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HomeMy WebLinkAboutFebruary 1999 Draft Stormwater Management PlanCity of Port Townsend Stormwater Management Plan Draft February 1999 Forrest Rambo, MAYOR 1999 CITY COUNCIL MEMBERS PUBLIC WORKS DEPARTMENT Forest Rambo Bob Wheeler, Director Joe Finnie David Peterson, City EngineerVernGarrison Charlie Simpson, Operation & Geoff Masci Al Youse Maintenance Manager Sidney Lipton Sam Gibboney, Project Manager David Fischer, Illustrator Allan Frank Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2PURPORE•WPD —2— City of port Townsend SCAMP Section 1 .0 Introduction Purpose, Authority & Policy The City of port Townsend is located in an area OF historical significance and great natural beauty. The city also faces many unique challenges with regards to stormwater management. This planning study was prepared for the City of port Townsend and its eighteen drainage basins to address policy direction and current storm water management standards . 'port Townsend is located on the North Quimper peninsula of the Olympic Peninsula as shown in Figure 1.1 This plan is funded in part by a grant from the Department of Ecology Centennial Clean Water Fund. Section 1.1 Background and Storm Water Issues port Townsend has a long history of how land use affects the potential impacts of storm water. Due to the speculation that the terminus of the railroad would be located here, much of Port Townsend was platted in the 1890's. This platting was completed by Out of state firms with no regard to topography or presence of wetlands or drainage corridors. Consequently, the City is left with the legacy of small lots and public rights-of-WaY that sometimes hinder prudent storm water management. Development based upon this historic plat has contributed to the degradation of storm water quality and natural drainage systems. Storm water management is a relatively new concept for most of the state including'port Townsend. 'previous to the 197o,s, wet areas were drained or Filled without much regard for the potential long-term impacts of such decisions. As development continued within the city surface runoff increased and localized flooding problems became apparent. Also during the 197o,s the public and legislators became aware of the threat to our surface and ground water from pollutants found in urban runoff. In the early and mid-1980's, the City of Port Townsend realized that the City had neglected storm water problems and was ill equipped to manage storm water and flooding problems within the city. The City became aware that these problems were the result OF a long history of poor land management practices, including filling Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\2?UUOSE•WPD —3— city of port Townsend SCAMP and grading practices and failure to consider storm water impacts associated with development proposals. In 1985 the City Council directed that a Comprehensive Storm Water Management 'plan be drafted to address storm water and flooding problems and to recommend new storm water management practices. Storm water concerns and practices were analyzed in the Comprehensive Storm Water Drainage Plan for port Townsend, Washington prepared in draft in 1986 and Finalized in January 1987. The 1987 plan also demonstrated a significant need to establish a variety of funding mechanisms to pay for the essential tasi<s of storm water management. On December 2, 1986 the City Council adopted an ordinance establishing a Municipal Storm Water OtilitY. The utility was Formed to provide financial means for regulating and controlling storm water runoff, costs of certain capital projects and the operation of the drainage system. The utility was intended to fund activities intended to protect the entire population and to provide general benefits to the rate payers. In preparing the Citys Growth Management Act Comprehensive Plan in the early 199o,s, the City became aware that the 1987 plan was deficient in a number OF areas and needed to be updated. The Comprehensive Plan also identified the Citys fundamental policy direction for storm water management which consists of a natural drainage systems approach. Section 1.2 Plan Purpose and Elements The goals of this plan are: To recommend drainage conveyance system improvements to solve existing and potential future flooding problems To recommend drainage system projects to improve storm water quality and reduce potential impacts to surface and ground water quality To recommend changes to the drainage ordinance and design standards to protect water quality, reduce flooding, and ensure compliance with Washington State standards. To identify maintenance practices and procedures that benefit drainage system operations and water quality Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPOSE•WPD -4- city of port Townsend SWMP To recommend public education and involvement activities to increase awareness of impacts of development on storm water and choices available to enhance water quality. To recommend and identify drainage basins for basin planning analysis To recommend a Financial plan This planning effort should set the stage for the City to initiate efforts to solve existing problems and mitigate the impacts of future development. The products of this planning effort and proposed projects will also comprise the core of the program necessary to meet the goals of the Puget Sound Water Quality 'Plan and Washington State Department of Ecology requirements. Section 1.3 Citizen Advisory Committee The City of port Townsend established a Wetlands and Storm Water Citizen Advisory Committee (WetSWAC) in 1992. WetSWAC was formed to assist and advise the City 'public WorKs Department on storm water policy and to help guide the preparation of this Storm water Management 'plan. WetSWAC developed two goals: I. To promote sound development policies and construction procedures that respect and preserve the natural Functions of flood plains and drainage corridors within the City of port Townsend, while protecting wildlife and other valuable elements of the natural system. 2. To increase community awareness of the valuable functions served by Flood plains, drainage corridors, and other watershed features within the City of port Townsend. WetSWAC has been involved with and completed a number of activities. These include basin surveys for fourteen of the eighteen basins in the City, a recommended storm water monitoring plan, policy recommendations and public education recommendations. The WetSWAC Committee met regularly Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\2PURPOSE•WPD -5- City of port Townsend SWMP through 1993. Much of their worK has been incorporated into this Storm water Management plan. Section 1.4 Authority and Overview of Regulatory Requirements Developing and operating an effective drainage system is one of the many responsibilities of local government to protect public and private property, wisely utilize and protect its natural resources [i.e., the natural drainage system], and provide for the welfare of its public. Many of the various components of an agencys drainage program, however, are required and/or guided by a series of federal, state, regional and local regulatory requirements, as briefly summarized below. 1.4.1 -Federal Regulations Clean water Act Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD —6— City of port Townsend SWMP Federal requirements governing storm water and wastewater collection, treatment, and disposal are contained in the Federal Water'pollution Control Act of 1972 CPL 92-50001, as amended by the Clean Water Act of 1977 CPL 95-2171 and Water Quality Act of 1987 CPL 100-41• This group of laws and its associated amendments are referred to as the Clean Water Act CCWAI. The objective of the Clean Water Act is to restore and maintain the chemical, physical, and biological integrity of the nations waters by eliminating all pollutant discharges into navigable waters and achieving fishable and swimmable conditions. Storm water related goals of the CWA are to: prohibit the discharge of toxic pollutants, develop the technology needed to eliminate pollutant discharges, and implement programs to control nonpoint source pollution. The U.S. Environmental Protection Agency CEPA1 has been given the responsibility to develop, administer, and enforce the regulations needed to achieve the above goals. In the State OF Washington EStatel, this authority and responsibility has been delegated by EPA to the State. The State administers this authority through the State Department of Ecology [Ecology]. National Pollution Discharge Elimination System (NPDES) Two types of NPDES permits exist for storm water discharges: one for construction projects exceeding a certain threshold and the other for generalized discharges from municipalities with populations exceeding a certain threshold. The Clean Water Act requires that certain construction activities be done in compliance with a NPDES permit for storm water. Any clearing, grading, or excavating activities which will disturb Five acres or more of land and which will discharge from the site into surface waters or storm drainage systems which discharge to surface water. Currently, a general NPDES permit for publicly owned or operated storm water Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 7- City of port Townsend SWMP systems is required for municipalities with a population exceeding 1oo,000. The permits require jurisdictions to develop storm water management programs to reduce pollutant discharges to the maximum extent practicable, and to maKe progress toward compliance with state water quality standards. Changes are proposed to this threshold which may require permits for smaller cities if they are located within an urban core of more than 50,000 people. Thus, it is unliKely that 'Port Townsend will Fall within the proposed permit threshold. A final rule codifying the proposed changes is expected in March OF 1999. Endangered Species Act In 1998 the National Marine Fisheries Service proposed listing Puget Sound chir)OOK and five other species of Washington salmon for protection as threatened species under the Endanger Species Act. The impact of the listing of these species will a-FFect land use and water-related activities in the entire Puget Sound region. 1.4.2 Washington State Regulations Chapter 90.48 of the Revised Code of Washington [R.CW], is the state law which adopts the federal requirements that define storm water as Waters of the United States that must meet water quality standards. Chapter 90-48 RCW states: It is declared to be the public policy of the state of Washington to maintain the highest possible standards to insure the purity ofall waters of the state consistent with public health and public enjoyment thereof, the propagation and protection of wildlife, birds, ,games, fish and other aquatic life, and the industrial development of the state, and to that end require the use ofall Known and available and reasonable methods by industries and others to prevent and control the pollution of the waters of the state of Washington." Chapter 173-2014 of the Washington Administrative Code (WAC) establishes water quality standards for surface waters of the state of Washington and states in part that: WAC 173-2014-i6o[31[b1 "Best management practices shall be applied so that when all appropriate combinations of individual best management practices are utilized, violation of water quality criteria shall be prevented..." Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD -8- City of port Townsend SWMP WAC 173-2014 -160[31[CJ "Activities which contribute to nonpoint source pollution shall be conducted utilizing best management practices to prevent violation of water quality criteria. [When applicable best management practices are not being implemented, the department may conclude individual activities are causing pollution in violation oFRCW 90-48.080. In these situations, the department may pursue orders, directives, permits or civil or criminal sanctions to gain compliance with the standards." WAC 173-2104-160[31[dJ "Activities which cause pollution of storm water shall be conducted so as to comply with the water quality standards. The primary means to be used for requiring compliance with the standards shall be through best management practices required in waste discharge permits, rules, orders and directives issued by the department for activities which generate storm water pollution." WAC 173-201-020 AKART is an acronym for "all Known, available and reasonable methods of prevention, control and treatment." AKART shall represent the most current methodology that can be reasonably required for preventing, controlling, or abating the pollutants associated with a discharge. The concept of,4KART applies to both point and nonpoint sources of pollution. The term best management practices typically applied to nonpoint source pollution controls is considered a subset of the AKART requirements." The Storm Water Management Manual was published by Ecology in 1992 for the Puget Sound Basin [DOE SWMMJ to provide guidance for developing best management practices. Best management practices are currently the primary means to show compliance with the water quality standards. The DOE SWMM also sets minimum requirements for the review of development proposals. Local governments are required under State law to establish storm water management programs. Chapter 90.7o RCW establishes the 'Puget Sound Water Quality Authority [Authority] and directs the Authority to develop a comprehensive pollutant management plan -For Puget Sound. The resulting Water Quality Management 'plan for the 'Puget Sound Basin was first Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 9— City of port Townsend SCAMP published in 1987 and has subsequently been amended in 1990, 1991, 1992, and most recently in May of 1994. Each oFthe 115 local governments discharging to the Puget Sound Basin, including the City of Port Townsend, are required to develop storm water programs consistent with the Puget Sound 'plan subject to available funding. RCW 9o.7o.o7o(1J In conducting planning regulatory and appeals actions, the state agencies and local governments identified in the plan must evaluate, and incorporate as applicable, subject to the availability of appropriate funds or other fundingsources, the provisions of the plan, includinganyguidelines, standards and timetables contained in the plan." The State expects each local government to demonstrate at least a "good faith" effort to obtain funding to develop and implement a storm water management program that is consistent with the Puget Sound 'plan. Compliance with the Puget Sound Water Quality Management 'plan is mandatory subject to available funding, and the minimum that is required is that a local government adopt ordinances to control runoff from new development and redevelopment, and to maintain both public and private storm water facilities, and to adopt either Ecology's manual or one that is substantially equivalent" to Ecology's manual for the construction of new drainage Facilities. The target date set in the Puget Sound 'plan was January 1, 1995 for compliance with the Basic Storm water'program, and the year 2000 for compliance with the Comprehensive Storm water'program. [Note: Only those larger cities named in the NPDES regulation are required to implement the Comprehensive Storm Water program. The City of Port Townsend only needs to comply with the requirements of the State s Basic Storm Water Program.] The Puget Sound Water Quality Management plan was adopted by EPA in May 1991 as the first Comprehensive Conservation Management Plan in the (Jnited States under Section 320 of the Clean Water Act. The EPA can, therefore, enforce the Puget Sound Plan in a manner similar to any other program or activity described within the Federal Clean Water Act. Ecology's role in the Puget Sound Plan requires that: Ecology shall monitor compliance with these requirements, reviewing the status of the city and county operation and maintenance and runoff control Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPOSE•WPD-10- city of port Townsend SWMP programs every two years to ensure consistent and adequate implementation and report to the Authority. Eco/ogy's oversight role shall pertain only to compliance with the objectives of the plan s storm water program and appropriate rules and statutes and technical suggestions to improve implementations... . Table 