface unit
• LOS 3: $3,914 per impervious surface unit
These charges reflect the maximum defensible CFC that the City Council could adopt, by level of
service. The Council could adopt, by policy, a CFC that is lower than the indicated amounts. Lastly,
the City should align its revenue requirement and CFC choices. For example, if the City Council
adopts a rate plan supporting the revenue requirement for level of service 1, it should not adopt a
CFC that aligns with level of service 2 or 3.
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City of Port Orchard Stormwater Utility Rate Study
December 2022 page 4
Section II. FISCAL POLICIES
The basic framework for evaluating utility revenue needs includes sound fiscal policies. Several
policy topics are important to consider further as part of managing the finances of the City, including
operating reserves, capital reserves, debt management, and rate funded capital. The City makes use of
four different funds / reserves: operating, stabilization, capital, and debt service.
When evaluating reserve levels and objectives, it is important to recognize that the value of reserves
lies in their potential use. A reserve strategy that deliberately avoids any use of reserves negates their
purpose. The fluctuation of reserve levels may indicate that the system is working, while the lack of
variation over many years strongly suggests that the reserves are, in fact, unnecessary.
Operating Reserve — Fund 421
An operating reserve is designed to provide a liquidity cushion; it protects the utility from the risk of
short-term variation in the timing of revenue collection or payment of expenses. Industry practice for
utility operating reserves typically ranges from 30 days (8%) to 120 days (33%) of operating
expenses, with the lower end more appropriate for utilities with stable revenue streams and the higher
end of the range more appropriate for utilities with significant seasonal or consumption -based
fluctuations.
Recommended Policy: Achieve a year-end balance target of 90 days (25%) of total annual operating
expenditures. This equates to $397,000 for the 2022 budget, $486,000 for the 2023 budget, and
$483,000 for the 2024 budget.
Capital Reserve — Fund 423
This reserve provides a source of emergency funding for unexpected asset failures or other
unanticipated capital needs. This capital reserve policy is not intended to guard against catastrophic
system failure or extreme acts of nature. Minimum balances for capital reserves are often based on a
percentage (commonly 1% to 2%) of the original cost of utility fixed assets or an amount determined
sufficient to fund an emergency capital project or equipment failure. Capital reserves larger than
these amounts may be prudent if the City is saving for future capital projects that cannot be funded
with same -year rate revenues.
Recommended Policy: Achieve a year-end target of at least 1 % of the original cost of fixed assets. In
2022, the City had over $16 million in stormwater assets plus construction in progress, which results in a
$160,000 capital reserve target. Capital reserves larger than this may be prudent if the City is saving in
advance for future capital projects. This target is projected to grow over time as the City executes its
capital improvement program.
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City of Port Orchard
December 2022
Adopted City Fiscal Policies
Stormwater Utility Rate Study
page 5
Per Resolution No. 053-20, the City's stormwater operating reserve (Fund 421) balance must be
sufficient to meet roughly two months of recurring revenue, with a goal to work towards a maximum
of three months of revenues. The City does not have an adopted policy regarding its capital reserve
(Fund 423).
Calculating a reserve based on revenue in the rate forecast model can create a circular type of
argument, so it was not modeled that way. As previously noted, operating reserves are typically
based on a certain number of days of operating expenditures. The American Water Works
Association (AWWA) published a 2018 Cash Reserve Policy Guidelines, and it cites recommended
reserve levels from the Water Environment Federation, International City/County Management
Association, and the Government Finance Officers Association, all of which reference a certain
number of days of operating expenses. Capital reserves are typically based on a percentage of fixed
assets or an amount sufficient to respond to an emergency capital project.
To make sure the rate plan in each level of service met the City's adopted policy, we tested the
combined operating reserve (90 days of operating expenses) plus the capital reserve (1% of fixed
assets) to ensure that it was equal to or greater than two months of revenues.
Stabilization Reserve — Fund 422
The City maintains stabilization reserves for each of its water, sewer, and stormwater utilities. Per
the City's adopted fiscal policies, this reserve "shall be used if all efforts have been exhausted to
fund a qualifying event and no reasonable budget adjustments are available to continue to provide
essential services to the public." The policy notes qualifying events as follows:
• The State of Washington or the Federal government formally declares a disaster or emergency.
• A natural or urgent event that jeopardizes public safety, impedes commerce, or threatens
additional damage to City infrastructure.
• Unforeseen events or situations outside of the scope of contingency planning or planned normal
course of government operations.
• An act of war, terrorism, or declaration of Martial law.
Recommended Policy: Per Resolution No. 053-20, the stabilization reserve should target having 90
days (25%) of annual expenditures. Per discussions with City staff, this reserve is fully funded through the
end of 2024. The forecast did not assume these funds were available for use, nor did the forecast add
any funds to this reserve throughout the study period.
0
Debt Management
The City currently has two outstanding stormwater utility -related loans. For the management of current as
well as potential future debt, some considerations are provided below.
Types of Debt Considered as Part of this Forecast
For utilities, there are two primary sources of debt financing: State or federal loan programs, and
market debt financing.
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City of Port Orchard
December 2022
Stormwater Utility Rate Study
page 6
State -Administered Loan Programs
State -administered loans (including federal loans administered by the State) are generally preferable
to market debt financing. The interest rate is generally lower for State loans, and the loan terms often
offer more flexibility in administering the debt. For instance, most State loan programs do not
include a requirement that the utility maintain a certain minimum level of debt service coverage.
Market Debt Financing
General Obligation Bonds
General Obligation (G.O.) bonds are voter -approved bonds secured by the full faith and credit of the
issuing agency, committing all available tax and revenue resources to debt repayment. With this high
level of commitment, G.O. bonds have relatively low interest rates. General Obligation taxing
authority can be sought as a backup pledge to reduce the interest rate of utility debt, even if the actual
source of repayment is intended to be utility rates. However, the use of G.O. bond financing is
limited in relation to assessed valuation, and G.O. bonds must be authorized by 60% of the voters.
For these reasons, G.O. bonds are not often used for utility capital projects.
Limited Tax General Obligation (LTGO) bonds can also be issued up to a statutory ceiling without a
vote of the people. In Washington, they are sometimes referred to as "councilmanic" bonds. Unlike
G.O. bonds, LTGO debt does not authorize additional property taxes; instead, it must be repaid
within the City's existing taxing authority. Usually there are competing demands for that funding
within a City, and for that reason, LTGO debt is not often used for utility capital projects either.
Revenue Bonds
Revenue bonds are secured by the revenues of the issuing utility; the debt obligation does not extend
to the City's other revenue sources. With this limited commitment, revenue bonds usually bear higher
interest rates than G.O. bonds. Revenue bonds typically require the achievement of minimum debt
service coverage each year. Revenue bonds can be issued in Washington without a public vote. There
is no limit, except the practical limit of the utility's ability to generate revenue to repay the debt and
meet debt service coverage each year.
Forecast Assumption: The forecast assumes that the City will issue revenue bonds when debt is
needed. While low-cost state loans are typically preferred, revenue bonds are conservatively assumed as
they require the forecast to cover higher interest rates and debt service coverage requirements. If the City
secures low-cost state loans, that will be a positive result that will not negatively impact the forecast, while
the inverse could have a negative impact on the forecast (relying on state loans but ultimately needing to
rely on revenue bonds instead which have higher interest and debt service coverage requirements).
Debt Service / Reserve — Fund 424
A debt reserve is most often required as a condition of bond issuance, though some state loan
programs also require a reserve. The reserve intends to protect bondholders (or the agency issuing
loans) from the risk of the borrower defaulting on their payments and is most often linked to either
average annual debt service or maximum annual debt service.
Recommended Policy: The policy should be dictated by terms outlined in contracts for debt obligations.
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City of Port Orchard
December 2022
Debt Service Coverage
Stormwater Utility Rate Study
page 7
Debt service coverage is typically a requirement associated with revenue bonds and some state loans,
and it is an important benchmark to measure the riskiness of the water utility's capital funding plans.
Coverage is most easily understood as a factor applied to annual debt service. In such a case, if it
issues revenue bonds, the utility agrees to collect enough revenue to meet operating expenses and not
only pay debt service but to collect an additional factor (often 25%) above bonded debt service. The
extra revenue is a "cushion" that makes bondholders more confident that debt service will be paid on
time.
JA
Recommended Policy: While a factor of 1.25 is a common legal minimum coverage requirement for
revenue bonds, we recommend a more conservative internal policy coverage target of at least 1.50 to
2.00 for revenue bond debt. We are not currently aware of any debt service coverage requirements
related to the City's existing stormwater-related loans.
Rate Funded System Reinvestment (Rate Funded Capital)
Rate funded system reinvestment is the funding of long-term infrastructure replacement needs
through a regular (annual) and predictable rate provision. Most commonly, utilities that have
addressed replacement funding needs have used historical (original cost) depreciation expense as the
basis for a reasonable level of reinvestment in the system. In other cases, utilities strive to rate fund
routine repair and replacement projects, saving debt for larger and / or more one-time type projects.
Recommended Policy: Set rates to fund a majority of routine repair and replacement projects with cash,
such as the City's Ongoing Conveyance System Improvement Program. This annual program is
expected to cost approximately $1,000,000 per year in 2022 dollars.
Summary of Fiscal Policies
Exhibit 6 provides a summary of the recommended fiscal policies for the City.
Exhibit 6: Summary of Fiscal Policies
Operating Reserve Achieve a year-end minimum balance target of 90 days (25%) of total annual
operating expenditures. This target increases as the City's operating costs increase.
Capital Reserve Achieve a year-end target of at least 1 % of the original cost of fixed assets.
Operating plus Capital Compare the combined operating plus capital targets against the City's adopted
policy of two to three months of recurring revenues.
Rate Funded Capital Strive to rate fund a majority of the City's ongoing Conveyance System Improvement
Program, which is estimated to be roughly $1,000,000 per year, plus inflation.
Debt Service Coverage While a factor of 1.25 is a common legal minimum coverage for revenue bonds,
achieve an internal policy coverage target of at least 1.50 to 2.00 when possible.
