DRAFT Chapter 7 - Utilities REDLINEChapter 7: Utilities
Chapter 7. Utilities
7.1. Introduction
This Utilities Element of the 2016.2024 Comprehensive Plan Periodic Update provides direction
and guidance, based on consultant research and analysis in collaboration with City staff, to
improve and maintain the City's existing utility system and develop additional utility
infrastructure and capacity to meet the City's growth needs. This Element is based on 2015
2023 data, facilities, population and projected growth patterns,
with the -a planning horizon projected to 20362044.
Utilities Vision
Develop and maintain public and
private utilities to meet the needs of a
growing population and a 21s' century
economy. Services are efficiently
provided and available to the entire
community. Utilities are sited, designed
and operated in a manner that is
consistent with surrounding land uses
and maintains community character.
The state Growth Management Act (GMA)
requires that comprehensive plans include a
utilities element that indicates the general
location of existing facilities, the proposed
location of future facilities, and capacity of all
existing and proposed utilities. The GMA also
requires that public utilities shall be adequate to
serve development at the time the development
is available for occupancy and use, without
decreasing current service levels below locally -
established minimum standards.
Over the
next tweRty 20 years, the City expects that utilities will need to be provided to approximately
24,00026,087 residents of the incorporated City and urban growth area (UGA). Public and
private utility providers must plan for the necessary infrastructure to rehabilitate aging
systems, respond to growth, and adapt the changing technology and consumer behavior.
Although the City does not control non -City managed utilities, such as water within the City of
Bremerton's water services area, water and sewer in West Sound Utility District's service area,
telecommunications, natural gas and electrical service, it does regulate how Vie -non -City
owned utilities are developed and managed within Port Orchard.
The Utilities Element, in conjunction with the City's functional plans for water, sewer and
storm water management, is the guiding or strategy document that the City will use to achieve
its goals of providing utilities at the appropriate levels of service to the City's existing and
future residents and businesses. The Utilities Element serves as a policy guide for general
maintenance and improvement of the utility system, and the City's functional plans include
more detailed inventory and analysis, and specific recommendations for utility maintenance,
improvement and future development. The City's regulatory and non -regulatory decisions and
programs, as well as budget decisions related to utilities, should be consistent with this
Element and with the City's functional plans.
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Additionally, this element works in tandem with the Land Use Element and the Capital Facilities
Element to ensure that Port Orchard will have adequate utilities available for projected
growth, concurrent with the impacts of growth and development. Policies in this Element also
address environmental impacts, facilities sitting and construction, economics, and design
aesthetics.
7.2. City -Managed Utilities
Sewer
The City of Port Orchard owns, operates and maintains wastewater collection and conveyance
facilities serving portions of the City that deliver wastewater to the South Kitsap Water
Reclamation Facility (SKWRF). The City has an interlocal agreement for wastewater treatment
with the West Sound Utility District (WSUD), which operates the SKWRF.
There are approximately 70 miles of sewer lines within Port Orchard's sewer utility ranging from
2 to 24 inches in diameter. These lines include approximately 49 miles of gravity sewers, 8 miles
of force mains, and 14 miles of septic tank effluent pumping (STEP) mains. There are 3-6-17pump
stations within the system. The City also maintains a telemetry system to monitor the operating
conditions of system components.
The City's current service area is approximately 2,100 acres, with a population of about
1 1xr55v17,480. Over the next twePA-y-20 years, the City's sewer service area is expected to grow to
approximately 5,700 acres to serve the estimated population of about 24,00026,087.
Water
The City provides drinking water within portions of the city limits and selected adjacent areas
within its retail service area, supplied primarily by six active wells. There are two interties with the
City of Bremerton's water system and an emergency intertie with the WSUD. Eight reservoirs
provide 4.8 million gallons of storage. There are three booster pump stations, and over 300,000
feet of pipe ranging from 4 to 18 inches in diameter.
Other water suppliers within the City include Berry Lake Manors, which serves a 30-unit mobile
home park, the City of Bremerton serves areas north of Old Clifton Road in the western parts of
Port Orchard, and the WSUD, which serves selected areas on the eastern boundary of the City
awl -aye -outside the City water service area.
Stormwater
The City manages stormwater conveyance facilities that collect runeff, andrunoff and provides
treatment and discharge in accordance with federal and state requirements for water quality
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protection.