1.1 outlines the elements of the,states Basic, torm Water program and the City's compliance status Section 1.5 Relationship to other Plans Port Townsend Comprehensive Plan (1996) The 1996 Growth Management Act (GMA) Comprehensive 'plan establishes the overall policy direction for the development of the Storm Water Management 'plan. It includes a land use plan that guides future development and identifies potential open space corridors that may preserve wetlands and drainage corridors. Official Zoning Map The zoning map and zoning code (Title 17 PTMC) adopted in conformance with the City's Comprehensive 'plan, are a vital element in the implementation of the Comprehensive 'plan's overall policy and recommendations of this plan and other basin studies. In 1995 the Draft Flood Control Assistance Account 'program FCA4'P) Implementation 'plan Area Standard for Basin 4A and 4B recommended a decrease in residential density from 8 units per acre to 4 units per acre. This recommendation was adopted in the 1996 Comprehensive 'plan and is reflected in the zoning map. As future FC AP basin studies are completed additional recommendations for decreases in zoning densities may be made. Amendments to the Comprehensive 'plan, zoning map and zoning code would be necessary to implement these recommendations. Engineering Design Standards (1997) In response to the GMA Comprehensive 'plan, a set of Engineering Design Standards (EDS) has been adopted. The EDS adopts Ecology's Storm Water Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 11— City of port Townsend SCAMP Management Manual for the Puget Sound Basin (DOE SWMM) and its minimum requirements. The EDS also establishes thresholds for plan RUM submission and provides guidance for selecting best management practices. The EDS may be modified by adopted basin plans as discussed below. Flood Control Assistance Account Program (FCAAP) and other Basin Studies pending) The City is currently undertaKing detailed basin studies as described in Section 5 oFthis report. Adopted basin plans may be used to modify the Department OF Ecology Storm Water Management Manual and the City OF Port Townsend Engineering Design Standards provided that the level OF protection for surface and groundwater afforded by the basin plan will meet or exceed that which would be achieved by the state and city minimum requirements. Comprehensive Storm Water Drainage Plan (1987) The City completed its last storm water plan in 1987. That plan is superseded by this storm water management plan. Section 1.6 Storm water Policies The goals and policies for storm water management have been adopted in the 1996 Comprehensive Plan Land Use Element and Capital Facilities and Utilities Element. These goals and policies have served as a FrameworK for preparation OF the Storm water Management Plan and to guide the design, implementation and operation OF the storm water facilities in the city. The following plain text goals and policies are taken directly from the 1996 Comprehensive Plan. Underlined text denotes minor modification to the original Comprehensive Plan goals and policies. (Please note: Numbering is not sequential as the goals and policies are drawn from various sections OF the GMA Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2PURPOSE•WPD—12— city of port Townsend SWMP Comprehensive plan.) Land Use Element Goal 5 To manage surface, ground, storm, waste, and coastal waters to ensure that water resources are protected and preserved. Policy 5.1 Manage storm water in a way that approximates the natural hydrologic characteristics of the area while ensuring that all storm water receives adequate treatment before discharge or infiltration. The quality OF storm water discharged from storm water treatment facilities such as ponds, drainage corridors, wetlands, salt water, etc. should be as close to the water quality present before human encroachment as possible. Policy 5.2 Ensure that public and private development projects are reviewed and conditioned in a manner consistent with the City s Storm Water Management plan and the Storm Water Management plan for the Puget Sound Basin. Policy 5.3 Pursue strategies intended to reduce storm water runoff to levels not IiKely to cause flooding, significant erosion to natural drainage Ways, or significant degradation of water quality. Policy 5.4 Encourage the use of a natural drainage systems approach to control stormwater from new developments. Where feasible, new developments should capitalize on natural drainage features to hold and treat stormwater and pollutants before they are carried down slope or before they enter wetlands or other bodies of water. Policy 5.5 Apply existing regulations including Chapter 70 of the Uniform Building Code (i.e. clearing and grading provisions) and the Environmentally Sensitive Areas Ordinance (Chapter 19.05 PTMC) to maintain and enhance the quality of Port Townsend's water resources. Strictly enforce regulations regarding clearing, grading, dumping, discharging, and draining; flood and erosion control and environmentally sensitive areas, including wetlands. Policy 5.6 Encourage property owners to use native vegetation to provide or enhance wildlife habitat associated with storm water facilities. Preserve existing native vegetation to the greatest extent feasible to protect water quality and prevent erosion and sedimentation. Policy 5.7 Continue to WorK With neighborhoods to review drainage problems and update design criteria and program capital improvements to Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 13— City of port Townsend SWMP provide adequate drainage and water quality treatment for the land uses planned. SHE Policy 5.8 Coordinate with Washington State Cooperative Extension Service to discourage the use Of herbicides and pesticides. Policy 5.9 Require development to be Of a type and density that does not significantly degrade or deplete groundwater which is, or may, in the future, be used as a public water supply source. 5.9.1 Continue to regulate to protect critical aquifer recharge areas through the Environmentally Sensitive Areas Ordinance Chapter 19.05 PTMC)• Capital Facilities and Utilities Element Goal 22 protect storm water quality through use Of current design practices and standards. Policy 22.1 Review each public and private development project to ensure conformance with the standards Of the City's Storm water Master plan, the City's Storm water and Drainage Ordinance, the CirysEnvironmenrally SensiriyeArea Ordinance, the CirysEnS neerffiS DesiSn Srandardsand the Department Of Ecology Storm Water Management Manual. Policy 22.2 Use the Storm water Management Manual for Puget Sound for reviewing developments and requiring the use Of best management practices For land clearing, control Of runoff that may affect water quality, erosion and sedimentation. Policy 22.3 Regularly update the City's Storm water and Drainage Ordinance and En-gineerin-gDesiyn Srandardsto maintain up to date practices. Policy 22.4 Ensure that discharges Of storm water from treatment facilities into ponds, drainage corridors, wetlands, salt water, and other water bodies, do not result in degradation Of water quality. Goal 23 Manage storm water quantity in a Way that approximates the natural hydrologic characteristics Of the area (Le, a natural drainage systems approach) while ensuring that all storm water receives adequate treatment before discharge t0 surface wafter Or infiltration to groundwater. Policy 23.1 Preserve natural surface and sub-surface drainage systems to the maximum extent possible. 23.1.1 Protect and preserve critical drainage corridors and wetlands. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPOSE•WPD-1q- city of port Townsend SWMP 23.1.2 Regulate development within critical drainage corridors to preserve conveyance capacity, water quality, and habitat quality and continuity. 23.1.3 Require that new developments and redevelopments preserve and employ natural drainage systems which incorporate means to hold and treat storm water and water pollutants. policy 23.2 'pursue strategies intended to reduce stormwater runoff to levels not IiKeIY Yo cause flooding., significant erosion to natural drainage ways or significant degradation of water quality. Policy 23.3 Ensure that storm water quantity from development should not be greater than natural historic flows unless regional Facilities can sufficiently accommodate the increased flows with no detrimental impacts to other properties. Policy 23.(f Regulate clearing, grading, dumping, discharging and draining and provide for flood and erosion control measures to protect wetlands, critical drdindge corridorsand other environmentally sensitive areas. Goal 24 Maintain storm water treatment facilities to ensure their proper and intended function. policy 24.1 Inspect and maintain storm water treatment facilities in accordance with the Storm water Management Manual for the Puget Sound Basin. Policy 24.2 WorK With private property owners to maintain storm water treatment and detention facilities in accordance with the Storm water Management Plan for the Puget Sound Basin. Policy 24.3 Allocate adequate resources to maintain storm water facilities. Goal 25 Provide financial resources to appropriately operate the Storm water Drainage UtilitY and construct capital improvements. Policy 25.1 Maintain storm water utility rates shall be maintained at a level appropriate to conduct necessary operation and maintenance activities and capital improvement projects. Policy 25.2 Allocate costs to reflect the true cost of the utility. Establish Fees and charges to recover utility costs related to development. Policy 25.3 Pursue a wide variety of funding options including state grants Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 15- City of port Townsend SWMP and loin interest loans. Implementation Programs from the CIP Element(From Capital Facilities and Utilities Element.) 2.13 Develop public education materials and programs to inform the public about the environmental impacts of individual practices (e.g., the impacts of pesticides and herbicides on storm water quality). 2.0 WorK with the school district and other educational institutions to develop cooperative educational programs that encourage active Participation from students and the public. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD—16~ City of port Townsend SWMP insert Table m Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 17— City of port Townsend SCAMP insert Figure 1.1 Location Map Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD—18— City of port Townsend SCAMP Section 2.0 Existing Conditions This chapter discusses the unique natural characteristics Of the area such as climate, geology, topography and vegetation. It also discusses the existing conditions Of the drainage systems and gives a brief summary Of conditions in each drainage basin. Climate The Puget Sound is characterized by moderate temperatures and precipitation. There are only occasional periods Of below freezing temperatures or frozen precipitation along its coastal areas, and precipitation occurs in long periods at low intensity. Because 'port Townsend is located in the rain shadow Of the Olympic Mountains its precipitation is low in comparison to the rest Of the coastal 'pacific Northwest. Mean annual precipitation is approximately 18 inches, with the majority falling in the winter. Summers are relatively dry and cool; winters are typically mild, wet and cloudy. Geology, Soils, Topography and Vegetation Along with the climatic conditions described above, the geology, soils, topography and vegetation define the City,s natural hydrology. Geologic conditions, including the glacially deposited surficial soils, create the shape Of the land. R,unOff can alter this land surface over time through erosion, with steeper surfaces experiencing faster and more erosive runoff. 'precipitation helps support the growth Of vegetation, as does the soil itsel•F• When vegetation becomes thicK it absorbs more precipitation and limits surface flow. Vegetation also protects the soil From being eroded by lessening the impact Of rain and stabilizing the soil with its root structure. Each Of these factors in turn a•FFects the flow Of surface and sub-surface water. In 'port Townsend, certain Of these characteristics have a more profound effect on surface runoff than others. Foremost is the small size Of its drainage Ways as the City is located on the relatively narrow Quimper Peninsula. No drainage corridors flowing within the City originate outside Of it, and gradients Of those Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 19— City of port Townsend SCAMP within the City are generally loin. Much Of the undeveloped areas Of the City have limited to no surface drainage discharges due to flat topography, dense vegetation and soils that may become saturated seasonally. These areas are often underlain by a soil type Known as glacial till. Glacial till material is highly compacted and does not infiltrate water readily. Development in these areas commonly causes surface flows which may lead to flooding problems W runoff control is not adequately designed. The presence Of these glacial till soils greatly limits the effectiveness Of common storm water methods such as infiltration trenches. Some Of these undeveloped areas are further characterized by dense forest which also greatly retards runoff. Removal Of this dense forest cover during development exacerbates the runoff problem. A number Of other areas Of the City drain to closed depressions which have no surface outlet. Some areas are underlain by well-drained soils which, in their natural state, can rapidly infiltrate runoff Of storm water. Development in the tributary area may increase the amount Of pollutants in the storm water thereby posing a threat to ground water quality. However, these well drained soils often contain silts and clays that may compact during construction reducing the effectiveness Of infiltration. These soils are also prone to high rates Of erosion and sediment transport. other closed depressions may contain saturated soils Or wetlands which limit the area s storage capacity for runoff. Land Use Human use Of the land significantly alters the amount Of precipitation which is converted to runoff, and also affects the runoff quality. Impervious surfaces such as pavement and roofs effectively convert precipitation to runoff and speed it along at an accelerated rate. Areas where the ground has been cleared Of vegetation, Or where the ground has been compacted also cause increases in runoff. Improved drainage conveyances accelerate the flow rate Of surface runoff. Road surfaces and even lawns tend to collect pollutants and readily carry them down gradient. The City has a mix Of human land uses. Examples are the largely impervious urbanized development in the downtown area, decreasing amounts Of impervious surfaces in the residential developments spread across the City, cleared and compacted recreational and agricultural lands, and logged forest areas. Each Of Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2PUUOSE•WPD—20— city of port Townsend SCAMP these is characterized by an increase in runoff and pollutants over the undisturbed condition. Existing development densities vary widely within the city. Development densities based upon number of developed lots compared to total lots within the basin are presented in Table 2.1. Table 2.1 Development Densities PERCENT PERCENT BASIN ACRE' DEVELOPED UNDEVELOPED 1 57 25.3% 74.7% 2 44 47.5% 52.5% 'I 3 10 65.5% 34.5% 4 660 20.0% 80.0% 'I 5 146 9.0% 91.0% 6 15 59.9% 40.1% 'I 7 64 40.4% 59.6% 8 120 34.2% 65.8% 'I 9 516 54.0% 46.0% 10 249 58.5% 41.5% 'I 11 197 23.3% 76.7% 12\13 411 75.8% 24.2% 'I 14 45 49.4% 50.6% 15 159 7.0% 93.0% 'I 16 104 36.7% 63.3% 17 111 14.9% 85.1% 'I 18 208 8.1% 91.9% Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 21- City of port Townsend SCAMP Drainage Systems As mentioned above, 'port Townsend's natural drainage systems typically have small tributary areas and drainage channels. Due to relatively Flat slopes, and the surrounding topography, soils and vegetation, they are also characterized by slow Flowing surface and surficial drainage. In many locations this combination of Factors has caused wetland vegetation to thrive. There are also many closed drainage basins where there is limited or no surface outflow. When roads and buildings are constructed in these areas, flooding often occurs. Constructed drainage systems have been provided in some parts of the city to divert water away From development. These systems range from the curb, gutter, inlet and piped systems exemplified downtown, to shallow ditches and cross-culverts under roads in other areas of the City. Many older systems provide little or no treatment of storm water. Water Quality No comprehensive sampling or testing has been performed which documents the quality of storm water or receiving water bodies in 'port Townsend. However, a considerable amount of data exists for areas of similar land use, topography and geographic location. Data from these areas, as well as observations of the land uses and drainage systems in the City, suggest that negative impacts to water quality are beginning to appear in urbanizing areas of the City. This can be expected to be especially acute for the smaller water bodies. In urbanized areas, the reversal of these impacts and their effects is typically very expensive and intrusive, and often does not succeed. Therefore, it is considered prudent to prevent or at least minimize impacts, rather than allow them to occur uncheCKed. This prevention can taKe many Forms, from controlling the amount and type of development in a drainage basin, to providing extensive runoff control and treatment facilities. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-22- city of port Townsend SWMP Section 2.2 Drainage Basin Characterizations This section briefly characterizes the eighteen drainage basins and storm water issues. Basin I - Strait This narrow 3o acre area is at the crest of bluffs above the Strait of Juan De Fuca at the northwest shorefront of the City. There are no distinct drainage ways and runoff from this mostly Flat area produces little evidence of concentrated surface flow due to it's narrow width. This is a low density area. No formal storm drainage system exists in this basin. The two major drainage issues identified in this basin are poorly defined drainage for roads and bluff stabilitY. Runoff directed over the bluff at the COOK Street overlooK is causing erosion. Installation of energy dissipaters such as rocK gabions or a properly installed tight line with a dissipated outlet would be appropriate for this area. 'providing improved conveyance would address the other drainage issues found in this basin. Basin 2 - North Beach This 5o acre area slopes very gradually toward the Strait of Juan De Fuca and has no distinct drainage Ways. Low density residential development with paved and gravel roads covers much of this area. No Formal road or other storm drainage systems exist in this basin. 'problems identified in this area mostly result from a IacK of conveyance. Road improvements and improved conveyance would address Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 23- City of port Townsend SWMP the drainage issues found in this basin. Basin 3 - Middins This narrow Ito acre area is at the crest of the bluffs above the shore of the Strait of Juan De Fuca. There are no distinct drainage ways and runoff from the flat area at the top of the bluff produces little concentrated surface flow due to its narrow width and forest cover. A small area Of low density residential development l exists at the western end of this area, with the rest consisting of an undeveloped portion of Fort Worden State 'parK. No formal storm drainage systems exist in this basin. The major problem identified in this drainage basin is that Of bluff erosion. While the problem is real, it is not necessarily a storm water problem as the erosion is an effect of the natural process of tide and wind exposure. Basin 4 - Chinese Gardens (North Lagoon) This basin can be broKen into four distinct areas. The first and largest is to the west, a nearly too acre area where all surface runoff drains to the Winona wetland. Two drainage ways carry runoff to the Winona wetland. One flows from the north and originates at COOK Avenue, and the other flows from the south and appears to originate at a low point along Hastings Avenue. Should the wetland overflow, its storm water travels into the North Beach drainage way which discharges to Chinese Gardens. A small amount of low density residential development exists in various places. The remaining areas are characterized by dense forests, steep slopes, or both. The next and more developed area in this basin contributes runoff directly to the North Beach drainage Way which flows out of the Winona wetland. The drainage Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2PURPORE•WPD—24— city of port Townsend SCAMP way travels through the middle of this area before entering Chinese Gardens from the west. This area is characterized by loin residential development in the center and eastern portion of the basin, with the development primarily along the major roads in the area. The remaining areas at the southern side of the basin are characterized by dense forests and steep slopes. The remaining area to the north is a mix of shallow-sloping open fields and forests. Both paved and gravel roads exist here, with no formal storm drainage system existing in the area other than the few road culverts which pass the North Beach drainage Way under ggtn (at CooK/HendricKS), Landes and Kuhn Streets. The third area is to the east of Chinese Gardens and is within Fort Worden State parK. At its southern end are the parK buildings and paved roadways, which include a curb and gutter drainage system. The majority of this area appears to drain to a distinct channel and wetlands system which discharges to the southeast corner of Chinese Gardens. North of these developed areas of the 'parK are steeply-sloping and forested hillsides which sheet flow into Chinese Gardens. The Final area in this basin is to the south, and includes moderate density residential development OF the eastern hillside, as well as similar development and the County Fairgrounds to the west. No Formal drainage systems exist in this area other than some recently installed catch basins and pipes at W Street. The eastern area drains to the channel From the State 'parK. To the south of the Fairgrounds is a detention basin For the LynnesField 'planned Unity Development and Happy Valley pond. No distinct outlet or drainage Way is evident From this basin to the down gradient Chinese Gardens, though numerous wetland basins appear along the Way. Chinese Gardens is the major receiving water body in this basin. It has a l000 Foot long piped outlet to the Strait. The condition of the pipe is unKnown at present though it is suspected that the pipe has collapsed. The FCAAP Implementation 'plan Area Standard was completed For Drainage Basins 4A and 4B in June of 1995. Revisions to the plan including analysis of the remaining portion OF the basin, Drainage Basin 4C, are scheduled to be completed in June 1999• The plan has yet to be Formally adopted. The FCAAP report recommended a decrease in the zoning density From s units per acre to q units per acre. This recommendation was adopted with the City OF port Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 25- City of port Townsend SWMP Townsend Comprehensive 'plan in July OF 1996 and implemented through the 1997 rezoning. The FCAA'p report also defined the loo year flood plain in the basin. While not formally adopted, the flood plain map is used for planning purposes and development review by the City. A formal adoption process needs to be conducted so that the flood plain will be formally recognized by The Federal Emergency Management Agency (FEMA). Formal adoption would also allow notice to title to be conveyed to affected properties. An analysis OF hydrologic continuity and the conversion OF the 18" sewer main into an overflow pipe for Basin 4C, 5 and 6 will also be completed in the FCAAP studies. Since 199q the City has protected the natural wetlands and flood plains through public acquisition. The City has purchased property in the Winona wetland, the LevinSKy or QuaKing Aspen wetland, the flood plain connecting these two wetlands, the 50th Street Corridor between HendricKS and Gise and the 49th and JacKman area. Notable problem areas include: IacK OF conveyance on g9th Street; intermittent Flooding OF properties between 49th 4,50th near JacKman; intermittent flooding OF properties near Urd and Haines; discharge from the LynnesField development that exceeds the capacity OF Happy Valley 'pond; and a general IacK OF conveyance within the basin. Basin 5 - Townsend Meadows f This drainage basin in the north-center OF the City has limited moderate density single-family F 1 development at its eastern and southwestern a ; 1 perimeters. All runoff drains to a wetland at the low point OF the basin (Townsend Meadows wetland), loo Feet west OF San Juan Avenue, which has no surface outlet. There have been no reports OF overflow from this low area to the lower elevation broad valley which passes through the County Fairgrounds north OF the low point. The largest portion OF the basin is characterized by dense forests and steep slopes. No Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2PURPORE•WPD—26— City of port Townsend SWMP Formal drainage system exists in this area. As a closed depression there is concern that the future development in the basin will increase flooding of the loin point and adjacent properties at the Townsend Meadows wetland, potentially causing flood damage of private property. potential effects on the water quality of this wetland due to polluted runoff are also a concern. Several recent development projects in this basin have affected storm water. First the Blue Heron Middle School construction was completed in 1994. Buffer restoration and wetland monitoring of Townsend Meadows have been imposed as SE?A mitigations. Restoration efforts and monitoring are being evaluated by the Building and Community Development Department. Second, road improvements to San Juan Ave were completed in 1997. Drainage From San Juan Ave in Basin 5 is now directed to an infiltration trench located in the planting strip in front of the school thus maintaining basin integrity. Third, in 1994 a cross culvert was installed at the intersection of Umatilla and Silver. The previously existing culvert directed the flow north across Umatilla towards Townsend Meadows. The new culvert was installed at a lower elevation and directs flow east along Umatilla and from Basin 5 into Basin 9. The area diverted is approximately 27 acres. Fourth, the wetland area named North Deering Wetland is diverted from Drainage Basin 9 into Drainage Basin 5. The affected area is 26 acres. Finally, the LynnesField POD drainage plan (for all phases at build out) diverts 16 acres of Basin 4 into Basin 5 for storms more severe than the two year interval. For lesser storms, it diverts 13 acres from Drainage Basin 5 into Drainage Basin 4. There have been few noted stormwater problems in this area due to the low density of residential development in the basin. Basin 6 - Froggy Bottoms Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 27— City of port Townsend SCAMP This small drainage basin in the center of the City is largely occupied by moderate NOW density single -family residential development, which is unforested and has little topographic relief. The remaining area in the basin is characterized by dense Forests and steep slopes, interspersed with medium density residential development. The lowest part of this basin is underlain by a thicK pan of clay/silt soils approximately 5 feet thicK. This pan layer is underlain by clean sand of undetermined thicKness. X41.5 acre wetland was delineated in this area in spring OF 1997. An area retention pond/wetland restoration project was undertaKen in the summer of 1997 in conjunction with the San Juan Avenue road improvements. One feature of this facility is an infiltration facility constructed below the pan layer. This trench will provide an overflow for the pond/wetland and should provide some relief From Flooding threats. Final analysis will be provided in the FCAA? report scheduled to be completed in (March OF 1998. An analysis of hydrologic continuity and the conversion of the 18" sewer main into an overflow pipe for Basin 4,5 and 6 will also be completed in the FCAA? studies. There are other problems in the basin categorized as nuisance drainage and erosion, which causes inconveniences (e.g., temporary road inundation, yard Flooding). Road improvements and improved conveyance would address the drainage issues found in this basin. Basin 7 - West Morgan Hill This small basin drains from the steep and forested west hillside to a Flat open Field area with an indistinct depression south of Tremont Street. The upper elevations of the basin are characterized by dense forests and steep slopes, interspersed with medium density residential development. No surface outlet exists for this area, and the well drained soils characteristic of the area suggest that runoff simply infiltrates into the ground, though the rate cannot be Known Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2PURPOSE•WPD—28— city of port Townsend SCAMP without testing and/or monitoring. A recent development proposal soil investigations (San Juan Commons) indicate that the western portion or the basin may be suitable for infiltration. A wetland has been identified in the 'pasture area of this wetland. No formal storm drainage systems exist in the basin.Road improvements and improved conveyance would address the drainage issues found in this basin. The FCAA? report is scheduled to be completed for this basin in 1998. Basin 8 (Golf Course)r- The majority of this basin is occupied by medium density single-family dwellings on moderately sloping to flat areas. Small areas at i the north and east of the basin are steeply T sloped and forested. The remaining areas are un-Forested, with the manicured golf course occupying a large section in the east of the basin. The basin drains to the golf course pond which is located southeast of the intersection of San Juan and F Streets. No surface outlet exists from the pond. An informal ditch and driveway culvert road drainage system exists along lower Hastings Avenue, Discovery Road, and along the north side of F Street while a concrete ditch exists on the south side of F Street. The effect on the water quality of this wetland is also a significant concern. The Golf Course 'pond has seen high water levels in the past few years and inundation OF F Street remains a threat. No clear strategy has been developed to manage the uses and values of this area. Basin 8 is also subject to the same diversion at the intersection of Silver and Umatilla as described in Basin 5. The FC AP report for Drainage Basin 8 is scheduled to be completed in 1998. Basin 9 - Kah Tai This large basin in the south-central area of the City drains three distinct tracts of land, all of which are characterized by poCKets of medium density to dense residential single-family home development. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 29— City of port Townsend SCAMP The northwest section is topographically Flat and has very limited distinct MUM drainage ways. Areas of forest and open Fields exist here. The Towne Point development and Discovery Road, are served by a recently installed subsurface drainage system. The open field wetland system which crosses under Hastings Road via a large-diameter culvert, eventually overflows to a storm water collection and conveyance system beginning at the western end of 25tH Avenue. 