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City of Port Orchard Stormwater Utility Rate Study
December 2022 page 8
Section III. REVENUE REQUIREMENT
As previously mentioned, the main purpose of the revenue requirement analysis is to develop a
funding plan ("revenue requirement") for the 2022-2041 study period. For each level of service, the
revenue requirement identifies the total rate revenue needed to fully fund the utility on a standalone
basis considering current financial obligations including operating expenditures, existing debt
service, policy -driven commitments, and future capital project needs. Rate increases are applied
"across-the-board" — that is, it is assumed that each charge on the rate schedule increases by the same
percentage, which maintains the existing rate structure.
Economic & Inflation Factors
The operating and maintenance expenditure forecast largely relies on the City's 2022 -2024 budgets.
The line items in the budget are then adjusted each year by utilizing one of the following applicable
factors:
• General Cost Inflation. Assumed to be 3.0 percent per year based on both the Washington State
Economic & Revenue Forecast Council projection for the Consumer Price Index and the recent
historical performance of the Seattle -Tacoma -Bellevue Consumer Price Index.
• Construction Cost Inflation. Assumed to be 3.5 percent per year based on the Engineering News-
Record's Construction Cost Index (20-City Average).
• Taxes. State Business and Occupation tax rate of 1.75 percent (taxable revenue goes above the
$1.0 million threshold) and the City utility tax rate of 5.00 percent.
• Personnel Cost Inflation. Based on Employment Cost Indices (U.S. Bureau of Labor Statistics),
experience with other stormwater utilities, and discussions with City staff.
» Labor inflation: assumed to be 3.0 percent per year.
» Benefits inflation: assumed to be 5.0 percent per year.
• Cost per Additional Full -Time Equivalent (FTE). Each level of service incorporates additional staff.
Based on discussions with City staff, we assumed a "fully loaded" cost of $125,000 per FTE
(2022 $), which is assumed to include both wages and benefits.
• Fund Earnings. Assumed to be 2.25% percent per year based on recent earnings reports from the
State's Local Government Investment Pool (LGIP) at the time of the analysis.
• Customer Account Growth. City staff provided a detailed growth forecast for the 2023-2025
period, based on projects currently identified in the City's permitting pipeline. Based on that
forecast, City staff estimated that 300 impervious surface units would be added each year through
2025, and that 150 units per year would be added after that. This equates to annual growth rates
of approximately 2.75% per year through 2025 and 1.25% for each year thereafter.
Fund Balances
The 2022 starting cash balances associated with the stormwater utility funds are shown below in
Exhibit 7 and total $2.5 million.
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City of Port Orchard
December 2022
Exhibit 7: 2022 Beginning Fund Balances
Operating Reserve - 421 $2,116,000
Rate Stabilization Reserve - 422 - 343,001
Capital Reserve - 423 94,000
Debt Reserve - 424 0
Total $2,553,000
Staffing & Other Operational Funding Needs
Stormwater Utility Rate Study
page 9
According to the City's 2023 Comprehensive Plan, "City staff can address surface water and
stormwater problems that arise on a daily basis and troubleshoot specific issues that arise with
development project reviews. However, they are not fully able to perform activities that would enable
continual improvement of the City's surface water management program. Current staffing levels will
not be adequate to meet the rest of the requirements of the 2019-2024 Phase II Permit and long-term
goals defined as part of this Plan." The resulting staffing requirements and other funding needs (e.g.,
consultant support) are shown by level of service in Exhibits 8 and 9.
Additional Staffing Requirements
Herrera Environmental Consultants (Herrera) worked with City staff to identify the following
staffing requirements (above those that are included in the 2023 -24 budget). By 2029, LOS 1 would
require 1.7 additional full-time equivalents (FTEs), LOS 2 would require 4.7 additional FTEs, and
LOS 3 would require 5.5 additional FTEs.
Exhibit 8: Total Additional Staffing Needs by Level of Service
6
5
03 Lu
4 ,
�3
0
a
Q 2
1 1
0
2024 2025 2026
2027 2028 2029
■ LOS 1 LOS 2 ■ LOS 3
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City of Port Orchard Stormwater Utility Rate Study
December 2022 page 10
Other Operational Funding Needs
Herrera worked with City staff to identify other funding needs, primarily in the form of consultant
support to assist City staff in certain programmatic areas. These costs, shown in Exhibit 9, are in
addition to the City's adopted 2023-24 budget and are summarized below:
• LOS 1: Stormwater planning, climate change in capital projects support.
• LOS 2: LOS 1, plus public education & outreach for low impact development practices.
• LOS 3: LOS 2, plus climate change in private development projects support. The $100,000 bump
in 2028 is related to developing policy and standards for new and redevelopment projects to
design for more intense future precipitation.
Exhibit 9: Other Operational Funding Needs by Level of Service (2022 $)
$120,000
$100,000
z
c' $80.000
cu
Q $60,000
0
$40,000
o �
$20,000
a ■ oil ■■■ ■■I ■
$-
2024 2025 2026 2027 2028 2029
■ LOS 1 LOS 2 ■ LOS 3
Capital Expenditures
Herrera worked with City staff to develop three levels of service for the stormwater capital program,
each with varied timelines and grant assumptions, shown in Exhibit 10.
Exhibit 10: Capital Program Assumptions by Level of Service
Level of Service 1 Implementation of all projects
within 20 years
Level of Service 2 Implementation of all projects
within 20 years
Level of Service 3 Implementation of all projects
within 6 years
Maximum grant funding
(many projects would not proceed
without grants)
Moderate grant funding
(some projects would not proceed
without grants)
No grant funding assumed
Given these assumptions, Exhibit 11 shows the assumed level of annual capital expenditures, after
the assumed grants have been deducted.
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City of Port Orchard Stormwater Utility Rate Study
December 2022 page 11
Exhibit 11: Annual Capital Costs by Level of Service (Net of Assumed Grants) in 2022 $
$10,000,000
$9,000,000
$8,000,000
$7,000,000
$6,000,000
$5,000,000
$4,000,000
$3,000,000
$2,000,000 � � � � `� � i � � i ■
$1,000,000
o�� oti° off° o`ti`' oti° 0�1 0�° oti o,° ti o��
ti ti ti ti ti ti ti ti ti ti ti ti ti ti ti ti ti ti
■ LOS 1 ■ LOS 2 ■ LOS 3
Summary notes related to the capital plan are provided below for the three levels of service:
• Level of Service 1: The 2022-2041 CIP totals $25 million ($1.2 million per year) in 2022 dollars
and $36 million with forecasted inflation ($1.8 million per year).
• Level of Service 2: The 2022-2041 CIP totals $34 million ($1.7 million per year) in 2022 dollars
and $48 million with forecasted inflation ($2.4 million per year).
• Level of Service 3: The 2022-2041 CIP totals $45 million ($2.3 million per year) in 2022 dollars
and $58 million with forecasted inflation ($2.9 million per year).
Capital Funding Strategy
The 2022-2041 capital plan varies in funding sources as well as total capital. The latter is due to
changes in capital timing and associated inflation. A few observations are shown below:
• Rate funded capital ranges from $17.4 to $23.4 million in each level of service.
• Borrowing increases from $15 million in LOS 1 to $34 million in LOS 3.
• Assumed grants and other sources decrease from $28.6 million in LOS 1 to just $0.5 million in
LOS 3; it is assumed that the general fund contributes $0.5 million in each level of service for a
multi -purpose land acquisition budgeted for 2023.
• Total capital in LOS 3 is much less than LOS 1 or LOS 2 because most projects are assumed to
be completed in the next six years, which reduces the impact of inflation compared to a twenty-
year completion schedule.
Exhibit 12:
Capital Funding Strategy by Level of Service
Level of Service 1
Level of Service 2
Level of Service 3
Drawdown of Existing Reserves
$640,000
$530,000
$-
Rate Funded Capital
$19,900,000
$17,240,000
$23,350,000
Debt (Borrowing)
$15,300,000
$29,700,000
$33,800,000
Grants & General Fund
$28,550,000
$19,480,000
$500,000
Total
$64,390,000
$66,950,000
$57,650,000
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City of Port Orchard Stormwater Utility Rate Study
December 2022 page 12
Revenue Requirement for Level of Service 1
Exhibit 13 graphically represents the LOS 1 revenue requirement forecast through 2041. The stacked
columns represent the costs and obligations of the utility such as operating expenses and annual rate
spending for capital projects, while the lines represent utility revenues.
• Solid black line: Revenue at existing rates.
» Stormwater rate revenue is expected to be roughly $1.8 million in 2022 and is expected to
grow at a varying rate ranging from 1.2%-2.5% per year with customer growth.
• Dashed black line: Revenues with rate increases.
............................
» Rate revenue must increase to allow the utility to cover its financial obligations.
• I0 . - , = 2022-24 budgets plus inflation.
» Operating expenses are based on the adopted 2022-2024 budgets and increase with the annual
cost escalation assumptions previously discussed.
• � Additional FTEs and operating costs associated with each LOS.
» Level of Service 1 incorporates funding for 1.7 FTEs and the other operational needs
identified in Exhibit 9.
• - Existing debt service.
» The stormwater utility has two loans with annual debt service totaling $177,000 per year.
• W 0 Net debt service.
» Annual principal and interest resulting from this borrowing are expected to be $1.2 million
per year by 2041.
• - - .. Rate Funded Capital (i.e., cash available for capital).
» Rates cannot support annual rate funded capital until the first scheduled increase in 2024.
With rate increases, this amount is projected to increase to $1.4 million by 2041.
Exhibit 13: Level of Service 1: Annual Revenue Requirement Forecast 2022-2041
$12,000,000
Data label legend:
Increase 124-26 average monthly increase of $3.60
$10,000,000 Monthly Rate perlSU
$8,000,000 3% 3% 3% 3% 3% 3/ $36$38.64
.42 $37.52 $1.13
3% $34.33 $35.36 $1.06 $1.09
$6,000,000 3% 3% 3� $27/91 $28.75 $ 9.61 $0089 $092 $0.94 $1.00 $1.03 •
21 % $26.31 $27.10 $0.84 $0.86
21 % $24.80 $25.55 $0.77 $0.79 $0.81
$4,000,000 21% $20.So $4.30 $0.74 •
$16.94 $3.56 • -
$14.00 $14.00 $2.94 •
$2,000,000
� 0&M Expense
� New Debt Service
• • • Revenue with Increases
� LOS Additional Operating Existing Debt Service
� Rate Funded Capital Revenue @ 2022 Rates
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City of Port Orchard Stormwater Utility Rate Study
December 2022 page 13
Revenue Requirement for Level of Service 2
Exhibit 14 graphically represents the LOS 2 revenue requirement forecast through 2041.