As detailed in the City's 2023 Stormwater and Watersheds Comprehensive Plan, much of
the City's stormwater system discharges to Sinclair Inlet through a system of more than 50 outfalls
along the waterfront that vary from 4-2-5 to 24 inches in diameter. The piped and ditched portions
of the system are primarily within the older, more commercial areas of the city, while the outlying,
more residential areas are largely composed of the remaining elements of the region's original
natural drainage system (i.e., lakes, streams and wetlands) and are supported by a widely
distributed system of culverts, ditches, pipes and ponds.
7.3. Non -City Managed Utilities
The Washington Utilities and Transportation Commission (WUTC) regulates the services and
defines the costs that a utility can recover, to ensure that the utility acts prudently and
responsibly. Under the GMA, both the WUTC and the City of Port Orchard have jurisdiction
over the activities of electric, gas and telephone utilities within the City. The City has the
authority to regulate land use and, under the GMA, the requirement to consider the locations
of existing and proposed utilities and potential utility corridors in land use planning and
permit decisions.
The Telecommunications Act of 1996 established the role and responsibilities of the Federal
Communications Commission in licensing wireless communication providers. The licenses
allow the right to use a block or blocks of the radio frequency spectrum to provide wireless
services. The Act recognizes the authority of state and local governments over decisions
regarding siting of wireless communication facilities, subject to certain limitations.
SPWPr
Residents within the City that are outside of the City's sewer service area are served by the West
Sound Utility District (WSUD).
Water
A small portion of the City is served by the West Sound Utility District (formerly known as
Annapolis Water District), whose service area lies east of Port Orchard and includes portions of
the City's eastern potential annexation, or urban growth area. An interlocal agreement is in place
to ensure coordination and compatibility with the Citv's water service.
The City's 260 Pressure Zone water supply is augmented during high demand or emergency
conditions through an intertie with the City of Bremerton.
Solid Waste and Recycling
Solid waste and recyclable materials collection is contracted to Waste Management
Northwest.
Electrical Service
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Puget Sound Energy (PSE) builds, operates and maintains the electrical system serving Port
Orchard.
Natural Gas Service
Cascade Natural Gas builds, operates and maintains the natural gas distribution system that
serves Port Orchard. Cascade Natural Gas has indicated that their service area covers all of
the City and its UGA.
Telecommunications
Telecommunications is the transmission of information in the form of electronic signals or
similar means. Telecommunications services generally include the following categories:
• Landline telephone. Lumin C^k provides landline telephone service to Port
Orchard.
Wireless communications (cell towers or antennae). A variety of cellular
communication and wireless data services are available in Port Orchard (Verizon,
Sprint, etc). Currently, these services rely on ground -based antennae located on
towers or buildings.
Cable television and broadband internet. There are several providers that serve Port
Orchard, such as Wave Broadband, LuminC^k, KPUD and DIRECTV.
7.4. Existing Conditions
Asset Management
In 2024, the City of Port Orchard will begin the initial implementation of a comprehensive Asset
Management Program (AMP) to enhance utility infrastructure longevity. Through rigorous
assessments, the city will develop a strategic plan prioritizing preventive maintenance, capital
improvements, and replacements. Asset management software and staff training will improve
predictive maintenance. This program implementation will assist in providing a resilient and
sustainable future. ensuring utilitv infrastructure would endure and efficiently serve the Rrowin�
community.
Sewer
The condition and capacity of the City's wastewater collection system, including gravity sewer
lines, force mains, and lift stations, was analyzed by the City's consultant in 2015association
with the General Sewer Plan's September 2020 Amendment. The conveyance system was
analyzed using the InfoSWMM computer modeling platform. This hydraulic model simulated
the performance of the major collection system components, including all pump stations and
the major sewer mains within the City's collection system. The model General Sewer Plan
identifies inelicated—minor capacity issues under existing flow conditions at the P'A-=vve-r
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ivicaavvv$pump station, and iii the -sravicy6cvdcr in M6Eermi6c I.Veedi.r give -Swirl areas
throughout the City which will be addressed through implementation of the Capital
Improvement Program (CIP).
^',,.,,.s*eRS With maintenance s*^f{The General Sewer Plan' pidentifies some necessary
upgrades at Bay Street p-Lift Station Replacement; the ongoing -Marina Pump Station,
and Tremont Place Diversion and Golden Pond Lift Station Upgrade.; nn,.r.,,-.,- iCk WE)Ods #,
Purnp Station, McCormick Woods #2 Purnp Statien., Eagle GFest Pup.9p StatffiGR,;-;RF-I.A..Ih-p-.Ft--r,-RF�S
Pump Station. Additional new facilities, including South Sidney Lift Station, and Sidney Second
Force Main have been identified to provide adequate capacity in the City's wastewater system as
future development occurs. These improvements are included in the General Sewer Plan's 6-
year Capital Improvements f`4&R—Program (CIP) and are described in more detail in the
adopted �5 General Sewer Plan Update.