'T'hese systems join at the intersection of Discovery and Sheridan Roads. The center tract of this basin slopes down to the west and north shores of Kah Tai Lagoon. It is moderate to steep sloping, with medium density residential development throughout. Limited areas of forest exist, as do open fields.Several drainage systems serve this area. From the very northern end of the basin, a ditch and driveway culvert system runs along the west side of Sheridan Avenue. Drainage flow from the Hastings Road wetland outlet at 25tH Street is added to this surface conveyance as it flows south. At Discovery road this flow is combined with that from the Towne 'point and upper Discovery Road system. The combined flow is then split between the pipe systems which travel to the south under 19tH Street. It is not Known how the flow is split here, i.e., how much flows to each system. The 19tH Street system eventually discharges to the north end of Kah Tai Lagoon. Another roadside ditch system begins in the area of Stn Street, west of Sheridan. AFter this system travels north under Sheridan it combines with the flow carried along Sheridan and is routed along 16tH Street. This system discharges to the surface at Gise Street, flows overland through a forested area, into a recently installed pipe system from Hill St to Landes, through a double set of culverts under Landes Street and into Kah Tai Lagoon after passing through a thicKly vegetated area at the lagoons perimeter. The remaining tract of this basin is north and northeast of Kah Tai Lagoon. It is moderate sloping with medium density residential and some commercial development, and includess a portion of the golf course. The receiving water body for this basin is the Kah Tai Lagoon, a Category TT Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-30- city of port Townsend SWMP wetland connected to 'port Townsend Bay via a pipe that outlets in the 'port of port Townsend Boat Haven. The pipe is subject to tidal Fluctuations though the operation of the tidal gate is not well documented. A number of problems have been identified in this large drainage basin. They are typified by inadequately sized or non-existent drainage systems which result in Flood damage, erosion and nuisance drainage problems. The drainage systems that do exist typically serve extensive areas and are in moderate to steep sloping areas and so typically do not have sufficient capacity. This problem is exacerbated by the fact that much of the basin was developed without incorporating sufficient detention thereby increasing peaK Flows. A piped system was added to the drainage course between Hill St and Landes in the 16th Street right of Way. However, the forested ravine between Gise and Hill remains unaltered and subject to severe erosion. The catch basin located on 16th between Sheridan and Cleveland surcharged in the New Years Storm of 96197 and eroded the gravel roadway. Road repairs were done and the 8" culvert under 16th was replaced with a 12" culvert. Basin 10 - Castle Hill- Port Wetlands L This basin at the southwest of the City drains a moderate to steep-sloped hillside which has medium density residential and commercial development, with the latter existing primarily along the Sims Way corridor. This basin also contains most of the commercial development in the 'port of port Townsend. The largest section of this area drains to a ditch system at the north side of Sims Way. The culvert on the northwest side of Sims at south of loth was blOCKed during the New Years Storm on 96197. Sheet flow from loth combined with this surcharged flow and washed out the embanKment on the southeast side of Sims. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 31— City of port Townsend SCAMP Much OF the bioswale constructed in 1995 as ajoint project between the City and the 'port was destroyed. The City reconstructed the bioswale in 1998. This bioswale drains to a wetland located primarily on 'port property. A second wetland exists to the south adjacent to the railroad berm. It is not Known if there is a hydraulic connection between the two wetlands. Typical problems existing in this basin result from insufficient local conveyance and detention. Basin 11 - Bishop Park This narrow 210 acre area at the southwest of the City contains three distinct tracts. Northwest of Discovery Road it is underdeveloped, topographically Flat and covered by a mix of open fields and dense forest. The flat topography continues southeast of Discovery Road, but here moderate to high residential development exists in large pocKets between open fields and forest. Increasing pocKets of residential and commercial development exist south of gtn street, where the land is sloped to the steep-walled drainage gully which ultimately discharges to port Townsend Bay (outside the City). A broad and indistinct drainage Way begins with culverts under Discovery Road near the intersections with W1 and Eddy Streets, and continues across a designated conservation area at the open fields west of McPherson Street. After draining through a roadway culvert and short section of forest, a constructed ditch conveys the storm water to a pipe system at Logan,Rosecrans and Stn Streets. This pipe system discharges to the head of the gully south of Stn Street. The Four-Foot deep gully becomes deeper and steeper-sided as it flows south. Approaching SR2o it is Ito feet deep and densely forested with side slopes approximately 1.5:1. No culvert under the 35-foot roadway embanKment has been Found. At a depth over 7o feet, the gully leaves the city, a short distance upstream OF'port Townsend Bay. This drainage basin contains several existing storm water problem areas and development proposals raise concerns of further problems. There exists a wetland Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2PUUOSE•WPD—32— city of port Townsend SCAMP and drainage corridor to the east ofT),ainier St. This north area is relatively Flat with micro topography that forms pocKet depressions with wetland characteristics. 'potential impacts of development to this system have not been fully analyzed. 'public WorKS constructed the CT Pipeline in this area in the summer of 1998. Buffer mitigation and restoration for the wetland is planned as part of the project. The culverts under Discovery are undersized and will not be sufficient for future development. The culvert under McPherson is properly sized and the flow enters a wetland area inventoried in spring 1998. A substantial portion of this wetland has been purchased by the City. The flow then continues to an undersized ditch and empties onto Logan St. Logan St has a long history of neighborhood complaints of Flooding. Basin 12/13 - South and East Morgan Hill/Downtown This basin covers the most densely developed in the City, with residential and limited commercial development on the moderate to steeply sloping hillside, and a dense commercial development in the downtown area along the City s historic waterfront. A number of drainage systems exist on the hillside and on the flat downtown shelf, including older pipe systems and concrete ditches from the hillside and through downtown. Roadside ditches exist in other areas of the hillside. The basin is largely built-out, with additional development expected to be a limited amount of infill and redevelopment. A number of problems have been identified in this large drainage basin. The are typified by inadequately-sized or nonexistent storm drainage systems which result in Flood damage, erosion and nuisance drainage problems. It is suspected that there are a number of storm water connections to the sanitary system. LacK of Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 33- City of port Townsend SWMP detention and storm water treatment is also a problem in this, the most highly urbanized basin in the city. Basin 14 - North Morgan Hill and East Fort Worden A limited area OF moderate-density residential development exists on the north side OF Morgan Hill, which has no formal system to manage the runoff which discharges to Admiralty Inlet. The eastern side OF Fort Worden State 'park is comprised OF moderate-density buildings and paved roadways at the south, which is served by a curb and gutter drainage system. Lightly developed areas to the north have no formal drainage systems. The problems in this area are typified by inadequately sized or non-existent drainage system. Basin 15 - Discovery This 20o acre basin at the southwest r' corner OF the City has only a small amount OF isolated development, with the majority being forested. Areas OF wetlands appear to exist in its numerous Flat areas. Runoff from this basin drains overland from the City toward the west and south, into unincorporated areas. The drainage basin boundary between Basin 15 and Basin 16 is unclear. Drainage From the north crosses under Sims Way immediately east OF the Howard Street right OF Way into a wetland owned by the City and recently restored as part OF the CT pipeline project. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD—34— city of Port Townsend SCAMP 91 Basin 16 - Mill This basin near the southwest corner of the City has a limited amount of development, with the majority of the basin being forested.Its r J upper reach between Discovery Road and Sims Way has little topographical relief, and appears largely undrained. R,unoff from this area would cross Sims Way and enter a gully drainage Way which discharges out of the City to the south, before connecting to the 'port Townsend Bay. There have been no reported storm water problems in this basin. Basin 17 - Hastings South This is a small closed depression south of Hastings Road in the west of the City. It has only a limited amount of isolated development with the majority of the basin being forests and open fields. The boundary i between Basin 4 and Basin 17 remains unclear. 1 There is a depression loo feet south of Hastings which appears to be well below the road elevation. Therefore, runoff from this area is believed to infiltrate into the ground, IiKely ponding at the surface temporarily due to the relatively impermeable soils indicated throughout the basin. Also, the basin boundary between basin 17, 18 and 11 remains unclear. Soi Is i n the south of this basin are typified by Clallam series gravelly sandy loam with an underlying cemented layer. The area is also characterized by the micro topography present in Drainage Basin 11. The soils are seasonally saturated and significant ponded areas displaying wetland characteristics are present. The Hamilton Heights Development has begun construction with streets and storm water detention ponds in place. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 35- City of port Townsend SWMP I' - Basin 18 - Tibbles/Buckman This nearly 20o acre basin at the west edge Of the City has only a small amount Of isolated development, with the vast majority Of the basin being forests. Areas Of wetlands appear to exist in its numerous flat areas.Runoff from this basin would drain overland from the City r to the west into unincorporated areas. Y1 The basin boundary between Drainage Basins 11, r and 18 remains unclear. Intermittent flooding along COOK near El Mira Occurs. Summary of Existing Storm Water Issues and problems In summary, while each drainage basin faces unique challenges, the storm water infrastructure needs and deficiencies are similar. The following issues typify the Problems faces in 'port Townsend: LacK Of conveyance on local streets and sub-standard road conditions. LacK Of regional conveyance along arterials and collectors. LacK Of adequate storm water treatment. LacK Of adequate detention. Aging and inadequately sized pipes and other facilities. Section 1.3 Storm Water Management Practices The following is a discussion Of standard storm water practices commonly undertaKen to prevent flooding and provide treatment Of storm water runoff. Some Of these practices are specificallY designed to prevent or reduce the pollution Of water and are commonly referred to as Best Management practices or BMPs. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2PUUOSE•WPD—36— City of port Townsend SWMP Infiltration Where soils are pervious enough, storm water can be disposed of into the ground. This has the advantages of eliminating runoff and recharging groundwater. There is also the potential for pollutants to be directed into the groundwater, allowing it s contamination. A number of conditions are required in order that infiltration can be considered Feasible. These are: pervious soils, adequate distance above seasonal high water table or impervious subsurface layers, and prevention of sediment or other materials from clogging the structure. In order to address the potential for groundwater contamination, soils should have certain characteristics which indicate it provides treatment, and/or the facilities should be designed to provide pretreatment. Further investigation is required to confirm the needed soil characteristics, including the seasonal high water table elevation, before an infiltration Facility can be considered feasible and before it can be designed and constructed. Very careful attention to the design and construction of these facilities, in particular the provision of sediment removal devices, is critical to their function. Longterm effectiveness and maintenance needs of these facilities are also an issue. Even with pre-treatment, infiltration facilities can become clogged with sediment or the soils compacted. Infiltration trenches for individual residences may be especially problematic as home owners may not even be aware of their presence or proper maintenance procedures. f Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 37- City of port Townsend SWMP Conveyances Conveyances carry storm water from one location to another. Where none exist, runoff will pond until it reaches an elevation where it can flow out. Similarly, when a conveyances capacity is exceeded, water will baCK up onto adjacent land. In order to relieve the flooding caused by this baCK up of storm water, conveyances must be located and sized to pass storm water downstream where it can be discharged, typically at another larger conveyance facility or an open water body. Storm water conveyances often follow the same hierarchy as street designations with low flows on local streets combining to higher flows to serve as regional conveyance on collectors and arterials. Conveyances can be open channels or pipelines. Vegetated open channels can provide groundwater recharge and runoff treatment along their lengths due to their ability to infiltrate, filter and have biological uptaKe in vegetation. More land and slope is required to pass the same amount of flow in a vegetated channel when compared with pipes. They also require maintenance to Keep them clean of sediment, debris and an overabundance of vegetation which significantly restricts Flow. On the other hand, pipes do not provide runoff treatment, but they can be designed to flush out sediments along their smooth surfaces and therefore require less maintenance. They are also more expensive to install and repair. There are many locations in the City where conveyances do not exist or are inadequate to prevent flooding. 'providing improved conveyances, in conjunction with grading, inlets and erosion prevention outlets, is expected to provide the most expeditious solution to many of the City s existing flooding problems. Detention Development and land alteration causes storm water to runoff in greater quantities and at a Faster rate than when land remains in a naturally vegetated state. A typical method for reducing increased peaK Flow rates due to development is to Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD—38— city of port Townsend SCAMP detain storm water. The release of a reduced runoff flow requires storm water to be stored somewhere temporarily. This is typically done in ponds constructed in relatively Flat areas which can be excavated or bermed to provide the needed storage volume. Where land is not available on the surface, storage can also be provided below the surface in vaults or oversized pipes, though this is often more costly. Surface detention can also be more readily enhanced to provide water quality treatment, wildlife habitat and landscaping amenities. Pumps pumps are used where storm water cannot flow by Wet pond gravity to an outlet. This condition exists for many of the closed drainage basins in the City. The use of pumps in these areas will reduce the depth of water which is collected at their low points. 