• Solid black line: Revenue at existing rates.
» Stormwater rate revenue is expected to be roughly $1.8 million in 2022 and is expected to
grow at a varying rate ranging from 1.2%-2.5% per year with customer growth.
• Dashed black line: Revenues with rate increases.
............................
» Rate revenue must increase to allow the utility to cover its existing financial obligations
while also funding capital improvement projects. These rate increases start in 2024.
• I� . .. 2022-24 Budgets plus Inflation
» Operating expenses are based on the adopted 2022-2024 budgets and increase with the annual
cost escalation assumptions previously discussed.
• Green bar] Additional FTEs and Operating Costs from LOS.
» Level of Service 2 incorporates funding for 4.7 FTEs and the other operational needs
identified in Exhibit 9.
• - Existing debt service.
» The stormwater utility has two loans with annual debt service totaling $177,000 per year.
• - Net debt service.
» Annual principal and interest resulting from this borrowing are expected to be $2.4 million
per year by 2041.
• Rate Funded Capital (i.e., cash available for capital).
» Rates cannot support meaningful annual rate funded capital until 2025. With rate increases,
this amount is projected to increase to $1.2 million by 2041.
Exhibit 14: Level of Service 2: Annual Revenue Requirement Forecast 2022-2041
$12,000,000
Data label legend:
% Increase 2024-26 average monthly increase of $5.82
$10,000,000 Monthly Rate per ISU
3% 3%
3% 3% $47.61 $4.4 3
$8,000,000 3% 3% $44. 7 $16 5 $1.3: $1.43
° 3% $42.30 $43.57
3/0 $41.07 $1.27
3% 3% 3% 3% $39.87 $1.23 •
0 3% 3/0 $35.42 $36.49 $37.58 $38.71 $1.16 $1.20
$6,000,000 31% 3/° $33.o $34.39 $1.03 $1.06 $1.09
$32.42 $1.00
$31.47 $0.94 $0.97
31% $7.45 •
$4,000,000 31% $2.•
$18.34 $569 69
$4.34
$2,000,000 ,
2022 2023 2024 2025 2026 2027 2028 2029 2030 2031 2032 2033 2034 2035 2036 2037 2038 2039 2040 2041
� 0&M Expense � LOS Additional Operating � Existing Debt Service � New Debt Service
� Rate Funded Capital Revenue @ 2022 Rates - - - Revenue with Increases
���> FCS GRDUP www.fcsgroup.com
City of Port Orchard Stormwater Utility Rate Study
December 2022 page 14
Revenue Requirement for Level of Service 3
Exhibit 15 graphically represents the LOS 3 revenue requirement forecast through 2041.
• Solid black line: Revenue at existing rates.
» Stormwater rate revenue is expected to be roughly $1.8 million in 2022 and is expected to
grow at a varying rate ranging from 1.2%-2.5% per year with customer growth.
• Dashed black line: Revenues with rate increases.
............................
» Rate revenue must increase to allow the utility to cover its existing financial obligations
while also funding capital improvement projects. These rate increases start in 2024.
• 2022-24 Budgets plus Inflation
» Operating expenses are based on the adopted 2022-2024 budgets and increase with the annual
cost escalation assumptions previously discussed.
• Green bar] Additional FTEs and Operating Costs from LOS.
» Level of Service 3 incorporates funding for 5.5 FTEs and the other operational needs
identified in Exhibit 9.
• - Existing debt service.
» The stormwater utility has two loans with annual debt service totaling $177,000 per year.
• - Net debt service.
» Annual principal and interest resulting from this borrowing are expected to be $2.7 million
per year by 2041.
• Rate Funded Capital (i.e., cash available for capital).
» Rates cannot support meaningful annual rate funded capital until 2025. With rate increases,
this amount is projected to increase to $2.2 million by 2041.
Exhibit 15: Level of Service 3: Annual Revenue Requirement Forecast 2022-2041
$12,000,000 -
Data label legend: average2024-26 monthly ° o
% Increase increase of , 1.5% $58°� $5$ g8
Monthly Rate per ISU 0 1.5 , 1.5% 1.5% $57.15
$10,000,000 1.5/0 $55.47 $56.30 $0.84 $0.86 $0.87
0 1.5% 1.5% $53 84 $54.65
0 3.0% 3.0% $52.26 $53.05 $0.80 $0.81
3.0% 48 /o $49.99 $51.49
$8,000,000 0 3.0% $47.12 $1.41 $1.50
3.0% $45.75 $1.41 $1.46
45.5% $44.42 $1.33 •
$43.12 $1.29
$13.49 • �
$6,000,000 - 45.5%
$29.64
$9.27i
45.5%
$4,000,000
$6.37
$14.00 $14.00 ,
$2,000,000
2022 2023 2024 2025 2026 2027 2028 2029 2030 2031 2032 2033 2034 2035 2036 2037 2038 2039 2040 2041
� 0&M Expense LOS Additional Operating � Existing Debt Service � New Debt Service
� Rate Funded Capital Revenue @ 2022 Rates - - - Revenue with Increases
���� FCS GRDUP www.fcsgroup.com
City of Port Orchard Stormwater Utility Rate Study
December 2022 page 15
Section IV. CAPITAL FACILITY CHARGES
Introduction
Capital Facility Charges (CFCs) are one-time fees, paid at the time of development, intended to
recover a share of the cost of system capacity needed to serve growth. As part of the rate study, the
City tasked FCS GROUP with calculating a CFC for the City's stormwater utility. As noted
previously, some of the capital cost elements vary based on the level of service which results in a
unique CFC for each level of service. CFCs serve two primary purposes:
• to provide equity between existing and new customers; and
• to provide a source of funding for system capital costs, as growth occurs.
The CFC is an upfront charge imposed on growth and is primarily a charge on new development,
although also applicable to expansion or densification of development when such actions increase
requirements for utility system capacity. Charges imposed on redevelopment should be net of any
existing developed area on the site.
The City of Port Orchard has water and sewer CFCs but does not currently have a stormwater CFC.
This report documents the methodology and resulting CFC for the City's consideration.
Legal Basis
There are a variety of approaches that are used in the industry to establish a defensible capital facility
charge. The City is authorized to assess such charges under Section 35.92.025 of the Revised Code of
Washington (RCW). It is important that the City's methodology to determine cost -based CFCs is
consistent with RCW 35.92.025 and applicable case law. Additionally, under RCW 35.67.010,
"system of sewerage" is defined to include stormwater facilities.
RCW 35.92.025: "Cities and towns are authorized to charge property owners seeking to connect to the
water or sewerage system of the city or town as a condition to granting the right to so connect, in addition
to the cost of such connection, such reasonable connection charge as the legislative body of the city or
town shall determine proper in order that such property owners shall bear their equitable share of the cost
of such system."
RCW 35.92.025 is silent regarding specific methodology to be used in the charge calculation.
However, language contained in the Special District RCW 57.08.005 (11) does provide some
guidance regarding specific methodology. While this guidance does not legally apply to municipal
stormwater utilities, there are elements that help inform the methodology used for stormwater CFCs.
Since the calculated charges represent the maximum allowable charge, the City may choose to
implement a charge at any level up to the calculated charge.
Methodology
Exhibit 16 shows the recommended approach for the CFC calculation. Under this methodology, all
capital costs (existing assets and future projects net of provisions for retirement) are divided by the
estimated future customer base. This calculation is like a simple buy -in charge (which consists of
���> FCS GRDUP www.fcsgroup.com
City of Port Orchard Stormwater Utility Rate Study
December 2022 page 16
existing costs divided by existing customers), except that it is projected into a future year after the
planned capital projects are completed and after incorporating estimated customer growth. The
resulting CFC is generally stable over time. The main policy emphasis here is on intergenerational
equity — there is no cost advantage for either existing or new customers.
Exhibit 16: CFC Calculation Methodology
Capital Facility Charge
Existing Future
Cost Basis Cost Basis
Applicable System Capacity
(Customer Base)
The capital costs used in the CFC calculation can be separated into two major categories:
• Existing system costs: These costs represent the net investment in assets that currently provide
service to customers (and that presumably have some amount of capacity to serve growth).
• Future capital costs: These costs refer to capital improvement projects that the utility plans to
undertake within a period of time specified in the system planning documents. A provision for
capital retirement — a calculation to account for the original value of the assets any new capital
projects are repairing or replacing — is deducted from the total future capital projects.
The existing estimated system capacity is measured in impervious service units (ISUs).
Existing Cost Basis
The existing cost portion of the calculation is intended to recognize the current ratepayers' net
investment in the original cost of system assets. The main provisions of the calculation include the
following elements:
• Utility Plant -In -Service: The existing cost basis is comprised of the original cost of plant -in-
service, as documented in the fixed asset schedule of the stormwater utility.
» The City's records as of the end of 2021 identify $13.3 million in stormwater-related assets.
• Plus: Construction -Work -in -Progress: Projects that the City is currently constructing are eligible
to be included in the cost basis, similar to an existing asset.
» As of the end of 2021, the City had $3.0 million in construction -work -in -progress.
• Less: Contributed Capital: Assets funded by developers, grants, or from any agency other than
the City of Port Orchard are excluded from the cost basis on the premise that the CFC should
only recover costs actually incurred by City ratepayers.
» The City's records identified $5.0 million in stormwater grants and contributions in aid of
construction (developer donations) received by the utility.
• Plus: Interest on Non -Contributed Plant: The RCW and subsequent legal interpretations provide
such charges can include interest on an asset at the rate applicable at the time of construction.
Interest can accumulate for a maximum of ten years from the date of construction for any
particular asset. Conceptually, this interest provision attempts to account for the opportunity
���> FCS GRDUP www.fcsgroup.com
City of Port Orchard Stormwater Utility Rate Study
December 2022 page 17
costs that the City's customers incurred by supporting investments in infrastructure rather than
having it available for other needs.
» Accumulated interest on non -contributed assets adds approximately $2.4 million to the
existing cost basis.