Water
The City's water supply and distribution system is examined on a regular basis, as required by
State and Federal requirements. The euFFent `^'^tar System Plan wh„-h ; �City's
adopted Water System Plan, indicates that the water system capably meets the City's
domestic drinking water requirements, although capacity analysis will remain an ongoing
effort as the City continues to see additional development activities.. Water supply needs is
reliant -met through en mbi'A; ti^^ ^f h^thutilizin City wells, and than low pressuFe
intertie with the City of Bremerton water supply. There is an emergency intertie with the City
of Bremerton to the 260 pressure zone that can be activated in the event of an emergency.
The City has drilled additional wells and is pursuing water rights through the Foster Pilot
Project for future demand. Additional wells veill' -he nesessaFy feF the City to bee-A-f
Feliant, whieh would Vhe higher cost Bremerton supply to be used on a standby basis.
The analysis also determined that continued treatment of current and future well supplies
will be required, primarily for disinfection and removal of naturally occurring compounds.
Larger size pipelines will be needed both to replace existing and aging water mains, primarily
in older sections of the City, and to improve the flow of water during projected fire events.
Port Orchard purchases water from Bremerton through a 16-inch transmission main. A recent
Interlocal Agreement (November 2019) includes selling assets like the 580 Zone tank to
Bremerton. Bremerton will supply 750 gpm until Port Orchard meets specified conditions,
allowing both systems to operate independently.
Port Orchard, part of a pilot protect under Section 301 of ESSB 6091, is demonstrating water
resource mitigation sequencing per RCW 90.94.090. To update aging wells, the City has
applied for water right changes and new water rights for Wells 12 and 13, targeting a deep
sub -sea level aquifer to minimize impacts on local streams. The Foster Pilot Mitigation
oroiects aim to mitieate water resource impacts within the citv's service area.
Stormwater
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The City is required to comply with the National Pollutant Discharge Elimination System
(NPDES) Phase II Municipal Permit, which is a federal Environmental Protection Agency permit
program administered by the State Department of Ecology (Ecology). As part of compliance
measures, the City is required to develop and administer a stormwater management program
that reduces discharge of both point source and nonpoint source pollution carried by
stormwater. One requirement of this program is that byjay 1z201:7, the City must �tis
the adoption of the minimum stormwater design standards of --outlined by the Washington
State Department of Ecology's 2-012—Stormwater Management Manual for Western
Washington SWMMWW), and apply these standards to all new permit applicationsApd to
approved prejeas that have started construction by january ,, 2017. The 2012
SWMMWWalSO equiresmaintains the required use of Best Management Practices to reduce
pollutant discharges and encourages low -impact development measures that minimize
creation of impervious surfaces and disturbance of native vegetation and soils. Additionally,
the SWMMWW provides guidance for development project review to ensure that water
quality standards are maintained during construction and operation phases of development
proposals, and that receiving waters are protected from adverse impacts of stormwater.
In order to comply with the NPDES Phase II Municipal Permit requirements and implement
stormwater quality goals, the City has developed and adopted the 2023 Stormwater
Management Program Plan and the 2023 Port Orchard Stormwater and Watersheds
Comprehensive Plan. In addition to NPDES Phase II Municipal Permit compliance, these policy
documents address the City's goals for flooding and water quality concerns, infrastructure
maintenance and management, outline the resources needed to implement the goals of each
Plan, and establish a capital improvement list to identify major infrastructure upgrades and
required funding.
Per maRy Historically, the Sinclair/Dyes Inlet water bodies have had reduced water
quality, partially due to longstanding discharges of industrial, agricultural and septic system
discharges within the contributing watersheds. The City is required to monitor water quality
for fecal coliform bacteria and respond to any illicit discharges, including accidental spills,
illegal connections, and illegal dumping into the storm sewer system, with the long-term goal
of eliminating these discharges and improving the overall health of these inlets of Puget
Sound.
7.5 Relationship to Centers
In accordance with VISION 2040 2050 and the Countywide Planning Policies, several centers
have been established within the City. Local ECenters serve important roles as sub -regional
hubs and secondary concentrations of development, with a dense mix of housing and
services such as stores, medical offices, and libraries. Additional information regarding
centers locations throuehout the Citv. and specific eoals and policies for those centers. are
contained in Chapter 2: Land Use of this Comprehensive Plan.