'pumps are costly to construct and require power and regular maintenance to Keep them Functional. For these and other reasons, the City wishes to avoid their use in storm water management. Runoff Treatment The treatment of runoff can be provided in many ways. Infiltration, conveyance and detention can provide some level of treatment, although treatment must be specificallY considered in their design in order to provide an optimal level of pollutant removal. Infiltration can provide adequate treatment. However, the use of infiltration is totally dependant upon having underlying soils with adequate permeability yet enough organic material to trap pollutants. It must be stressed that accurate soil information and careful attention to the design and construction of these Facilities, in particular the provision of sediment removal devices, is critical to their Function. These types of facilities can pose a significant threat to the quality of the Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 39— City of port Townsend SCAMP underlying groundwater. InFiltration Facilities are not advised for handling of large drainage areas. Biofiltration facilities can also provide high levels of treatment when properly designed. However, they typically serve smaller areas due to the need to restrict Flow velocity and volume passing through them. Flow must be spread uniformly across the biofilter, and shallow water depth is needed to assure effective treatment of runoff. Detailed guidelines for their design, construction and maintenance has recently been developed by Metro (October 1992) based on data collected from a monitored facility. min) r min,freeboard I Design Water Surface water quality design storm Wkilh as required flow(Developed ConditionsM Typical Biofiltration Swale Constructed wetlands and wet ponds provide a high level of treatment, and require larger areas of relatively Flat land for their construction. These types of facilities provide many opportunities for wildlife habitat and visual amenities as well. Wet ponds are often used to provide detention as well. Both sand filtration and wet vault Facilities can provide moderate to high levels of treatment. They are very expensive to construct and maintain, and are typically only used where the use of other BMPs is precluded due to limited available space. Land Acquisition The city has purchased a number of sites which have been designated for use in providing storm water conveyance, treatment and/or storage. Additional sites which are appropriate for use for storm water continue to be identified. The Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPOSE•WPD-yo- city of port Townsend SWMP location of these sites has generally been along existing drainage corridors and in areas of reported or anticipated flooding problems. A balance has been sought between acquiring valuable natural resource sites which are to be strictly protected and those than can be altered for drainage benefits. This land acquisition policy is in accordance with the natural systems approach as defined in the GMA Comprehensive 'plan. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 41— City of port Townsend SCAMP Insert Figure 2.1 Revised Draft February 1999 GKID:\SAM\SWMP\99swmp\2PURPORE•WPD-42- City of port Townsend SWMP Insert Figure 2.2 Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 43- City of port Townsend SWMP Section 3.0 Capital Improvements Program Section 3.1 Introduction I u Corm water capital improvements are most o ten thoughtSf OF as the physical projects that install facilities such as pipes, swales, ditches and detention ponds. Because 'port Townsend has adopted the natural drainage system approach, capital improvements also means acquiring land For protection and storm water use. Since the inception OF the storm water utility in 1987 over one third of the Funds collected have been expended on capital projects and land acquisition. Significant projects completed or land acquired include the following: portions of the Winona wetland and buffer portions of the Quaking Aspen wetland portions of the 50tH Street corridor and wetland Kearney Street improvements San Juan Avenue improvements Froggy Bottoms wetland restoration Hendricks Street 'pond McPherson 14tH Streets improvements Discovery Road improvements 16tH and Landes settling pond and drainage pipe port Bioswale This is not an exhaustive list nor does it include small projects that have been accounted for in the operation and maintenance budget. 'projects accomplished with city crew personnel and accounted for in the operations and maintenance budget include but are not limited to the following: Discovery Rd from Towne Point to Sheridan drainage pipe Sheridan from Discovery Road to 16tH Street drainage pipe 16tH Street from Sheridan to Gise road repair and drainage. 14tH Street and Hendricks improvements Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-44- city of port Townsend SWMP 25tH Street from Sherman to Sheridan Streets Water Street at VbanK improvements Haller Fountain infiltration system Vmati Ila Street from Si Iver Street to gravel pit ggtn and HendricKS Streets improvements Hastings and Thomas Streets improvements Washington and Harrison Streets Bishop parK improvements The Capital Improvements 'program (CIP) represents the schedule and the estimated costs to implement the proposed capital projects in the Storm Water Management 'plan. The CIP contains projects that can be classified into four categories: 1) regional conveyance and treatment, 2) regional detention, 3) localized problems and q) neighborhood projects. The annual Capital Improvement program also provides funding for other storm water management taSKS such as basin planning and catch basin replacement. These taSKS are discussed in later chapters. Table 3.1 presents the Capital Improvement 'program for the storm water utility. The existing storm water system in 'port Townsend is limited and in poor repair in comparison to other utility structures such as water and sewer. The CIP is aimed at constructing new facilities, upgrading sub-standard facilities and acquiring property where necessary in order to support the natural drainage systems approach. Section 3.2 Regional Conveyance and Treatment The regional conveyance needs for each drainage basin were analyzed and are presented in Appendix A. These conveyance needs include property acquisition For the protection of natural drainage courses and wetlands, regional treatment Facilities and constructed conveyance systems along existing arterial and collector streets. The regional conveyance system in 'port Townsend varies widely From basin to basin. Several newer systems have facilities that are built to current standards for both flow capacity and treatment (e.g. San Juan Ave. and Kearney Street). Most of downtown and some of uptown have conveyance systems that are adequate for capacity but IacK proper treatment. In the majority of the city Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 45- City of port Townsend SWMP however, the conveyance system is discontinuous, sub-standard or in need of repair. Figure 3.1 depicts the existing conveyance system. This plan recommends a program to provide conveyance along all arterial and collector streets. This conveyance system is not meant to replace the natural drainage corridors in the city but rather to augment them and to provide protection for the road system. The conveyance system will be designed to protect drainage basin integrity and consequently the receiving water bodies. Treatment facilities such as biofiltration swales and wetponds will be incorporated into the design as appropriate before discharge to receiving water bodies. The proposed conveyance system is depicted in Figure 3.2. Property Acquisition For Regional Conveyance and Treatment property acquisition for regional conveyance and treatment is an important component of the CTP• The 1996 Comprehensive 'plan named four regions that should be considered for acquisition as open space and preservation of their natural drainage corridor functions. These regions include: a. Winona Wetland b. Howard Street Wetlands and Drainage Corridor C. 50th Street Wetlands and Drainage Corridor d. Hastings/25th Street Wetlands and Drainage Corridor The City has already acquired significant properties in the Winona Wetland area and in the 50th Street Wetlands and Drainage Corridor. These Four areas are shown in Figure 3.3. The need to acquire property For storm water purposes also exists outside of these Four areas. The need For property acquisition is evaluated and prioritized based upon the Following criteria. property identiFied in construction plans For a storm water Facility. Undeveloped property in a Zoo year Flood plain. property in a delineated wetland identiFied For use For regional storm water control. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPOSE•WPD—46— City of port Townsend SWMP Upstream property to provide pretreatment for storm water runoff prior to entering the wetland. property in a identified wetland buffer needed to provide future storage capacity for projected development based on accepted hydrology models. Figure 3.4 shows property already acquired for storm water purposes. Cost estimates for future acquisition are included in the CIP. Project Identification and Prioritization Through customer surveys, maintenance crew experience, citizen notification and other means, the City has identified a wide variety of capital needs throughout the storm water system. These are listed in Appendix B. These projects were analyzed as appropriate to solve flooding problems, protect natural resources and habitat and improve water quality. Storm water projects for the CIP were selected and priorities based on the following criteria: imminent threats to human health or safety or human structures enhancement and/or protection of water quality in wetlands and surface water bodies anticipated water quality enhancement of project ease of maintenance aesthetics land use compatibility issues possibility to schedule with street improvement or other project area to be served Construction costs were considered in the selection of CIP projects. However, the projects with the lowest construction costs were not always selected; rather, the projects that best meet overall project goals were selected.Regional conveyance and treatment projects differ from locally managed projects (discussed below) in that they affect a larger number of homes or businesses or are associated with a regional drainage corridor. Regional conveyance and treatment projects were rated and planning level cost Revised Draft February 1999 GK 1D:\SAM\SWMP\99swmp\3CIP•WPD 47- City of port Townsend SWMP estimates were developed. Table 3.2 summarizes the recommended regional conveyance and treatment projects, estimated costs and the year projected For implementation. Locations OF the top priority regional conveyance and treatment projects are shown on Figure 3.5. More detailed information regarding potential solutions to high priority projects is included in Appendix C. Individual "TanKing Sheets', are included in Appendix D Section 3.3 Regional Detention The 1996 Comprehensive 'plan adopted the policy that storm water flows be maintained at historical levels. The DOE SWMM also mandates that flows be managed for development above a certain threshold and that wetland hydro periods be protected, The current City OF Port Townsend Engineering Design Standards require detention or infiltration OF storm water for all development proposing more than 4o% lot coverage in created impervious surface area. However, this threshold does not eFFectivelY account for two factors: 1) in many areas OF town the soils are unsuitable For infiltration, and 2) the runoff created by new impervious surface area From road improvements is not detained or inFiltrated by on-site Facilities For single Family residences. (It is important to distinguish that development projects that qualiFY as large parcels will normally be required to provide detention or inFiltration For all impervious surFaces.) polaris Engineering and Surveying conducted an analysis on the need For regional detention Facilities. Their recommendations are contained in the letter in Appendix E. These recommendations were then applied to each basin within the city. The number of regional detention basins needed and cost estimates were compared to the number of anticipated Equivalent Residential Units (ERO[is) and this analysis was used to develop the recommended System Development Charge as discussed in Chapter 9. This plan recommends that a Fee collection system be developed For Funding of basin speciFic regional detention ponds. The Fee should be structured to contain two parts. The First tier would be a base Fee (System Development Charge) that all new ETWs will pay to account For the detention that must be provided For road improvements. (Developments that provide detention or inFiltration For all OF Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPOSE•WPD-48- city of port Townsend SWMP their created impervious surface should be exempt from this fee system.) The second tier would be a fee in lieu of providing detention or infiltration on site. This is particularly appropriate in those areas of town where infiltration is not practical. These monies would be held in designated accounts that would then exclusively Fund the construction of regional detention ponds. Further discussion of these proposed fees is found in Chapter 9. The construction of these regional detention ponds represents a component of the recommended CIP. Construction of the regional detention facilities will be development driven and funded. Consequently, no specific locations or time Frame for their implementation is provided. Figures 3.6 and 3.7 depict conceptual schematics of a typical regional detention basin and service area. These regional detention basins could often be paired with a neighborhood project allowing nearby residents to volunteer and presenting significant cost efficiencies. Section 3.4 Localized Problems and Local Improvement Districts There exists another category of priority projects wr that are less complex and most often represent localized drainage problems. In 1993, the City 'public WorKs Department sent a survey to all 'Port Townsend residents regarding storm water. This survey queried residents about storm water problems in their neighborhood. Over loo residents responded and their problems have been tabulated and included in Appendix B• Those problems affecting a larger number of homes or businesses or a regional drainage corridor were considered as regional conveyance and treatment Projects. The remaining projects were considered to be localized projects. Most W not all of the localized problems reported are due to sub-standard road construction and many could be solved or improved by bringing these local access roads up to current standards. Unfortunately, the 'public WorKs Department does not have the resources to address the many localized problems. OF course, Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 49— City of port Townsend SCAMP routine maintenance of drainage facilities will continue, however, in many instances drainage features such as standard ditches and culverts were never installed. Due to our climate, soils and topography, many areas in the City naturally experience periods of innundation or saturation. This situation, common throughout the Puget Sound region, has led other jurisdictions to adopt ordinances that more clearly define nuisance flooding and damage flooding. The ordinances then prioritize response to those property owners experiencing damage flooding. Damage flooding is most often defined as flooding that causes structural innundation or damage beyond that of crawlspace innundation, drainage that poses a threat to utility infrastructure, and innundation of more than one half of a roadway lane. Flooding not found to meet this definition is considered to be nuisance flooding. Consequently, there exists a gap between drainage problems that can be alleviated by routine maintenance and problems that ranK high enough to be considered a capital improvement project or meet the definition of damage flooding. To fill this gap, this plan recommends the institution of a Local Improvement District (LID) 'program for roads and storm water to address those localized drainage issues not addressed in this CIP. 'property owners willing to participate in a LID will greatly expedite road and storm water improvements in their area. The 'public WorKs Director will continue to recommend to the city council that a portion of the budget be designated to address these localized problems. The City Engineer will also develop a reporting system for citizens. Localized storm water problems that pose an imminent threat to human health and sa-Fety, public or private property or priority habitat will receive first priority. Other problems deemed less urgent will be added to the database, evaluated, and prioritized on an annual basis. Table 3.3 presents the currently identified localized problems and their priority ranKing. 