• Less: Net Debt Principal Outstanding.: Another adjustment to the existing cost basis is to deduct
the net liability of outstanding utility debt, since that new customers will bear a proportionate
share of annual debt service through ongoing utility rates. Outstanding debt represents assets that
have been placed into service, but that today's ratepayers have not yet paid for.
» The City currently has two outstanding loans relating to its stormwater utility, with $1.8
million in debt principal outstanding. As of the beginning of 2022, however, beginning cash
balances total $2.5 million. Since cash balances exceed the outstanding debt, no deduction is
made from the cost basis as cash could theoretically be used to reduce the debt principal.
The sum of these elements results in a total existing cost basis of $13.6 million.
Exhibit 17: Stormwater Utility Existing Cost Basis
Utility Capital Assets
$13,264,328
Less: Contributed Capital
(5,010,051)
Plus: Interest on Non -Contributed Plant
2,353,859
Plus: Construction -Work -in -Progress
2,976,234
Less: Net Debt Principal Outstanding
-
Total Existing Cost Basis ■
13,584,371M
Future Cost Basis
The future cost basis is intended to recognize the ratepayers' net investment in the projects to be
completed in the future. The main elements of the calculation include the capital improvement plan,
and in some cases, offsetting grants. One additional adjustment to these numbers is a provision for
capital retirements, which is also discussed below. Exhibit 18 summarizes these elements for each
level of service. Each level of service has a unique future cost basis.
• Capital Improvement Plan: A utility capital improvement plan (CIP) includes projects that
address many needs, including system expansion, upgrades and the repair and replacement of
infrastructure. In some cases, a single CIP project can serve more than one of these purposes. The
City's CIP covers years 2022 through 2041 and project costs are in 2022 dollars.
Note: We do not escalate capital projects in a CFC for a couple of reasons. First, we do not know
with certainty when projects will be constructed or what inflation will be. Second, we prefer to
use the original cost in the calculation, and then the City can increase the charges with the
Engineering News -Record Construction Cost Index or another inflator to accomplish the same
thing with more accuracy.
���> FCS GRDUP www.fcsgroup.com
City of Port Orchard Stormwater Utility Rate Study
December 2022 page 18
• Less: Developer Contributions/Grants: Projects or portions of projects assumed to be funded by
grants may be excluded from the calculation. It is assumed that without the level of grant funding
noted, corresponding projects would not be executed.
» All levels of service include $500,000 in assistance from the general fund, as listed in the
City's 2023 budget. Our understanding is that this is a contribution from the general fund for
a portion of a multi -purpose property acquisition.
• Less: Provision for Capital Retirement: Many capital projects are replacing existing assets. To
avoid including the value of these projects twice — once in the existing assets and again in the
capital plan — a provision for capital retirement is used on projects or portions thereof that are
deemed repair and replacement (R&R). The provision for capital retirement determines the
approximate original cost of the asset the R&R project is replacing, using the useful life of the
new project and the historic ENR Construction Cost Index. The sum of the provision for capital
retirement calculations is then removed from the future capital project total. In simple terms, if a
retention pond expected to last 50 years is being installed in 2018 (and replacing an existing
pond), the provision for retirement determines how much that asset cost in 1968 and removes that
portion of the project cost from the calculation.
Exhibit 18: SWM Utility Future Project Costs Summary by LOS (2022 $)
• • • _ *
Total Citywide Projects
(uninflated, before grants) $44,150,628 $46,950,628 $45,010,628
Less: Assumed Grants (19,365,000) (13,250,000) -
Less: General Fund Contribution (500,000) (500,000) (500,000)
Less: Provision for Repair & (3,487,088) (3,797,339) (3,584,445)
Replacement
Total Future Cost Basis $20,798,540 $29,403,289 $40,926,183
Estimated Customer Base (System Capacity)
So far, the report has discussed the numerator in the CFC, with its two main components: the value
of existing assets and future capital costs. The denominator in the CFC calculation is the projected
number of impervious surface units, or ISUs. The same time horizon for both the capital
improvement plan and assumed customer growth is used in the CFC calculation — 2022 through
2041. This ensures that the numerator and the denominator cover the same period.
���> FCS GRDUP www.fcsgroup.com
City of Port Orchard
December 2022
Exhibit 19: Estimated Customer Base by 2041
0
Existing ISUs as of 8/2022
Estimated ISUs added from 8/2022 through 12/2022
Additional ISUs with Growth 2023-2041
Projected ISUs by 2041
CFC Results
Stormwater Utility Rate Study
page 19
10,376
250
3,300
AL6. 13,926
The following exhibit shows summary calculations for the City's stormwater CFC for each level of
service. Per the City's municipal code, one impervious surface unit (ISU) is defined as a single-
family residential account (including mobile homes) or 3,000 impervious square feet of ground cover
for all other developed parcels. It is assumed that the City would use the same definition when
administering a stormwater capital facility charge if a stormwater CFC were to be implemented.
Exhibit 20: CFC Calculation
Existing Cost Basis
Fut Cost Basis
Total Cost Basis
$13,584,371
$13,584,371
29,403,289
$13,584,371
40,926,183
54,510,554
Future System Capacity �ff 13,926 ISUs ' 13,926 ISUs 13,926 ISUs
Calculated Maximum CFC per IN I $2,469 $3,087 $3,914
As noted previously, these charges reflect the maximum defensible CFC by level of service. The
Council could adopt, by policy, a CFC that is lower than the indicated amounts and / or choose to
phase -in to a targeted level over a multi -year period.
�k6 20,798,540
34 283 911
42 987 660
•*;4 FCS GROUP www.fcsgroup.com
City of Port Orchard Stormwater Utility Rate Study
December 2022 page 20
Section V. SUMMARY
Exhibits 21, Exhibit 22, and Exhibit 23 detail the rate plans that support each defined level of
service. These increases allow the utility to accomplish the following:
• Fund existing and forecasted operating expenses, plus cost escalation;
• Cover existing and future debt service obligations;
• Allow the utility to fund $36 to $58 million in capital projects from 2022-2041, net of grants;
• Generate $1.4 to $2.2 million per year for rate -funded capital by 2041; and
• Maintain utility reserves at recommended levels throughout the forecast.
Exhibit 21: Level of Service 1: Rate Increases
2025 1 2026 1 2027 1 2028 1 2029
Monthly Rate I ISU $14.00 $16.94 $20.50 $24.80 $25.55 $26.31 $27.10 $27.91 $28.75
Change in
Monthly Rate $2.94 $3.56 $4.30 $0.75 $0.76 $0.79 $0.81 $0.84
Exhibit 22: Level of Service 2: Rate Adjustments
Monthly Rate I ISU $14.00 $18.34 $24.03 $31.47 $32.42 $33.39 $34.39 $35.42 $36.49
Change in $4.34 $5.69 $7.44 $0.95 $0.97 $1.00 $1.03 $1.07
Monthly Rate
Exhibit 23: Level of Service 3: Rate Adjustments
Monthly Rate I ISU $14.00 $20.37 $29.64 $43.12 $44.42 $45.75 $47.12 $48.54 $49.99
Change in $6.37 $9.27 $13.48 $1.30 $1.33 $1.37 $1.42 $1.45
Monthly Rate
Capital Facility Charge
The recommended maximum CFC is $2,469 per ISU for Level of Service 1, $3,087 for Level of
Service 2, and $3,914 for Level of Service 3. It is recommended that the CFC be revisited every few
years to ensure that the charge is keeping pace with the utility's capital investments and that the
adopted charge be indexed for inflation.
Single -Family Residential Rate Comparison
As a resource to the City and its customers, a rate survey of western Washington stormwater utilities
was performed. Exhibit 24 shows monthly single-family residential stormwater bills for a few
���> FCS GRDUP www.fcsgroup.com
City of Port Orchard
December 2022
Stormwater Utility Rate Study
page 21
neighboring jurisdictions. It also features Port Orchard's existing rate as well as potential rates for
each level of service in 2024.
Exhibit 24: Regional Jurisdictional Survey - Monthly Single Family Stormwater Rates
$35
$30 -
$ 2 5
ORCHARD $25.06
$20.36 $20.37 $20.88
Li $20 $17.54 $18.34
a' $15.67 $16.94 $17.00 $17.01
N $15 $12.65 $13.93 $14.00
T $10.80 $10.83 $12.08
o $10
$5
$0
Pierce Kitsap Pierce Pierce Pierce Port Gig Harbor Port Bainbridge Port Bremerton Port Gig Harbor Port Poulsbo Gig Harbor
County County County County County Orchard (Small) Orchard - Island Angeles Orchard - (Medium) Orchard - (2023) (Large)
(Base) (2023) (Base + (Base + (Base + LOS 1 (2023) LOS 2 LOS 3
(2023) Water River) WQ & (2024) (2024) (2024)
Quality) (2023) River)
(2023) (2023)
Exhibit 25 shows a wider range of jurisdictions from around western Washington in case that type of
comparison is helpful to the City or its customers.
Exhibit 25: Western Washington Jurisdictional Survey - Monthly Single Family Stormwater Rates
$35
$30
$25
$20.37
ca$20 $18.34
- $16.94
CM
$15 $14.00
T
L
O $10
$5
$0
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���> FCS GRDUP www.fcsgroup.com
City of Port Orchard Stormwater Utility Rate Study
December 2022 page 22
Single -Family Stormwater CFC Comparison
FCS GROUP also conducted a survey of western Washington stormwater CFCs. The three potential
CFCs of $2,469 for Level of Service 1, $3,087 for Level of Service 2, and $3,914 for Level of
Service 3 are on the higher end of charges in the area, but it is important to remember these are
simply legal maximums, not required charges. By policy, the City could adopt a charge at any
amount up to the calculated charge. Note that some cities, such as Bothell and Redmond, have basin -
specific charges that range from $6,000 to $15,000.
Exhibit 26: Western Washington Jurisdictional Survey — Single Family Stormwater CFC
Redmond
Poulsbo
Olympia
Issaquah Bothell -
Auburn Downtown
Redmond Downtown
Bothell overtake subbasin CFC adds $10,929
Bremerton
Gig Harbor
Sammamish
Renton
Des Moines (2023)
Port Orchard - LOS 1 $2,469
Kent
Mountlake Terrace
Port Orchard - LOS 2 $3,087
Kenmore
Port Orchard - LOS 3 $3,914
$0 $500 $1,000 $1,500 $2,000 $2,500 $3,000 $3,500 $4,000 $4,500
Updating This Study's Findings
It is recommended that the City revisit the study findings during the forecast period to check that the
assumptions used are still appropriate and no significant changes have occurred that would alter the
results of the study. The City should use the study findings as a living document, routinely
comparing the study outcomes to actual revenues and expenses. Any significant or unexpected
changes will require adjustments to the rate strategy proposed in this report.