One purpose of centers is to enable the City to deliver services more cost -efficiently and
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equitably, within a development pattern that is environmentally and economically sound.
Through subarea planning, the City will designate desired development types, locations and
patterns within each Center. Provision of utilities and improvements to utility services
within Centers should be a City priority.
7.6 Future Needs
Sewer
Future needs for the City's sewer collection system primarily arise from a need to address
deficiencies that have been identified in the City's existing wastewater system, generally
due to aging and insufficient capacity. If not corrected, these deficiencies will be
exacerbated as the City continues to grow. In addition, future needs include the provision
of the needed infrastructure to accommodate future growth.
In the near -term future (0-6 years), the focus of the CIP for the sewer collection system is
the replacement and/or retrofitting of key components for several pump stations. Long-
term improvements (7-20 years) will be required for conveyance pipelines throughout the
City, including the McCormick Woods Drive SW, Bay Street and Port Orchard Boulevard
gravity sewer lines. These issues are discussed in the City's sewer plan in greater detail.
Table 7-1, which was prepared by the City's consultant, provides an overview of the near -
term future improvements.
Water
The primary challenge for future water service in the City of Port Orchard is meeting the needs
of future development while maintaining sufficient yield from its permitted ground water
supply. Both short and long term needs of the City regarding water utility services are
primarily oriented around the ability to withdraw, treat, and supply water to the increasing
development pressures the City faces. The initial planning and analysis efforts have identified
a series of projects that will be required to maintain and strengthen the performance of the
City's water supply system. To improve the water supply system reliability, the City intends
to develop additional well supply(ies) to provide sufficient capacity for the City to become
self-sufficient, thus using the Bremerton intertie as a standby/emergency source of drinking
water rather than a continuous source of water supply. New pipelines will also be installed to
improve the system's capability to move water throughout the system. In addition, new
storage reservoir(s)will be needed to optimize system performance and provide water to
meet operational and {iFgfirefi�htin� capacity requirements. Providing an intertie
between the City's existing upper water pressure zone (660pz/580pz) and the existing lower
water pressure zone (390pz/260pz) will also enhance system redundancy, improving overall
service and reliability.
Beyond 2025, additional water rights may be required, however, the City will want to keep
detailed water use records and monitor peaking rates. With reductions in water use due to
conservation, type of development changes, or lifestyle changes, it is possible that the
existing system could support future development without additional improvements.
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However, :there are multiple projects requiFed—proKrammed in the near -term future, as
shown ;n Table 7-2detailed in the Capital Facilities element.
Stormwater
The City's CIP identifies 14 capital projects for stormwater that are intended to address
localized flooding, stabilize stream bank erosion, protect habitat and water quality, resolve
conveyance capacity issues, and protect public and private roads and other infrastructure
from flood damage. A new stormwater decant facility for processing and disposal of material
removed from the City's catch basins during maintenance is also included.
These planned improvements and priority rankings are accurate at the time of issuance of
this plan, but may be revised as facility conditions and other situations change.
Non -city utility providers will experience increased demand for services as the City grows, and
will need to plan for new or improved facilities. As new technologies for Internet, wireless
telephone, and other telecommunications systems are implemented, these improvements
will further the City's goal of economic growth and competitiveness. Through its land use
regulation and permitting authority, the City should ensure that these utilities are broadly
available to residents and businesses throughout the City, and that there are not excessive
visual impacts within existing neighborhoods and local centers.
7.5. Goals and Policies
Goal 1. Ensure utilities are provided in a timely manner to meet
the needs of Port Orchard's future population.
Policy UT-1 Facilitate planning for utility improvements by providing utility purveyors with
population and employment projections on a regular basis.
Policy UT-2 Improvements and additions to utility facilities shall be planned and
constructed so that utility services are sufficient to serve anticipated growth.
Policy UT-3 Encourage the designation and development of utility corridors and facilities
in a manner consistent with the needs and resources of the City.
Policy UT-4 Coordinate provision of utilities with future development by designating
appropriate sites for utility facilities and ensuring their availability and
consider future annexations in developing coordinated strategies for
supplying future utilities to the &yCity.
Policy UT-5 Coordinate provision of utility services with planned development by
improving mechanisms to process development permits and approvals in a
fair and timely manner.
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Policy UT-6 Consider impacts and timing of future phases of development when
permitting large utility projects.
Policy UT-7 Ensure that development regulations allow timely development of utility facility
additions and improvements.