���> FCS GRDUP www.fcsgroup.com
City of Port Orchard
December 2022
MODEL APPENDICES
Stormwater Utility Rate Study
page 23
•:;> FCS GROUP www.fcsgroup.com
Port Orchard
Utility Rate Study: Stormwater Utility
Summary
Level of Service 1
Rate Revenues Under Existing Rates $ 1,766,827 $ 1,816,709 $ 1,866,592 $ 1,916,474 $ 1,941,415 $ 1,966,356 $ 1,991,297 $ 2,016,238 $ 2,041,179 $ 2,066,120 $ 2,091,061 $ 2,116,003 $ 2,140,944 $ 2,165,885 $ 2,190,826 $ 2,215,767 $ 2,240,708 $ 2,265,649 $ 2,290,590 $ 2,315,531
Non -Rate Revenues 201,380 72,892 66,976 67,861 68,475 70,184 70,559 74,266 74,737 77,394 77,900 81,858 82,402 89,650 90,234 93,730 94,358 100,068 100,742 105,055
Total Revenues $ 1,968,207 $ 1,889,601 $ 1,933,567 $ 1,984,334 $ 2,009,890 $ 2,036,540 $ 2,061,856 $ 2,090,504 $ 2,115,917 $ 2,143,514 $ 2,168,962 $ 2,197,860 $ 2,223,345 $ 2,255,535 $ 2,281,060 $ 2,309,497 $ 2,335,066 $ 2,365,717 $ 2,391,332 $ 2,420,586
Expenses
Cash Operating Expenses
$ 1,610,383 $ 1,974,677 $ 1,957,605 $ 2,041,830 $ 2,218,577
$ 2,245,086
$ 2,318,786
$ 2,395,059
$ 2,474,002
$ 2,555,716
$ 2,640,307
$ 2,727,883
$ 2,818,558
$ 2,912,450
$ 3,009,683
$ 3,110,383 $ 3,214,685 $ 3,322,726 $ 3,434,652 $ 3,550,611
Existing Debt Service
177,047 177,877 176,883 177,604 178,251
177,075
177,612
178,077
178,468
177,036
189,615
16,525
16,525
16,525
16,525
8,263 - - - -
New Debt Service
24,088
24,088
168,615
168,615
264,966
264,966
417,522
417,522
714,606
714,606
843,074
843,074 1,067,894 1,067,894 1,228,479 1,228,479
Total Expenses
$ 1,787,429 $ 2,152,554 $ 2,134,488 $ 2,219,434 $ 2,420,916
$ 2,446,249
$ 2,665,013
$ 2,741,750
$ 2,917,436
$ 2,997,718
$ 3,247,444
$ 3,161,931
$ 3,549,689
$ 3,643,581
$ 3,869,282
$ 3,961,720 $ 4,282,579 $ 4,390,620 $ 4,663,131 $ 4,779,090
Net Surplus (Deficiency)
$
180,778
$ (262,953) $
(200,921) $
(235,099) $
(411,026) $
(409,710) $
(603,158) $
(651,247) $
(801,519) $
(854,204)
$
(1,078,482) $
(964,070)
$ (1,326,343) $
(1,388,046)
$ (1,588,222)
$ (1,652,222)
$ (1,947,512)
$ (2,024,903)
$ (2,271,798)
$ (2,358,504)
Additions to Meet Coverage
(45,169)
(72,770)
(65,918)
(141,254)
(122,588)
(176,114)
(157,428)
Total Surplus (Deficiency)
$
180,778
$ (262,953) $
(200,921) $
(235,099) $
(411,026) $
(409,710) $
(603,158) $
(651,247) $
(801,519) $
(854,204)
$
(1,078,482) $
(964,070)
$ (1,371,513) $
(1,388,046)
$ (1,660,992)
$ (1,718,141)
$ (2,088,766)
$ (2,147,491)
$ (2,447,913)
$ (2,515,932)
...............................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................
Annual Rate Increase
0.00 %
21.00 %
21.00 %
21.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00
Cumulative Rate Increase
...............................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................
0.00 %
21.00 %
46.41 %
77.16 %
82.47 %
87.94 %
93.58 %
99.39 %
105.37 %
111.53 %
117.88 %
124.42 %
131.15 %
138.08 %
145.23 %
152.58 %
160.16 %
167.96 %
176.00
Revenues After Rate Increases
$
1,766,827
$ 1,816,709 $
2,258,576 $
2,805,909 $
3,439,335 $
3,588,025 $
3,742,541 $
3,903,099 $
4,069,923 $
4,243,242
$
4,423,299 $
4,610,339
$ 4,804,621 $
5,006,411
$ 5,215,984
$ 5,433,625
$ 5,659,630
$ 5,894,306
$ 6,137,969
$ 6,390,946
Additional Taxes from Rate Increase
26,459
60,037
101,110
109,463
118,209
127,363
136,940
146,956
157,426
168,368
179,798
191,736
204,198
217,205
230,777
244,934
259,698
275,090
Net Cash Flow After Rate Increase
$
180,778
$ (262,953) $
164,604 $
594,299 $
985,785 $
1,102,497 $
1,029,878 $
1,108,252 $
1,090,284 $
1,175,963
$
1,096,329 $
1,361,899
$ 1,157,536 $
1,260,744
$ 1,232,738
$ 1,348,430
$ 1,240,633
$ 1,358,819
$ 1,315,882
$ 1,441,820
Coverage After Rate Increase: Bonded Debt
n/a
n/a
n/a
n/a
54.16
59.32
8.77
9.39
6.20
6.59
4.35
4.61
2.81
3.04
2.63
2.77
2.28
2.41
2.18
2.30
Coverage After Rate Increase: Total Debt
2.03
0.22
2.57
4.96
6.45
7.10
4.27
4.56
3.70
3.95
2.99
4.43
2.74
2.97
2.58
2.74
2.28
2.41
2.18
2.30
Sample Residential Bill (1 ISU)
$14.00
$14.00
$16.94
$20.50
$24.80
$25.55
$26.31
$27.10
$27.91
$28.75
$29.61
$30.50
$31.42
$32.36
$33.33
$34.33
$35.36
$36.42
$37.52
$38.64
Increase ($)
$0.00
$2.94
$3.56
$4.30
$0.74
$0.77
$0.79
$0.81
$0.84
$0.86
$0.89
$0.92
$0.94
$0.97
$1.00
$1.03
$1.06
$1.09
$1.13
Operating Reserve -421
Beginning Balance
$ 2,116,332
$ 706,309
$ 443,357
$ 482,697
$ 509,989
$ 561,850
$ 578,514
$ 598,746
$ 619,710
$ 641,433
$ 663,943
$ 687,270
$ 711,446
$ 736,502
$ 762,472
$ 789,391
$ 817,294
$ 846,220
$ 876,206
$ 907,295
plus: Net Cash Flow after Rate Increase
180,778
(262,953)
164,604
594,299
985,785
1,102,497
1,029,878
1,108,252
1,090,284
1,175,963
1,096,329
1,361,899
1,157,536
1,260,744
1,232,738
1,348,430
1,240,633
1,358,819
1,315,882
1,441,820
less: Transfer of Surplus to Capital Fund
(1,400,000)
(125,264)
(567,007)
(933,924)
(1,085,833)
(1,009,646)
(1,087,288)
(1,068,561)
(1,153,452)
(1,073,002)
(1,337,723)
(1,132,480)
(1,234,774)
(1,205,819)
(1,320,527)
(1,211,707)
(1,328,832)
(1,284,793)
(1,409,587)
less: Transfer to Stabilization Fund
(190,800)
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
Ending Balance
$ 706,309
$ 443,357
$ 482,697
$ 509,989
$ 561,850
$ 578,514
$ 598,746
$ 619,710
$ 641,433
$ 663,943
$ 687,270
$ 711,446
$ 736,502
$ 762,472
$ 789,391
$ 817,294
$ 846,220
$ 876,206
$ 907,295
$ 939,528
Actual Days of O&M
160 days
82 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
Minimum Balance Requirement
$ 264,720
$ 324,605
$ 321,798
$ 339,993
$ 374,567
$ 385,676
$ 399,164
$ 413,140
$ 427,622
$ 442,628
$ 458,180
$ 474,297
$ 491,001
$ 508,315
$ 526,261
$ 544,863
$ 564,146
$ 584,138
$ 604,863
$ 626,352
Maximum Balance Requirement
$ 397,081
$ 486,907
$ 482,697
$ 509,989
$ 561,850
$ 578,514
$ 598,746
$ 619,710
$ 641,433
$ 663,943
$ 687,270
$ 711,446
$ 736,502
$ 762,472
$ 789,391
$ 817,294
$ 846,220
$ 876,206
$ 907,295
$ 939,528
Capital Reserve - 423
Beginning Balance
$ 94,014
$ 1,488,130
$ 872,113
$ 615,290
$ 863,525
$ 1,198,860
$ 102,570
$ 1,193,566
$ 263,157
$ 1,056,229
$ 291,318
$ 978,651
$ 440,433
$ 3,318,433
$ 530,307
$ 1,146,633
$ 608,192
$ 1,382,360
$ 732,259
$ 1,507,343
plus: Transfers from Operating Fund
1,400,000
-
125,264
567,007
933,924
1,085,833
1,009,646
1,087,288
1,068,561
1,153,452
1,073,002
1,337,723
1,132,480
1,234,774
1,205,819
1,320,527
1,211,707
1,328,832
1,284,793
1,409,587
plus: Transfers From General Fund
-
500,000
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
plus: Assumed Capital Grants
-
883,761
665,231
2,409,798
356,306
1,106,330
2,385,524
493,803
511,087
2,644,873
1,021,979
1,057,748
5,911,754
1,359,703
628,256
4,551,713
502,509
1,560,291
plus: CFC Revenue
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
plus: Revenue Bond Proceeds
-
-
-
-
300,000
-
1,800,000
-
1,200,000
-
1,900,000
-
3,700,000
-
1,600,000
-
2,800,000
-
2,000,000
-
plus: Interest Earnings
2,115
33,483
19,623
13,844
19,429
26,974
2,308
26,855
5,921
23,765
6,555
22,020
9,910
74,665
11,932
25,799
13,684
31,103
16,476
33,915
Total Funding Sources
$ 1,496,130
$ 2,021,613
$ 1,900,760
$ 1,861,371
$ 4,526,677
$ 2,667,973
$ 4,020,854
$ 4,693,233
$ 3,031,443
$ 2,744,533
$ 5,915,747
$ 3,360,372
$ 6,340,570
$ 10,539,625
$ 4,707,761
$ 3,121,215
$ 9,185,297
$ 3,244,805
$ 5,593,819
$ 2,950,845
less: Capital Expenditures (Before Grants)
(8,000)
(1,149,500)
(1,285,470)
(997,846)
(3,327,817)
(2,565,402)
(2,827,287)
(4,430,076)
(1,975,214)
(2,453,215)
(4,937,096)
(2,919,939)
(3,022,137)
(10,009,319)
(3,561,128)
(2,513,023)
(7,802,937)
(2,512,546)
(4,086,476)
(2,095,526)
Ending Capital Fund Balance
$ 1,488,130
$ 872,113
$ 615,290
$ 863,525
$ 1,198,860
$ 102,570
$ 1,193,566
$ 263,157
$ 1,056,229
$ 291,318
$ 978,651
$ 440,433
$ 3,318,433
$ 530,307
$ 1,146,633
$ 608,192
$ 1,382,360
$ 732,259
$ 1,507,343
$ 855,318
Minimum Target Balance
$ 132,723
$ 144,218
$ 148,235
$ 151,562
$ 160,742
$ 182,833
$ 200,042
$ 220,488
$ 235,302
$ 254,723
$ 277,645
$ 296,625
$ 316,269
$ 357,245
$ 379,259
$ 398,106
$ 430,619
$ 450,719
$ 475,981
$ 496,936
Combined Beginning Balance
$ 2,210,346
$ 2,194,439
$ 1,315,470
$ 1,097,987
$ 1,373,514
$ 1,760,710
$ 681,085
$ 1,792,313
$ 882,867
$ 1,697,662
$ 955,261
$ 1,665,921
$ 1,151,879
$ 4,054,935
$ 1,292,779
$ 1,936,024
$ 1,425,486
$ 2,228,580
$ 1,608,465
$ 2,414,638
Combined Ending Balance
$ 2,194,439
$ 1,315,470
$ 1,097,987
$ 1,373,514
$ 1,760,710
$ 681,085
$ 1,792,313
$ 882,867
$ 1,697,662
$ 955,261
$ 1,665,921
$ 1,151,879
$ 4,054,935
$ 1,292,779
$ 1,936,024
$ 1,425,486
$ 2,228,580
$ 1,608,465
$ 2,414,638
$ 1,794,847
Ending Total Days of Operating Expenditures
497 days
243 days
202 days
239 days
277 days
106 days
268 days
128 days
237 days
129 days
217 days
145 days
494 days
152 days
220 days
156 days
236 days
165 days
239 days
171 days
Combined Minimum Target Balance
397,444
468,823
470,033
491,554
535,308
568,509
599,206
633,628
662,924
697,352
735,826
770,922
807,270
865,559
905,519
942,969
994,765
1,034,857
1,080,844
1,123,288
PREPARED BY FCS GROUP Port Orchard Stormwater Rate Study v32
425-867-1802 Summary - Page 1 of 1 12/14/2022
Port Orchard
Utility Rate Study: Stormwater Utility
Summary
Level of Service 2
Rate Revenues Under Existing Rates $ 1,766,827 $ 1,816,709 $ 1,866,592 $ 1,916,474 $ 1,941,415 $ 1,966,356 $ 1,991,297 $ 2,016,238 $ 2,041,179 $ 2,066,120 $ 2,091,061 $ 2,116,003 $ 2,140,944 $ 2,165,885 $ 2,190,826 $ 2,215,767 $ 2,240,708 $ 2,265,649 $ 2,290,590 $ 2,315,531
Non -Rate Revenues 201,380 72,892 66,976 71,854 76,234 84,666 85,304 89,504 90,084 95,925 96,548 99,543 100,212 111,746 112,465 117,908 118,681 128,514 129,345 135,625
Total Revenues $ 1,968,207 $ 1,889,601 $ 1,933,567 $ 1,988,328 $ 2,017,649 $ 2,051,021 $ 2,076,601 $ 2,105,742 $ 2,131,263 $ 2,162,045 $ 2,187,610 $ 2,215,545 $ 2,241,156 $ 2,277,631 $ 2,303,291 $ 2,333,675 $ 2,359,389 $ 2,394,164 $ 2,419,935 $ 2,451,157
Expenses
Cash Operating Expenses
$ 1,610,383 $ 1,974,677 $ 2,079,445
$ 2,385,850
$ 2,614,565
$ 2,658,705
$ 2,785,932
$ 2,879,022
$ 2,975,388
$ 3,075,152
$ 3,178,443
$ 3,285,391
$ 3,396,137
$ 3,510,822
$ 3,629,596
$ 3,752,613 $ 3,880,035 $ 4,012,029 $ 4,148,769 $ 4,290,437
Existing Debt Service
177,047 177,877 176,883
177,604
178,251
177,075
177,612
178,077
178,468
177,036
189,615
16,525
16,525
16,525
16,525
8,263 - - - -
New Debt Service
256,937
256,937
562,049
562,049
714,606
714,606
947,455
947,455
1,051,835
1,051,835
1,533,592
1,533,592
1,742,353
1,742,353 2,143,817 2,143,817 2,384,695 2,384,695
Total Expenses
$ 1,787,429 $ 2,152,554 $ 2,513,265
$ 2,820,391
$ 3,354,865
$ 3,397,829
$ 3,678,150
$ 3,771,704
$ 4,101,310
$ 4,199,643
$ 4,419,892
$ 4,353,752
$ 4,946,254
$ 5,060,939
$ 5,388,474
$ 5,503,229 $ 6,023,852 $ 6,155,846 $ 6,533,464 $ 6,675,132
Net Surplus (Deficiency)
$
180,778
$ (262,953) $
(579,698) $
(832,063)
$ (1,337,216)
$ (1,346,808)
$ (1,601,549)
$ (1,665,963)
$ (1,970,047)
$ (2,037,597)
$
(2,232,283)
$ (2,138,207)
$ (2,705,098)
$ (2,783,308)
$ (3,085,183)
$ (3,169,554)
$ (3,664,463)
$ (3,761,682)
$ (4,113,529)
$ (4,223,975)
Additions to Meet Coverage
(110,588)
(248,804)
(141,863)
(295,871)
(279,605)
(407,182)
(379,925)
(462,461)
(438,203)
Total Surplus (Deficiency)
$
180,778
$ (262,953) $
(579,698) $
(832,063)
$ (1,337,216)
$ (1,346,808)
$ (1,601,549)
$ (1,665,963)
$ (1,970,047)
$ (2,037,597)
$
(2,232,283)
$ (2,248,795)
$ (2,953,902)
$ (2,925,171)
$ (3,381,053)
$ (3,449,159)
$ (4,071,645)
$ (4,141,608)
$ (4,575,990)
$ (4,662,179)
...............................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................
Annual Rate Increase
0.00 %
31.00 %
31.00 %
31.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00 %
3.00
Cumulative Rate Increase
...............................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................