Policy UT-8 The City s";;" +,"",;"Establish capacity and levels of service for City
managed utilities.
Policy UT-9 The City shall not allow for the extension of municipal utilities outside City limits,
except within, or transmission to serve Urban Growth Boundaries, except
extensions in t#e';e specific circumstances that are necessary to protect public
health and safety, aPA--the environment, and when they are financially
supportable at rural densities aiq4-that do not permit urban development.
Policy UT-10 The City shall prieritizePrioritizethe provision of utilities and improvements to
existing utilities within designated centers importance. Ensure utility services
are provided in an efficient,-an-d--coordinated, and comprehensive manner.
Policy UT-11 City decisions regarding utility corridors and facilities should consider regional
utility needs as well as City interests.
Policy UT-12 Enhance efficiency of planning for utilities by facilitating coordination
between the City of Port Orchard, City of Bremerton, WSUD, WUTC and
utilities regulated by the WUTC during development of comprehensive utility
plans.
Policy UT-13 Coordinate collection, integration and maintenance of Geographic
Information System (GIS) utility data among utility providers to ensure
consistent and up-to-date information on facility locations and capacities.
Policy UT-14 Enhance efficiency by coordinating the implementation of utility facility
additions and improvements affecting multiple jurisdictions.
Policy UT-15 Coordinate land use, transportation and utility planning and development.
Policy UT-16 Ensure that utility policies and regulations are consistent with, and complementary
to, utility public service obligations.
Policy UT-17 Ensure that utilities are provided consistent with applicable rules, regulations,
and prudent utility practice.
Policy UT-18 Ensure all chapters of the Port Orchard Comprehensive Plan (and implementing
development regulations) are consistent with, and do not otherwise impair
the fulfillment of, public service obligations imposed upon the utility provider
by federal and state law.
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Policy UT-19 Utilize software and technology that facilitates effective and efficient utility data
collection and analvsis.
Policy UT-20 Encourage reductions in the per capita rate of water consumption through
conservation, efficiency, reclamation, and reuse.
Goal 2. Maintain and enhance utility service quality.
Policy UT-19 Encourage utility providers to protect and enhance the performance, reliability
and stability of their utility systems.
Policy UT-20 Encourage utilities to incorporate new and improved technologies to enhance the
quality and cost effectiveness of their services consistent with the provider's
public service obligations.
Goal 3. Minimize environmental and aesthetic impacts of
utility facilities.
Policy UT-21 Place utility facilities along public rights- of -way and encourage underground
distribution lines in accordance with state rules and regulations.
Policy UT-22 Encourage siting of large, above ground utilities (e.g. antennas, towers) in industrial
or commercial areas or along appropriate transportation and utility corridors.
Policy UT-23 Minimize the visual impact of utility facilities on view corridors, vistas and adjacent
properties by developing design guidelines for cellular towers, antennas and
other types of utility facilities.
Policy UT-24 For new development, retrofitting and major remodels, including upgrades to site
utilities, the City shall require the undergrounding of future or existing utility lines
including gas, cable television, electric distribution lines, and telephone as
appropriate during the design review process and in accordance with local,
regional and state rules, regulations and tariffs.
Policy UT-25 As new development occurs and creates additional demand for public services,
assess the potential to conserve/upgrade existing utility facilities before
developing new facilities.
Goal 4. Support and promote energy conservation.
Policy UT-25 Encourage and support development of renewable energy projects and
technologies.
Policy UT-26 Support renewable energy incentives to businesses and groups for
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comprehensive renewable energy effort.
Policy UT-27 Establish incentives to lessen use of resources.
Policy UT-28 Encourage programs to educate utility users on the benefits and means of
conservation.
Goal S. Support the extension of fiber optic cable in the City of Port
Orchard.
Policy UT-29 Recognize broadband's influence and importance to economic diversification in
Port Orchard.
Policy UT-30 Encourage installation of broadband infrastructure in all new
residential subdivisions, economic development projects, and arterial
improvements.
Policy UT-31 Partnerwith broadband and fiber optic service providers within the City to ensure
coordination efforts for enhanced access to high-speed internet for new
development proposals.
Goal 6. Enhance community resilience to natural hazards through
effective siting, design, construction, and operation of public services
and infrastructure.
Policy UT-32 Identify challenges resulting from natural hazards such as earthquakes,
landslides, wildfires, and sea level rise as they relate to the siting and design of
new public services and infrastructure.
Policy UT-32 Recognize historical disproportionate impacts to vulnerable populations, who
tend to have greater exposure to natural hazards and the resulting impacts on
public services.