0.00 %
31.00 %
71.61 %
124.81 %
131.55 %
138.50 %
145.65 %
153.02 %
160.62 %
168.43 %
176.49 %
184.78 %
193.32 %
202.12 %
211.19 %
220.52 %
230.14 %
240.04 %
250.25
Revenues After Rate Increases
$
1,766,827
$ 1,816,709 $
2,445,235 $
3,288,861
$ 4,364,477
$ 4,553,164
$ 4,749,243
$ 4,952,989
$ 5,164,686
$ 5,384,627
$
5,613,116
$ 5,850,469
$ 6,097,010
$ 6,353,079
$ 6,619,024
$ 6,895,209
$ 7,182,007
$ 7,479,808
$ 7,789,013
$ 8,110,039
Additional Taxes from Rate Increase
39,058
92,636
163,557
174,610
186,161
198,231
210,837
223,999
237,739
252,076
267,034
282,636
298,903
315,862
333,538
351,956
371,144
391,129
Net Cash Flow After Rate Increase
$
180,778
$ (262,953) $
(40,113) $
447,688
$ 922,290
$ 1,065,391
$ 970,235
$ 1,072,558
$ 942,623
$ 1,056,910
$
1,052,033
$ 1,344,183
$ 983,934
$ 1,121,250
$ 1,044,112
$ 1,194,026
$ 943,299
$ 1,100,521
$ 1,013,750
$ 1,179,403
Coverage After Rate Increase: Bonded Debt
n/a
n/a
1.97
3.94
3.14
3.47
2.75
2.92
2.30
2.44
2.29
2.42
1.73
1.89
1.68
1.77
1.50
1.59
1.48
1.56
Coverage After Rate Increase: Total Debt
2.03
0.22
1.17
2.33
2.38
2.64
2.20
2.33
1.93
2.05
1.94
2.39
1.71
1.87
1.66
1.77
1.50
1.59
1.48
1.56
Sample Residential Bill (1 ISU)
$14.00
$14.00
$18.34
$24.03
$31.47
$32.42
$33.39
$34.39
$35.42
$36.49
$37.58
$38.71
$39.87
$41.07
$42.30
$43.57
$44.87
$46.22
$47.61
$49.03
Increase ($)
$0.00
$4.34
$5.69
$7.45
$0.94
$0.97
$1.00
$1.03
$1.06
$1.09
$1.13
$1.16
$1.20
$1.23
$1.27
$1.31
$1.35
$1.39
$1.43
Operating Reserve -421
Beginning Balance
$ 2,116,332
$ 706,309
$ 443,357
$ 403,244
$ 597,923
$ 667,529
$ 695,900
$ 729,997
$ 755,799
$ 782,536
$ 810,244
$ 838,958
$ 868,717
$ 899,559
$ 931,526
$ 964,660
$ 999,004
$ 1,034,605
$ 1,071,510
$ 1,109,768
plus: Net Cash Flow after Rate Increase
180,778
(262,953)
(40,113)
447,688
922,290
1,065,391
970,235
1,072,558
942,623
1,056,910
1,052,033
1,344,183
983,934
1,121,250
1,044,112
1,194,026
943,299
1,100,521
1,013,750
1,179,403
less: Transfer of Surplus to Capital Fund
(1,400,000)
(253,009)
(852,684)
(1,037,019)
(936,139)
(1,046,756)
(915,886)
(1,029,202)
(1,023,319)
(1,314,424)
(953,092)
(1,089,283)
(1,010,979)
(1,159,682)
(907,698)
(1,063,616)
(975,492)
(1,139,740)
less: Transfer to Stabilization Fund
(190,800)
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
Ending Balance
$ 706,309
$ 443,357
$ 403,244
$ 597,923
$ 667,529
$ 695,900
$ 729,997
$ 755,799
$ 782,536
$ 810,244
$ 838,958
$ 868,717
$ 899,559
$ 931,526
$ 964,660
$ 999,004
$ 1,034,605
$ 1,071,510
$ 1,109,768
$ 1,149,431
Actual Days of O&M
160 days
82 days
71 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
Minimum Balance Requirement
$ 264,720
$ 324,605
$ 341,826
$ 398,615
$ 445,019
$ 463,933
$ 486,664
$ 503,866
$ 521,691
$ 540,163
$ 559,306
$ 579,145
$ 599,706
$ 621,017
$ 643,107
$ 666,003
$ 689,737
$ 714,340
$ 739,845
$ 766,287
Maximum Balance Requirement
$ 397,081
$ 486,907
$ 512,740
$ 597,923
$ 667,529
$ 695,900
$ 729,997
$ 755,799
$ 782,536
$ 810,244
$ 838,958
$ 868,717
$ 899,559
$ 931,526
$ 964,660
$ 999,004
$ 1,034,605
$ 1,071,510
$ 1,109,768
$ 1,149,431
Capital Reserve - 423
Beginning Balance
$ 94,014
$ 1,488,130
$ 872,113
$ 1,510,083
$ 133,992
$ 2,056,291
$ 229,746
$ 796,932
$ 271,269
$ 1,130,438
$ 413,309
$ 1,335,328
$ 489,843
$ 5,187,353
$ 606,715
$ 1,641,433
$ 743,861
$ 1,899,834
$ 852,586
$ 1,875,278
plus: Transfers from Operating Fund
1,400,000
-
-
253,009
852,684
1,037,019
936,139
1,046,756
915,886
1,029,202
1,023,319
1,314,424
953,092
1,089,283
1,010,979
1,159,682
907,698
1,063,616
975,492
1,139,740
plus: Transfers From General Fund
-
500,000
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
plus: Assumed Capital Grants
-
589,174
443,487
1,606,532
1,722,145
1,044,867
318,070
1,646,011
729,985
755,534
4,222,681
971,217
418,837
3,034,476
358,935
1,114,494
plus: CFC Revenue
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
plus: Revenue Bond Proceeds
-
-
3,200,000
-
3,800,000
-
1,900,000
-
2,900,000
-
1,300,000
-
6,000,000
-
2,600,000
-
5,000,000
-
3,000,000
-
plus: Interest Earnings
2,115
33,483
19,623
33,977
3,015
46,267
5,169
17,931
6,104
25,435
9,299
30,045
11,021
116,715
13,651
36,932
16,737
42,746
19,183
42,194
Total Funding Sources
$ 1,496,130
$ 2,021,613
$ 4,680,909
$ 2,240,556
$ 6,396,223
$ 4,861,722
$ 4,115,921
$ 2,179,688
$ 5,739,270
$ 2,185,075
$ 2,745,927
$ 3,409,782
$ 8,209,490
$ 10,616,033
$ 5,202,561
$ 3,256,884
$ 9,702,771
$ 3,365,132
$ 5,961,755
$ 3,057,212
less: Capital Expenditures (Before Grants)
(8,000)
(1,149,500)
(3,170,826)
(2,106,564)
(4,339,932)
(4,631,977)
(3,318,989)
(1,908,419)
(4,608,832)
(1,771,767)
(1,410,599)
(2,919,939)
(3,022,137)
(10,009,319)
(3,561,128)
(2,513,023)
(7,802,937)
(2,512,546)
(4,086,476)
(2,095,526)
Ending Capital Fund Balance
$ 1,488,130
$ 872,113
$ 1,510,083
$ 133,992
$ 2,056,291
$ 229,746
$ 796,932
$ 271,269
$ 1,130,438
$ 413,309
$ 1,335,328
$ 489,843
$ 5,187,353
$ 606,715
$ 1,641,433
$ 743,861
$ 1,899,834
$ 852,586
$ 1,875,278
$ 961,686
Minimum Target Balance
$ 132,723
$ 144,218
$ 170,035
$ 186,666
$ 214,000
$ 243,098
$ 265,839
$ 281,743
$ 311,371
$ 329,088
$ 343,194
$ 365,094
$ 387,760
$ 445,626
$ 471,526
$ 492,467
$ 540,152
$ 561,688
$ 591,408
$ 612,363
Combined Beginning Balance
$ 2,210,346
$ 2,194,439
$ 1,315,470
$ 1,913,327
$ 731,915
$ 2,723,820
$ 925,646
$ 1,526,928
$ 1,027,068
$ 1,912,974
$ 1,223,553
$ 2,174,286
$ 1,358,560
$ 6,086,912
$ 1,538,241
$ 2,606,093
$ 1,742,865
$ 2,934,439
$ 1,924,096
$ 2,985,046
Combined Ending Balance
$ 2,194,439
$ 1,315,470
$ 1,913,327
$ 731,915
$ 2,723,820
$ 925,646
$ 1,526,928
$ 1,027,068
$ 1,912,974
$ 1,223,553
$ 2,174,286
$ 1,358,560
$ 6,086,912
$ 1,538,241
$ 2,606,093
$ 1,742,865
$ 2,934,439
$ 1,924,096
$ 2,985,046
$ 2,111,116
Ending Total Days of Operating Expenditures
497 days
243 days
330 days
108 days
358 days
119 days
188 days
122 days
219 days
135 days
232 days
140 days
607 days
148 days
242 days
156 days
254 days
161 days
241 days
165 days
Combined Minimum Target Balance
397,444
468,823
511,861
585,281
659,019
707,031
752,504
785,608
833,062
869,251
90Z500
944,239
987,466
1,066,644
1,114,632
1,158,470
1,229,889
1,276,028
1,331,253
1,378,650
PREPARED BY FCS GROUP Port Orchard Stormwater Rate Study v32
425-867-1802 Summary - Page 1 of 1 12/14/2022
Port Orchard
Utility Rate Study: Stormwater Utility
Summary
Level of Service 3
Rate Revenues Under Existing Rates $ 1,766,827 $ 1,816,709 $ 1,866,592 $ 1,916,474 $ 1,941,415 $ 1,966,356 $ 1,991,297 $ 2,016,238 $ 2,041,179 $ 2,066,120 $ 2,091,061 $ 2,116,003 $ 2,140,944 $ 2,165,885 $ 2,190,826 $ 2,215,767 $ 2,240,708 $ 2,265,649 $ 2,290,590 $ 2,315,531
Non -Rate Revenues 201,380 72,892 66,976 76,023 82,864 119,173 120,132 134,666 134,636 136,737 137,417 138,482 139,212 139,925 140,663 141,426 142,215 143,032 143,877 144,752
Total Revenues $ 1,968,207 $ 1,889,601 $ 1,933,567 $ 1,992,497 $ 2,024,279 $ 2,085,529 $ 2,111,429 $ 2,150,904 $ 2,175,816 $ 2,202,858 $ 2,228,478 $ 2,254,485 $ 2,280,156 $ 2,305,810 $ 2,331,488 $ 2,357,192 $ 2,382,923 $ 2,408,681 $ 2,434,467 $ 2,460,283
Expenses
Cash Operating Expenses
$ 1,610,383 $ 1,974,677 $ 2,146,526
$ 2,455,346
$ 2,725,819
$ 2,770,589
$ 3,029,991
$ 3,008,164
$ 3,109,179
$ 3,213,759
$ 3,322,039
$ 3,434,158
$ 3,550,259
$ 3,670,492
$ 3,795,014
$ 3,923,987 $ 4,057,578 $ 4,195,964 $ 4,339,325 $ 4,487,853
Existing Debt Service
177,047 177,877 176,883
177,604
178,251
177,075
177,612
178,077
178,468
177,036
189,615
16,525
16,525
16,525
16,525
8,263 - - - -
New Debt Service
529,932
529,932
2,055,495
2,055,495
2,633,603
2,633,603
2,697,837
2,697,837
2,713,895
2,713,895
2,713,895
2,713,895
2,713,895
2,713,895 2,713,895 2,713,895 2,713,895 2,713,895
Total Expenses
$ 1,787,429 $ 2,152,554 $ 2,853,341
$ 3,162,882
$ 4,959,565
$ 5,003,159
$ 5,841,206
$ 5,819,843
$ 5,985,483
$ 6,088,632
$ 6,225,549
$ 6,164,578
$ 6,280,679
$ 6,400,913
$ 6,525,435
$ 6,646,144 $ 6,771,473 $ 6,909,859 $ 7,053,221 $ 7,201,748
Net Surplus (Deficiency)
$
180,778
$ (262,953) $
(919,774)
$ (1,170,385)
$ (2,935,286)
$ (2,917,630)
$ (3,729,777)
$ (3,668,938)
$ (3,809,667)
$ (3,885,774)
$ (3,997,071)
$ (3,910,094)
$ (4,000,523)
$ (4,095,103)
$ (4,193,946)
$ (4,288,952)
$ (4,388,550)
$ (4,501,178)
$ (4,618,753)
$ (4,741,465)
Additions to Meet Coverage
(234,568)
(27,737)
(372,042)
(356,472)
(381,437)
(373,694)
(370,751)
(542,673)
(541,336)
(539,218)
(536,382)
(541,112)
(544,988)
(539,774)
(538,391)
(532,933)
Total Surplus (Deficiency)
$
180,778
$ (262,953) $
(919,774)
$ (1,170,385)
$ (3,169,854)
$ (2,945,367)
$ (4,101,819)
$ (4,025,410)
$ (4,191,104)
$ (4,259,468)
$ (4,367,822)
$ (4,452,766)
$ (4,541,859)
$ (4,634,321)
$ (4,730,328)
$ (4,830,064)
$ (4,933,538)
$ (5,040,951)
$ (5,157,145)
$ (5,274,398)
...............................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................
Annual Rate Increase
0.00%
45.50%
45.50%
45.50%
3.00%
3.00%
3.00%
3.00%
3.00%
3.00%
1.50%
1.50%
1.50%
1.50%
1.50%
1.50%
1.50%
1.50%
1.50%
Cumulative Rate Increase
...............................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................
0.00%
45.50%
111.70%
208.03%
217.27%
226.79%
236.59%
246.69%
257.09%
267.80%
273.32%
278.92%
284.60%
290.37%
296.23%
302.17%
308.20%
314.32%
320.54%
Revenues After Rate Increases
$
1,766,827
$ 1,816,709 $
2,715,891
$ 4,057,223
$ 5,980,085
$ 6,238,617
$ 6,507,280
$ 6,786,447
$ 7,076,508
$ 7,377,865
$ 7,690,935
$ 7,899,408
$ 8,112,405
$ 8,330,015
$ 8,552,328
$ 8,779,436
$ 9,011,433
$ 9,248,414
$ 9,490,478
$ 9,737,722
Additional Taxes from Rate Increase
57,328
144,501
272,610
288,378
304,829
321,989
339,885
358,543
377,991
390,380
403,074
416,079
429,401
443,048
457,024
471,337
485,992
500,998
Net Cash Flow After Rate Increase
$
180,778
$ (262,953) $
(127,803)
$ 825,864
$ 830,774
$ 1,066,254
$ 481,377
$ 779,282
$ 885,777
$ 1,067,428
$ 1,224,811
$ 1,482,932
$ 1,567,865
$ 1,652,949
$ 1,738,155
$ 1,831,670
$ 1,925,151
$ 2,010,251
$ 2,095,142
$ 2,179,728
Coverage After Rate Increase: Bonded Debt
n/a
n/a
1.31
3.24
1.54
1.76
1.29
1.41
1.44
1.51
1.56
1.60
1.63
1.66
1.69
1.73
1.76
1.79
1.82
1.86
Coverage After Rate Increase: Total Debt
2.03
0.22
0.98
2.43
1.42
1.62
1.21
1.32
1.35
1.41
1.46
1.59
1.62
1.65
1.68
1.72
1.76
1.79
1.82
1.86
Sample Residential Bill (1 ISU)
$14.00
$14.00
$20.37
$29.64
$43.12
$44.42
$45.75
$47.12
$48.54
$49.99
$51.49
$52.26
$53.05
$53.84
$54.65
$55.47
$56.30
$57.15
$58.01
$58.88
Increase ($)
$0.00
$6.37
$9.27
$13.49
$1.29
$1.33
$1.37
$1.41
$1.46
$1.50
$0.77
$0.78
$0.80
$0.81
$0.82
$0.83
$0.84
$0.86
$0.87
Operating Reserve -421
Beginning Balance
$ 2,116,332
$ 706,309
$ 443,357
$ 315,554
$ 619,563
$ 707,750
$ 750,378
$ 818,228
$ 816,902
$ 846,041
$ 876,241
$ 907,541
$ 939,982
$ 971,664
$ 1,004,441
$ 1,038,352
$ 1,073,438
$ 1,109,743
$ 1,147,312
$ 1,186,191
plus: Net Cash Flow after Rate Increase
180,778
(262,953)
(127,803)
825,864
830,774
1,066,254
481,377
779,282
885,777
1,067,428
1,224,811
1,482,932
1,567,865
1,652,949
1,738,155
1,831,670
1,925,151
2,010,251
2,095,142
2,179,728
less: Transfer of Surplus to Capital Fund
(1,400,000)
(521,855)
(742,587)
(1,023,626)
(413,527)
(780,607)
(856,638)
(1,037,228)
(1,193,511)
(1,450,491)
(1,536,182)
(1,620,172)
(1,704,244)
(1,796,583)
(1,888,846)
(1,972,682)
(2,056,263)
(2,139,491)
less: Transfer to Stabilization Fund
(190,800)
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
Ending Balance
$ 706,309
$ 443,357
$ 315,554
$ 619,563
$ 707,750
$ 750,378
$ 818,228
$ 816,902
$ 846,041
$ 876,241
$ 907,541
$ 939,982
$ 971,664
$ 1,004,441
$ 1,038,352
$ 1,073,438
$ 1,109,743
$ 1,147,312
$ 1,186,191
$ 1,226,428
Actual Days of O&M
160 days
82 days
54 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
90 days
Minimum Balance Requirement
$ 264,720
$ 324,605
$ 352,854
$ 413,042
$ 471,833
$ 500,252
$ 545,485
$ 544,602
$ 564,028
$ 584,161
$ 605,027
$ 626,655
$ 647,776
$ 669,627
$ 692,234
$ 715,625
$ 739,829
$ 764,875
$ 790,794
$ 817,618
Maximum Balance Requirement
$ 397,081
$ 486,907
$ 529,280
$ 619,563
$ 707,750
$ 750,378
$ 818,228
$ 816,902
$ 846,041
$ 876,241
$ 907,541
$ 939,982
$ 971,664
$ 1,004,441
$ 1,038,352
$ 1,073,438
$ 1,109,743
$ 1,147,312
$ 1,186,191
$ 1,226,428
Capital Reserve - 423
Beginning Balance
$ 94,014
$ 1,488,130
$ 872,113
$ 3,956,693
$ 177,050
$ 9,366,409
$ 408,055
$ 1,024,008
$ 555,376
$ 907,701
$ 602,456
$ 598,923
$ 602,920
$ 641,599
$ 712,251
$ 813,826
$ 953,372
$ 1,129,682
$ 1,135,692
$ 1,322,869
plus: Transfers from Operating Fund
1,400,000
-
-
521,855
742,587
1,023,626
413,527
780,607
856,638
1,037,228
1,193,511
1,450,491
1,536,182
1,620,172
1,704,244
1,796,583
1,888,846
1,972,682
2,056,263
2,139,491
plus: Transfers From General Fund
-
500,000
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
-
plus: Assumed Capital Grants
plus: CFC Revenue
-
-
-
-
-
plus: Revenue Bond Proceeds
-
-
6,600,000
-
19,000,000
-
7,200,000
-
800,000
-
200,000
-
-
-
-
-
-
-
-
-
plus: Interest Earnings
2,115
33,483
19,623
89,026
3,984
210,744
9,181
23,040
12,496
20,423
13,555
13,476
13,566
14,436
16,026
18,311
21,451
25,418
25,553
29,765
Total Funding Sources
$ 1,496,130
$ 2,021,613
$ 7,491,735
$ 4,567,573
$19,923,621
$10,600,779
$ 8,030,764
$ 1,827,656
$ 2,224,510
$ 1,965,353
$ 2,009,522
$ 2,062,890
$ 2,152,668
$ 2,276,207
$ 2,432,521
$ 2,628,720
$ 2,863,668
$ 3,127,782
$ 3,217,508
$ 3,492,124
less: Capital Expenditures (Before Grants)
(8,000)
(1,149,500)
(3,535,043)
(4,390,523)
(10,557,212)
(10,192,724)
(7,006,755)
(1,272,279)
(1,316,809)
(1,362,897)
(1,410,599)
(1,459,970)
(1,511,069)
(1,563,956)
(1,618,695)
(1,675,349)
(1,733,986)
(1,992,090)
(1,894,639)
(1,960,951)
Ending Capital Fund Balance
$ 1,488,130
$ 872,113
$ 3,956,693
$ 177,050
$ 9,366,409
$ 408,055
$ 1,024,008
$ 555,376
$ 907,701
$ 602,456
$ 598,923
$ 602,920
$ 641,599
$ 712,251
$ 813,826
$ 953,372
$ 1,129,682
$ 1,135,692
$ 1,322,869
$ 1,531,173
Minimum Target Balance
$ 132,723
$ 144,218
$ 179,569
$ 223,474
$ 329,046
$ 430,973
$ 501,041
$ 513,764
$ 526,932
$ 540,561
$ 554,667
$ 569,266
$ 584,377
$ 600,017
$ 616,204
$ 632,957
$ 650,297
$ 670,218
$ 689,164
$ 708,774
Combined Beginning Balance
$ 2,210,346
$ 2,194,439
$ 1,315,470
$ 4,272,247
$ 796,614
$10,074,159
$ 1,158,433
$ 1,842,236
$ 1,372,279
$ 1,753,743
$ 1,478,696
$ 1,506,464
$ 1,542,902
$ 1,613,264
$ 1,716,692
$ 1,852,178
$ 2,026,810
$ 2,239,425
$ 2,283,004
$ 2,509,060
Combined Ending Balance
$ 2,194,439
$ 1,315,470
$ 4,272,247
$ 796,614
$10,074,159
$ 1,158,433
$ 1,842,236
$ 1,372,279
$ 1,753,743
$ 1,478,696
$ 1,506,464
$ 1,542,902
$ 1,613,264
$ 1,716,692
$ 1,852,178
$ 2,026,810
$ 2,239,425
$ 2,283,004
$ 2,509,060
$ 2,757,600
Ending Total Days of Operating Expenditures
497 days
243 days
708 days
112 days
1,226 days
138 days
202 days
150 days
186 days
151 days
149 days
147 days
149 days
153 days
160 days
169 days
181 days
179 days
190 days
202 days
Combined Minimum Target Balance
397,444
468,823
532,422
636,516
800,879
931,225
1,046,526
1,058,365
1,090,959
1,124,721
1,159,694
1,195,921
1,232,153
1,269,644
1,308,438
1,348,582
1,390,126
1,435,092
1,479,958
1,526,392
PREPARED BY FCS GROUP Port Orchard Stormwater Rate Study v32
425-867-1802 Summary - Page 1 of 1 12/14/2022
December 2022
t,i HERRERA
City of Port Orchard Stormwater and Watersheds Comprehensive Plan