'problems will be addressed in priority order and as funding permits. Newly identified problems will be ranKed, added to the list and addressed as appropriate. Section 3.5 Neighborhood Projects Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-50- City of port Townsend SWMP Each year, the 'public WorKs Director will recommend that a portion of the CIP budget be designated to assist in neighborhood projects. Citizens may apply to WorK on a storm water project in their neighborhood in conjunction with 'public WorKS. This may allow citizens to obtain assistance from 'public WorKS to correct a problem or complete a preventative project that otherwise may not be prioritized. Examples of such projects may include upgrading driveway culverts, replanting an impacted wetland or eradicating invasive plants, or creating a regional wetpond or detention basin. The projects will be selected based on the following criteria: Technical Feasibility Regional or area benefits Storm water quantity or quality control or treatment Citizen participation Cost and resource availability Educational Benefit The nature of these projects may differ from what has been traditionally viewed as Capital Improvements projects. For example, a neighborhood group may wish to design and build an educational interpretive center near a wetland. Consequently, this portion of the plan may overlap with the Education 'program. Both of these programs are meant to foster stewardship at the local level. The participation of citizens and 'public WorKS will vary for each project. For instance, on one project public WorKS could supply materials and supervision with citizens performing much OF the labor while on another project city crews may assist the citizens. The intent of this program is to offer an opportunity to involve individuals and neighborhood groups who are concerned and are willing to WorK With the 'public WorKs Department in a team effort. Section 3.6 Implementation Recommendations Adopt the Capital Improvements 'program to provide regional conveyance along arterials and collectors, acquire property, and provide treatment of storm water Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 51- City of port Townsend SWMP Adopt a regional detention program. Institute a two part fee collection system for regional detention. As the first part, establish a regional detention System Development Charge to be paid by all new ETWs not providing detention for their street improvements. As the second part, establish a fee-in-lieu of construction program. Institute a Local Improvement District program to address localized drainage issues. Establish a reporting system and database for reported drainage issues. Evaluate and prioritize those projects to be addressed as part of the Locally Managed Projects. Continue and expand the Neighborhood Projects program. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-52- City of port Townsend SWMP Insert Table 3.1- Capital Improvements 'program CIPCOST•XLS Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 53- City of port Townsend SLUMP Insert Table 12Regional conveyance, area specific 4, property acquisition Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2PURPORE•WPD-54- City of port Townsend SWMP Insert Table 3.3— Drainage 'problem Areas Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 55- City of port Townsend SLUMP Insert Figures 3.1 Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-56- City of port Townsend SWMP Insert Figures 3.2 Revised Draft 9/18/98 GK/D:\SAM\SWMP\99swmp\s-INTRD.WPD 57- City of port Townsend SWMP Insert Figures 3.3 Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-58- City of port Townsend SWMP Insert Figures 3.4 Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\1-INTRD.WPD 59— City of port Townsend SCAMP Insert Figures 3.5 Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-so- City of port Townsend SWMP Insert Figures 3.6 Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\1-INTRD.WPD 61— City of port Townsend SCAMP Insert Figures 3.7 Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-62- City of port Townsend SWMP Section 4.0 Operation and Maintenance Section 4.1 Introduction An effective operation and maintenance program is vital to the success of any storm water management 1 plan. Storm water managers across the country have Found that in the case of water quality best management practices, failure to provide proper maintenance results in reducing the removal efficiency u OF a system and/or in reducing the systems hydraulic capacity. In fact, IacK of maintenance often can result in flooding problems, and can also increase the pollutant load of storm water discharge. Traditionally, maintenance programs are based on the effort necessary to Keep the system Functioning from a water quantity standpoint. This plan recommends increasing the maintenance activities to improve water quality. In addition, the i99q 'Puget Sound Water Quality 'Plan requires each county and city to develop and enforce operation and maintenance programs for new and existing public and private storm water systems. The Department of Ecology's Storm Water'program Guidance Manual for the Puget Sound Basin requires that the City,s maintenance program must: Adopt operation and maintenance (04,M) ordinances requiring and enforcing the proper operation and maintenance of public and privately owned storm water/drainage systems. Maintain records of new (and existing) facilities, including list and location OF existing and new facilities, as-built drawings, O/M requirements, O/M records, engineering plans and any other pertinent documents, records and data. Adopt Ecology s minimum standards for maintenance of storm water Facilities. Revised Draft 9118198 GK 1D:\SAM\SWMP\99swmp\v04,M•WPD 63- City of port Townsend SWMP Per-Form annual inspection and maintenance of storm water systems. perform immediate correction of water quality criteria violations. The City currently operates an annual maintenance program for its public storm water facilities which is funded through the City,s Storm Water (Jtility Fund. The City employs its street crews consisting of six full time employees with approximately 25 percent of their time or 1.5 Full-time equivalent (FTE) dedicated to inspection and operation and maintenance of the City owned storm water facilities. The street crew maintains a list of city-owned catch basins, culverts and out-Falls. The majority of these facilities are inspected annually and maintained on an as-needed basis. The City owns and operates a vacuum trucK for removing debris from catch basins. The city crews also respond to emergency calls reporting Flooding or blocKing of facilities. Section 4.2 Operation and Maintenance Management Operation and maintenance management includes various planning, engineering, and administrative activities, and typically consists of the following steps: 1. Inventory of Facilities. This includes identifying the types of facilities to be maintained and documenting their condition and location. 2. Needs Assessment. Determining the frequency of maintenance for each class of facility (catch basins, culverts, swales, etc.); and defining what maintenance is required. 3. Optimal Crew Configurations. Defining the combination of labor sKills, equipment, and materials required to perform a given tasK most efficiently. 4. Planning Factors. These are the planning tools used to translate the data From the inventory, needs assessment, and optimal crew configurations into measurable performance units which can be scheduled and monitored. Such planning factors include resource requirements and productivity standards. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD—64— City of port Townsend SWMP 5. Scheduling. This activity entails allocating available resources to perform the ma ntenance at the proper ti me i ntervais accord ng to defi ned priorities in order to complete the worK efficiently. 6. Reporting and Control. Monitoring actual worK accomplished is essential to improving the accuracy of subsequent scheduling efforts. Through reporting feedbacK, discrepancies between assumptions and actual conditions are revealed and appropriate action can be taKen. These operation and maintenance management steps are depicted in Figure 4.1 and are discussed in more detail below. 1. Inventory of Facilities. The City is creating a Geographic Information System (GTS) for the management of its public facilities, including storm water. The city has begun the tasK of compiling a complete inventory of storm water facilities. Staff has documented the location and condition OF catch basins, culverts, detention ponds, biofiltration swales, infiltration trenches, drain pipe and roadside ditches. Much of this data has been mapped and is available in map sets. A summary of the existing system inventory appears in Table m. Table 4.1 Existing Inventory of Public Facilities Facility Type Quantity Measurement Unit Street Sweeping Downtown 2.4 miles Arterials 21.9 miles Catch Basins 863 each Maintenance Holes 76 each Infiltration Trenches 2 each Pipes 74,961 linear feet Swales 16,964 linear feet Detention 5 each Ponds/Retention Revised Draft 9118198 GK 1D:\SAM\SWMP\99swmP\v04,M•WPD 65- City of port Townsend SWMP Ditches 41,933 linear feet Culverts 196 each 1. 4,3 Needs Assessment and Optimal Crew Configurations. The level of service for storm water facilities have been established in terms of maintenance frequencies. These frequencies are the time intervals for Per-Forming recurring maintenance. These frequencies have been determined from Department of Ecology guidelines and standards developed by other jurisdictions in the Puget Sound Basin. Optimal crew configurations are the number and sKills of people and the types of equipment required to perform a tasK most efficiently. Maintenance Frequencies and optimal crew configurations are presented in Table 4.2. Table 4.2 Maintenance frequency and Optimal Crew Configurations Facility Type Recommend Standard Crew Configuration Frequency Street Sweeping Downtown 52 times per year 1 Maintenance Worker, 1 Sweeper Arterials 12 times per year 1 Maintenance Worker, 1 Sweeper Catch Basins Cleaning 2 times per year 2 Maintenance Workers, 1 Vactor, 1 truck Repair\Replace 1 time/33 years 3 Maintenance Workers 1 Backhoe, 1 Dumptruck, 1 truck Maintenance Holes Cleaning 1 times per year 2 Maintenance Workers, 1 Vactor, 1 truck Repair\Replace 1 time/33 years 3 Maintenance Workers 1 Backhoe, 1 Dumptruck, 1 truck Infiltration Trenches Cleaning 1 times per year 2 Maintenance Workers, 1 Vactor, 1 truck Repair/Replacement 1 time/15 years 3 Maintenance Workers, 1 Backhoe, 1 Dumptruck, 1 truck Pipes FlushingNactor 1 time/3 years 2 Maintenance Workers, 1 Vactor, 1 truck Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2PURPORE•WPD—66— City of port Townsend SWMP Repair 1time/50 years 3 Maintenance Workers 1 Backhoe, 1 Dumptruck, 1 truck Swales Vegetation/Cleaning 4 times per year 2 Maintenance Workers, 1 Vactor, 1 truck Repair\Replace 1 time/10 years 3 Maintenance Workers, 1 Backhoe, 1 Dumptruck Detention Ponds/Retention Control Structure Cleaning 1 time per year 2 Maintenance Workers, 1 Vactor, 1 truck Repair\Replace 1 time/33 years 3 Maintenance Workers, 1 Backhoe, 1 Dumptruck, 1 truck Pond Cleaning/Vegetation 1 times per year 1 Maintenance Worker, 1 Weed Whip Remove Sediment 1 time/5 years 3 Maintenance Workers, 1 Backhoe, 1 Dumptruck, 1 truck Ditches Vegetation Control 2 times per year 1 Maintenance Worker, 1 Mower Clean, reshape, remove 1 time/5 years 4 Maintenance Workers, 1 Backhoe, 2 Dumptrucks sediment Culverts Clean 1 time/3 years 2 Maintenance Workers, 1 Vactor, 1 truck Clean inlets 2 times per year 2 Maintenance Workers, 1 truck 1. Planning Factors. 'Planning Factors are those identifiers, measurement units and standards that are necessary for planning and budgeting maintenance activities and reporting actual versus planned costs and performance. 'Planning factors include a list oftaSKS, output measures for documenting production of each of the taSKS (examples include lineal Feet, mile and each unit), and performance standards for each taSK. Table 4.3 contains a summary of the taSKS, output measure and production standards. Table 4.3 Planning Production Standards Facility Type ProdUcti©n Standard Street Sweeping Downtown 25 miles per day Arterials 25 miles per day Catch Basins Cleaning 24 per day Repair\Replace 1 per day Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\v04,M•WPD 67— City of port Townsend SWMP Maintenance Holes Cleaning 8 per day Repair\Replace 1 per day Infiltration Trenches Cleaning 4 per day Repair/Replacement 0.5 per day Pipes Flushing/Vactor 1500 If per day Repair 50 If per day Swales Vegetation/Cleaning 2500 If per day Repair\Replace 750 If per day Detention Ponds/Retention Control Structure Cleaning 8 per day Repair\Replace 1 per day Pond Cleaning/Vegetation 2 per day Remove Sediment 2 per day Ditches Vegetation Control 2500 If per day Clean, reshape, remove sediment 750 If per day Culverts Clean 10 per day Clean inlets 16 per day 5. Scheduling. The worK that needs to be performed is determined by applying the recommended frequencies to the inventory of physical Facilities. Table 4.4 translates the planning factors into the number of worKing days and full time equivalent labor positions required to perform the maintenance activities. Table 4.4 Labor Scheduling and Equivalents Street Sweeping 1 Downtown 2.4 MI 72 1 25 6.9 0.03 2 Arterials 21.9 MI 12 1 25 10.5 0.05 Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD—68— City of port Townsend SWMP Catch Basins 3 Cleaning 798 EA 2 2 24 133.0 0.60 4 Repair\Replace 798 EA 0.03 3 1 71.8 0.32 Maintenance Holes 5 Cleaning 40 EA 1 2 8 10.0 0.04 6 Repair\Replace 40 EA 0.03 3 1 3.6 0.02 Infiltration Trenches 7 Cleaning 2 EA 1 2 4 1.0 0.00 8 Repair/Replacement 2 EA 0.067 3 0.5 0.8 0.00 Pipes 9 Flushing/Vactor 67,345 LF 0.33 2 1500 29.6 0.13 10 Repair 67,345 LF 0.02 3 50 80.8 0.36 Swales 11 Vegetation/Cleaning 16,964 LF 4 2 2000 67.9 0.30 12 Repair\Replace 16,964 LF 0.1 3 750 6.8 0.03 Detention Ponds/Retention 13 Control Structure 14 Cleaning 5 EA 1 2 8 1.3 0.01 15 Repair\Replace 5 EA 0.03 3 1 0.5 0.00 Pond 16 Cleaning/Vegetation 5 EA 1 1 2 2.5 0.01 17 Remove Sediment 5 EA 0.2 3 2 1.5 0.01 Ditches 18 Vegetation Control 41,933 LF 2 1 2500 33.5 0.15 19 Clean, reshape, remove sediment 41,933 LF 0.2 4 750 44.7 0.20 Culverts 20 Clean 75 EA 0.33 2 10 5.0 0.02 21 Clean inlets 75 EA 2 2 16 18.8 0.08 6.Reporting and Control. In 1998 the City instituted job costing protocols for all 'Public Works departments. This is an important first step in establishing the critical Feedback necessary to track accomplishments as compared to required activities and performance standards. This plan recommends amending the job cost tasks to be consistent with the maintenance activities presented above. Section 4.3 Emergency and Complaint Response Each Year the 'public Works Department receives many complaints about storm Revised Draft 9118198 GK 1D:\SAM\SWMP\99swmP\v04,M•WPD 69- City of port Townsend SCAMP water. Due to our climate, soils and topography, many areas in the City naturally experience periods OF innundation or saturation. AS previously NOW discussed, this situation, common throughout the Puget Sound region, has led other jurisdictions to adopt ordinances that more clearly define nuisance flooding and damage flooding. The ordinances then prioritize crew response to those property owners experiencing damage flooding. Damage flooding is most often defined as flooding that causes structural innundation or damage beyond that OF crawlspace innundation, drainage that poses a threat to utility infrastructure, and innundation OF more than one half of a roadway lane. Flooding not found to meet this definition is considered to be nuisance flooding. Storm water complaints Found to be nuisance flooding situations are left to the responsibility OF the property owner or addressed as localized projects as described in Section 3. public WorKS currently uses a Citizen Concern form to document complaints or requests for action . A more detailed form could be used as both a worK order and action report to document complaints and responses by the City. An example OF a more detailed form is provided as Exhibit 4-1. Situations that pose an imminent threat to human health or safety, or human structures are treated as emergencies. City crews maintain an emergency schedule and are able to respond to emergency calls rapidly. Section 4.4 Implementation Recommendations The following is a summary OF the status OF the necessary elements OF the 04'M program as described above as well as proposed activities and their schedule. ordinance. The City plans to adopt an Operation and Maintenance ordinance by December 31, 1999. The existing ordinance has provisions for the assumption OF maintenance OF private systems by 'public WorKs but lacks other elements required by Ecology. Amore detailed comparison OF the existing ordinance and Ecology s ordinance can be Found in Section 6 OF this plan. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPOSE•WPD-7o- city of port Townsend SWMP Record Keeping Job costing data should be updated to include labor hours spent performing specific taSKS. These records should be compared to performance standards as a feedbacK for management of the Operation and Management program. The City 'public WorKs Engineering Division maintains records and record drawings for city-owned catch basins and privately owned catch basins since 1990. Drainage plans submitted for development review are maintained at the 'public WorKs Department. Maintenance records for all storm water Facilities should be maintained. sttandards, Inspection and/Maintenance Frequency and Wo/ation Corrections As shown in Table q.q it is estimated that the City needs approximately 2.5 FTE employees to maintain the existing facilities at the required standards. Currently the City employs 1.5 FTE dedicated to storm water maintenance. This plan identifies the need for 1.o additional FTE positions for the street crew to be dedicated to maintenance of storm water facilities to fully maintain the system. Definition ofVuisance and Drainage Flooding This plan recommends that the City adopt by ordinance a definition of nuisance and damage flooding. The ordinance should also define the level OF service desired of the maintenance crews. An citizen advisory committee could be formed to draft both this ordinance and the operation and maintenance ordinance. Combine current Citizen Concern complaint system with the localized projects tracKing system. Issues not deemed to be emergencies should be evaluated and prioritized on an annual basis. Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\v04,M•WPD 71— city of port Townsend SCAMP Insert Exhibit 4.1 Flow Chart entitled q Ypical Maintenance Management System HOW Development 'process Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2PURPORE•WPD—72— City of port Townsend SCAMP insert Exhibit 4-1 Citizen Concerns 4,FOIIOW-up Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\v04,M•WPD 73— City of port Townsend SCAMP insert Exhibit 4-2 Complaint Investigation Report Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-74- City of port Townsend SWMP Section 5.0 Basin Planning and Special Studies Section 5.1 Introduction Basin planning is a comprehensive examination of the hydrology, geology, soils, ecology and land use characteristics of a watershed and the development of basin-specific practices to mitigate the impacts of current and future land uses on runoff quality and quantity. Basin planning can be effective at addressing both long-term cumulative impacts of pollutant loads and short-term acute impacts of pollutant concentrations, as well as the hydro logic impacts on wetlands and streams. Basin planning provides an opportunity to evaluate the hydrology and ecology of a basin in a comprehensive manner and develop standards specific to the environment in that basin. Basin plans are especially well-suited to developing control strategies to address impacts from Future development and to prioritizing projects to correct specific problems that provide the greatest basin-wide benefits. The Department of Ecology's Storm Water Management Manual (DOE SWMM contains recommendations for the use of basin plans. Adopted and implemented watershed-based basin plans may be used to modify the minimum requirements of the DOE SWMM provided that the level of protection for surface or ground water achieved by the basin plan will equal or exceed that which would be achieved by the minimum requirements. Standards developed under a basin plan may not modify those in the DOE SWM M until the basin plan is formally adopted and fully implemented by local government. The recommendations contained in a basin plan may include modified standards For new development and redevelopment, required best management practices For new development, and retrofitting of best management practices (13M?s) For existing development and/or redevelopment in order to achieve watershed-wide pollutant reduction goals. Basin plans may also include recommendations for regional solutions which may allow development to be mitigated off-site. These solutions may be designed to provide the greatest basin-wide benefits rather than correcting only area specific problems. This would allow the prioritization of capital improvement projects within a basin and the expenditure of mitigation funds for regional solutions. For example, a basin plan may outline a strategy which would allow a developer to contribute Revised Draft 9118198 GK 1D:\SAM\SWMP\99swmp\5[AMN•WPD 75- City of port Townsend SWMP to a mitigation fund that would then be used to construct high priority projects within the basin. Section 5.2 History of Basin Planning in Port Townsend Wetlands/Storm water Advisory Committee Basin Surveys The City OF port Townsend has completed the preliminary steps in basin planning using the volunteers of WetSWAC. In 1992, WetSWAC members conducted reconnaissance level basin surveys for fourteen OF the nineteen drainage basins in 'port Townsend. Wet WAC members gathered information about the City's various basins and drainage Ways. Field notes were then compared to existing information, including wetland and Environmentally Sensitive Area maps and soils information. The reports provide the Foundation for basin-specific management plans, including identification OF problem areas, capital improvement recommendations, monitoring and additional study recommendations. These reports also contain a compilation OF drainage problems reported by citizens in the 1993 survey. The Drainage Basin Survey Reports are contained in Appendix F. While the surveys are a comprehensive first step in city-wide basin planning, additional bacKground data and analysis are needed. The surveys were conducted in the dry season and there is a need for field verification during the wet season. In addition, field data was not collected for five OF the nineteen basins. The surveys should be considered "worKing documents" by the City. For these reports to be most effective, they should be reviewed and updated over time with new and additional information as each basin continues to develop. FCAAP Grants and Basin Studies The City received a 1993-95 FCAAP Grant to complete a Comprehensive Storm Water Implementation 'plan and an Implementation 'plan Area Standard for Basin 4A and 4B (North Beach Area OF the Chinese Gardens Basin). The Basin qA B Implementation 'plan is designed to augment this Storm Water Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD—76— City of port Townsend SWMP Management 'plan and to provide a more detailed analysis of storm water problems and possible solutions in this rural but rapidly developing basin. The original draft of this implementation plan was issued in June of 1995 and included analysis for sub-basins 4A and 4B• The document is currently under revision to include analysis of sub-basin 4C• The Implementation 'plan will outline a combination of structural and non-structural solutions including but not limited to: Constructed wetlands Biofiltration swales OFF-line detention/storage facilities Culverts purchase of existing wetlands or drainage corridors Code revisions Development standards and zoning regulation revisions Emergency response procedures Voluntary land use restrictions The implementation plan will outline general standards and best management practices to be applied on a basin-wide basis. Additionally, it will address changes to existing ordinances required for implementation of the plan. The Draft Comprehensive Storm Water Implementation 'plan and the Implementation 'plan Area Standard for Basin 4A4,B are included as Appendix G to this report. The City received a similar grant for the 1995-97 FCAA? biennium to fund basin studies for Basins 5, s, and 9. The City also received an FC A? grant For the 1997-1999 biennium to complete Basin 5, 8 and 9 and additionally For basin studies for Basin 6, 7 and 4C• The area standards developed for these basins will provide development standards consistent with current engineering and environmental design practices and will identify specific ordinances and review procedures for several drainage basin types that are representative of those throughout the city (closed depressions, developed areas, and areas tributary to saltwater lagoons). Section 5.3 Future Basin Studies Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\5[AMN•WPD 77- city of port Townsend SWMP The City has prioritized other basins for future study Of this same nature. Additional resources other than FCAA? grants will be sought in order to Fund these studies. The basins selected for additional study were prioritized considering the following criteria: Level and rate Of development in the basin Existing wetlands, drainage corridors, receiving water bodies or other environmentally sensitive areas possibility Of regional solutions Existing drainage problems Known or suspected water quality or priority habitat problems priority Habitat It is anticipated that the basin plans prepared for Basins 4, 5, 6,7,8 and 9 will be representative Of basins throughout the city and will thus serve as prototypes For future basin plans. Consequently, the effort for the remaining basins is expected to be lower than that Of the initial studies. The implementation schedule and related costs for the basin studies are presented in 'T'able 5.1. Chinese Gardens and Kah Tai Lagoon Chinese Gardens and Kah Tai Lagoon are both remnants Of once much larger estuary systems. Both bodies Of water are currently subject to some level Of tidal influence by way Of dysfunctional tidal gates. The basic issues Of ecological importance and inventory, recommendations for salinity levels and management strategies have yet to be addressed. This plan recommends the completion Of management plans for these two bodies Of water. Cost estimates and implementation schedules are also included in Table 5.1 Table 5.1 Basin Planning Implementation.Schedule Basin Number total 1998 1999'' 2000 2001 20 02 2003 2004+ Cost Basin 4 7,000 7,000 Basin 5 8,000 8,000 Basin 6 13,000 13,000 Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2PURPORE•WPD-78- city of port Townsend SWMP Basin 7 8,000 8,000 Basin 8 6,000 6,000 Basin 9 12,000 12,000 Happy Valley 27,000 Overflow Public Hearings 17,000 Kah Tai 10,000 Chinese Gardens 10;000 Basin 11 15,000 15,000 Basin 10 15,000 7,500 7,500 Basin 15 15,000 7,500 7,500 Basin 16 10,000 5,000 5,000 Basin 17 10,000 5,000 5,000 Basin 18 15,000 7,500 7,500 Basin 12 35,000 17500 17500 Basin 13 20,000 10000 1'!0000 Basin 14 10,000 5000 5000 Basin 1 15,000 15,000 Basin 2 10,000 10,000 Basin 3 10,000 10,000 total Cost 234,000 47;500 32,500 98,000 $20,000 32,500 32,500 $35;000 Section 5.4 Critical Drainage Corridors The City's Environmentally Sensitive Areas Ordinance defines "Critical drainage corridor" or "area" to mean: An area which has been determined (by the 'port Townsend Department OF Public WorKS) to require more restrictive regulation than city-wide standards afford, in order to mitigate Flooding, drainage, erosion or sedimentation problems which have resulted or will result from the cumulative impacts of development and urbanization. To date, limited identification of critical drainage corridors has occurred. The primary conveyance system is defined by topography and established drainage patterns. SpecificallY, the primary conveyance system is that portion Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\5BAMN•WPD 79- City of port Townsend SCAMP OF the conveyance system, both natural and human-made, which collects, contains and provides for the flow of surface and storm water from the MAWIM highest points in the basin down to a receiving water or collection area. The primary conveyance system receives storm water from tributaries secondary conveyance systems). The natural elements of the primary conveyance system include swales and small drainage courses, ponds, frequently ponded areas and wetlands. The human-made elements of the primary conveyance system include gutters, ditches, pipes, channels, and most retention/detention Facilities. Frequently Flooded Areas are defined as: lands subject to a one percent or greater chance of flooding in any given year or are mapped as such by the Federal Emergency (Management Agency or the National Flood Insurance program, or areas identified by the public WorKs Department as critical drainage corridors. These areas include but are not limited to floodplains, critical drainage corridors, laKes, coastal areas and wetlands. Identified critical drainage corridors and frequently Flooded areas are presented in Figure 5.1. (wetlands, potential wetlands, flood plains and flood Ward areas are also identified in Figure 5.1) This map does not represent a comprehensive survey of the city but is based on current Knowledge of drainage basins and corridors. FCAAP and other future studies will undoubtedly modify this map. This plan recommends that the City continue to identify critical drainage corridors in those basins that are currently relatively undeveloped and are facing increasing development. Adoption of this plan will constitute an update to the Environmentally Sensitive Areas map. As with other ESA maps, it is not complete and is to be used only as a guide to the general location of the critical drainage corridor. Section 5.5 Notice of Presence of Environmentally Sensitive Areas and Public Adoption of Special Studies The Environmentally Sensitive Area ordinance stipulates that private property owners ...with a Field verified presence of Sensitive Areas or their associated buffer pursuant to this code on which a development proposal is submitted and acted upon shall record a notice of presence of Sensitive Areas with the Jefferson County Auditor in a form approved by the City Attorney (emphasis Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-8o- city of port Townsend SWMP added). Special studies such as basin plans often reveal the presence of environmentally sensitive areas such as wetlands, frequently Flooded areas, Flood plains and critical drainage corridors. At present, there is no formal process by which the City can record a notice of presence of Sensitive Areas on property that it does not own or which has no development proposal submitted and acted upon. This plan recommends the adoption of a process to record a notice of Sensitive Areas with the Jefferson County Auditor regardless of ownership and not contingent upon the submission of a development proposal. The process must include a public hearing where property owners or other interested parties may challenge the findings of the City. once any challenges have been resolved the notice may be recorded. Exhibit 5.1 diagrams this process. The 1997-99 FC AP grant includes funding for the public process required to adopt the basin plans. Adoption of the basin plans after a public hearing should be followed by the appropriate notice to title to the affected properties. The Federal Emergency Management Agency (FEMA) National Flood Insurance program (NFIP) maintains maps of Floodplain and Flood hazard areas. As part OF the agreement For maKing Flood insurance available in a community, the NFJP requires the participating community to adopt Floodplain management ordinances containing certain minimum requirements intended to reduce Future Flood losses. 'port Townsend has adopted such minimum requirements. The community is also responsible For submitting data to FEMA reFlecting revised Flood hazard information so that NFIP maps can be revised as appropriate. As the FCAAP studies become Final, application should be made to-FEMA For revisions to Floodplain maps and Flood Insurance Studies. Table 5.2 outlines mechanisms used by other jurisdictions within Washington State For designating critical areas. Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\5[AMN•WPD 81— city of port Townsend SCAMP Table 5.2 Wetland or Critical Area Notifications Mechanisms within Washington State Agency Source Description Zone Change King County King County Code Add P suffix to zoning designation.Requires special development standards 21.46.150 for designated parcels. Specific planning requirements are shown in Community Plan Area zoning documents Restrictive Covenant City of Tacoma Ordinance 25060 Requires owner of property within a critical area buffer which has been verified Section 13.11.060.E by an assessment to record a notice of the critical area or critical area buffer and its applicability to the subject property.The recording form is specified in the Municipal Code. City of Steilicom Municipal Code Requires of owner of property with field verification critical land area or their Section 16.16.140 buffers on which a development proposal is submitted to record a notice of the presence of critical land areas or their buffers,the applicability of the Municipal Code,and the limitations to the development of the property.The recording form is specified in the Municipal Code. City of Tumwater Municipal Code Requires of owner of property with field verified critical land area or their Section 16.28.1401 buffers to record a notice of the presence of critical land area or their buffers. The recording form is specified in the Municipal Code. City of Spokane Ordinance No.C-30956 Requires wetland permits for construction activities within wetlands or wetland buffers.Requires owner of property with a field identified wetland or wetland buffer on which a permit application is submitted to record a notice when permit is approved.The recording form is provided by the City. City of Gig Harbor Municipal Code Requires of owner of property with field verified critical land area or their Section 18.08.080 buffers on which a proposal is submitted to record a notice of the presence of critical land areas or their buffers. The recording form is specified in the Municipal Code. Creation of a Separate Lot, Parcel or Tract City of SeaTac Municipal Code Section Requires wetlands and wetland buffers to be contained within sensitive area tracts. 15.30.180 Applies to subdivisions,building site plans,short plats and other applicable development. Ownership of the tract shall be homeowner association or other entity charged with maintenance. Site plans are to be attached to notice of title. City of Renton Municipal Code Section Requires wetlands and wetland buffers to be contained within sensitive area tracts. 4-32-7.13 Applies to land subdivisions,binding site plans,short plans and other applicable. Ownership of the tract shall be homeowner association or other entity charged with maintenance Site plans are to be attached to notice of title. Section 5.6 Implementation Recommendations Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2PURPOSE•WPD—82— City of port Townsend SWMP Adopt the basin planning implementation schedule to complete basin Plans for the remaining sub-basins in the City and special studies for Kah Tai and Chinese Gardens Lagoons. Update the Environmentally Sensitive Area map to include information contained in Figure 5.1. Institute a process to record a Notice of Sensitive Areas with the Jefferson County Auditor not contingent on the submission of a development proposal. Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\5[AMN.WPD 83- City of port Townsend SWMP Insert Figure 5.1 E5A Map Insert Exhibit 5.1 Notice to Title process Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-84- City of port Townsend SWMP Section 6.0 Ordinances and Standards A//cities and counties shall adopt storm water programs which include the minimum requirements for new development and re-development and other basic storm water controls contained in the plan and in,guidance developed bYEcologY All counties and cities in the Puget,sound basin shall adopt ordinances requiring storm water controls for new development and re-development The 1994 'Puget Sound Water Quality Management 'plan Section 6.1 Introduction Storm water runoff creates significant capacity and water quality problems. The creation of impervious surfaces such as parKing, rooftops, driveways, and roads results in major increases in peaK Flows during and following storms. The runoff is consistently high in pollutants such as nutrients, heavy metals, petroleum products, silt and coliform bacteria. Facilities to collect and convey or to store the peaK Flows are expensive to design and construct. Facilities to treat storm water to remove pollutants are even more expensive. Yet concerns for public health and sa-Fety, potential damages caused by erosion, flooding, and contamination and other environmental considerations require the City to address these issues. Because cities must address these issues, and capital improvement solutions are enormously expensive, most jurisdictions have adopted increasingly strict ordinances requiring new developments to detain their runoff and improve the quality of their discharges to the public system. These requirements transfer the costs of addressing the issues to those projects creating the additional storm water runoff. The costs of addressing the issues at the source are far lower than those of correcting the problems later at public (taxpayer) expense.. The Puget Sound Water Quality Management 'plan requires that the City's basic storm water program shall include ordinances which address, at a minimum: Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\60RDINAN•WPD -85- City of port Townsend SWMP 1. the control of off-site water quality and quantity effects; 2. the use of best management practices for source control and treatment; 3. the effective treatment, using best management practices, of the storm size and frequency (design storm) as specified in the manual for proposed development; 4. the use of infiltration, with appropriate precautions and maintenance, as the first consideration in storm water management; 5. the protection of stream channels, fish, shellFish, and other aquatic habitat and wetlands; 6. control of erosion and sedimentation for new construction and re-development projects; and 7. local enforcement of these storm water controls. The Department of Ecology has provided guidance to assist local governments. The Storm water'program Guidance Manual provides model ordinances for both regulation of new and re-development and operation and maintenance programs. Local governments were required to adopt technically equivalent ordinances by January 1, 1995. The Department of Ecology has also developed the Storm Water Management Manual for the Puget Sound Basin (DOE SWMM). State law requires that local governments in the Puget Sound Basin adopt the DOE SWMM or its technical equivalent by January 1, 1995. Section 6.2 Summary of Compliance Activities Performed by the City The City has had in existence since 1983 an ordinance that sets storm water related development review policies and procedures. In 1997, the Port Townsend Municipal Code ('PTMC) was amended and the drainage ordinance was replaced (Ord. 2579, 1997). Ordinance No. 2,579 sets forth development standards for storm water in PTMC Title 13 Article N. The ordinance also adopted an Engineering Design Standards (EDS) manual. The purpose of the EDS manual is to establish minimum requirements for all development within the City relating to water, sewer, storm water, transportation, utilities, clearing and grading, erosion and sediment control and construction activities. The EDS manual sets forth the requirement that all development shall comply with the Department of Ecology s Storm Water Management Manual (DOE SWMM). A copy of the sections of the PTMC and the EDS pertaining to Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-86- City of port Townsend SWMP storm water are included in Appendix H. Section 6.3 Evaluation of Existing Ordinances and Standards Development and its potential effects upon water quality is regulated by both the Tile 13 Article N(Storm water/Drainage Ordinance), the EDS and the Environmentally Sensitive Area (ESA) ordinance (1rT'MC Title 19.05). Currently, the P T'MC and the EDS requires review of development with creation of over qo% impervious developmental coverage within the property or 5000 square feet of impervious area, whichever is lower. If development is proposed within a ESA, plan review is required regardless of the amount of impervious surface created. The EDS requires that all clearing and grading and other land alterations employ erosion and sediment control Best Management practices (BMPs) as outlined in the DOE SWMM In general, the recent amendments to the Port Townsend Municipal Code and adoption OF the EDS are consistent with Ecology s Model Ordinance. Table 6.1 outlines in more detail the comparison of the City,s existing ordinance and Ecology's Model Storm water Management Ordinance for regulation of development. The City does not have a specific operation and maintenance ordinance. Table 6.2 outlines the elements of Ecology s Model Operation and Management Ordinance. Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\60RDINAN•WPD -87- city of port Townsend SWMP Issue Model Storm Water Port Townsend Management Ordinance small"Parcel Requirements Less than 5000 sq ft Less than 40% impervious Low Impact projects) impervious and less than one surface coverage within the acre land disturbing requires- property and less than 5000 small"Parcel Erosion and sq. ft• impervious. sediment Control (ESC)'Plan Tight line of roof down to include. spouts and controlled Construction Access discharge required. Route. Small"Parcel Erosion and Stabilization of Denuded sediment Control (ESC)"Plan Areas. to include. protection of adjacent • Construction Access properties. Route. Maintenance. stabilization of Denuded Other BMps as required. Areas. protection of acliacent properties. Maintenance. Other BMps as required. Medium Impact projects Greater than 40%impervious surface coverage but less than 5000 sq ft impervious Use of standard plans for infiltration or detention pipe. Small'Parcel ESC required. Large parcel Requirements Greater than 5000 sq ft Greater than 5000 sq ft High Impact projects) impervious and/or less than impervious. one acre land disturbing Drainage plan by licensed activities requires-civil engineer. Small parcel ESC Same requirements as the permanent storm water DOE SWMM- Quality Control"Plan. Greater than one acre disturbed Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2PURPOSE•WPD-88- City of port Townsend SWMP Large parcel ESC with 15 minimum requirements. permanent storm water Quality Control plan with 11 minimum requirements including ESC)- Redevelopment- Creation of No requirements. Drainage plan required when less than 5000 sq ft impacts to water quality are impervious additional apparent. Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\6ORDINAN•WPD -89- City of port Townsend $LAMP Table 6.1 coat. Redevelopment greater than $Minimum Requirements No specific language 5000 sq ft impervious apply to redevelopment addressing redevelopment site. however DOE SWM M source control 3MPS to thresholds and requirements entire site. apply. Redevelopment greater than $Minimum requirements No specific language 5000 Sq ft impervious where apply•addressing redevelopment 1. site is greater than 1 acre $source control BM'Ps apply however DOE SWMM and greater than 50% to entire site. thresholds and requirements impervious, or Plan includes schedule for apply. 2. Discharges to critical implementing minimum water bodies, or requirements for entire I sites have been site. identified in a Basin plan as requiring additional storm water measures. Additional General Has additional requirements Requirements of structure setbacKS. Exemptions Commercial agriculture and Forest practices regulated under Title 222 W4C except for Class IV general forest practices that are conversions from timberland to other uses Variances Granted after a public Variances granted by"Public hearing and a written WorKs Director based on findings of fact addressing defined criteria. Right to an Four issues. appeal hearing.. Enforcement provides mechanism to issue 'provides for civil penalty for order of compliance. violations, prosecuted Establishes authority to through the City=s civil code assess civil penalty for enforcement ordinance (Title noncompliance. 20.10 PTMC). Establishment ofRegional Not included. Guidelines defined by'Public Facilities. WorKS. Procedures Manual-Formally adopts DOE Allows public WorKS SWM M- Director to establish procedures and/or Procedures Manual. Operation , Maintenance of One of the 11 minimum provision for city assumption 3Mp,s requirements. Must submit of OW. a schedule and identify the party responsible for OEM. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2PURPOSE•WPD—9o— City of port Townsend SWMP Issue Model 04-M Ordinance port Townsend Operation Maintenance Minimum Standards program Yearly inspection of Facilities. Grassy swales biofilter inspected monthly, mowed and/or replanted as necessary, clippings removed. Immediate action taKen to correct water quality problem caused by IacK of maintenance. Revisited within one month. Inspection Establishes inspection Contains provisions for enforcement authority. inspection of construction of Establishes inspection storm water facilities on procedures. private property. Mandates establishment of master maintenance Does not contain provisions schedule for all privately for inspection of on-going owned facilities. Critical maintenance compliance. Facilities may be more Frequent. Record Keeping Existing facilities No OEM record Keeping encountered shall be provisions. added to schedule. Records of new facilities shall include: As built and locations. Findings of fact From exemptions granted. OEM requirements, records of inspections, maintenance actions and Frequencies. Reporting Director shall report to City No specific reporting Council components found in requirement. Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\60RDINAN•WPD —91— City of port Townsend SWMP and out of compliance, upgrade needs, enforcement actions taKen, compliance with inspection schedules, resources needed to comply with schedule and comparisons with previous years. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2PURPORE•WPD—92— City of port Townsend SCAMP Section 6.4 Evaluation of Threshold Alternatives The historic plat that exists in 'port Townsend complicates the establishment of thresholds for when storm water mitigation should be required for new development. Studies show that even low levels of impervious surface coverage (10% to 15%) in a watershed can increase drainage course instability, decrease water quality, increase water runoff temperature and impact the diversity of wetland habitats. Existing Department of Ecology requirements are designed to address the impact of development that occurs in larger projects such as subdivisions or commercial enterprises. 'port Townsend is unique in that much OF the development occurs as in-fill and single family residence (S'M construction. Consequently, it is difficult to address the cumulative impact of S'F,construction that Falls below the existing threshold requiring on-site mitigation of impervious surface. The City has previously attempted to address this issue by requiring on-site mitigation For those projects proposing qo% or greater impervious surface coverage. However as previously discussed in Section 3.3, runoff attributable to the impervious surface related to road improvements is not typically addressed in a SFRstorm water mitigation plan. Existing threshold and alternatives are evaluated and presented in Table 6.3. Section 6.4 Implementation Recommendations policy direction on potential changes to the existing thresholds requiring mitigation of on-site impacts is required. Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\60RDINAN•WPD —93— City of port Townsend SCAMP Insert Table 6.3 Development Thresholds Alternatives Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD—94— City of port Townsend SCAMP Section 7.0 Public Awareness and Education Section 7.1 Introduction public education and involvement is vital to the success of a storm Water management program. Innovative programs that promote environmental stewardship are cost effective and provide opportunities for local citizens to learn about storm water issues and the environment. Section 7.2 History of Storm Water Public Education in Port Townsend The City has conducted an extensive public education and participation program in the last few years. In the spring of 1992, the City 'public WorKs Department formed the Wetlands and Storm water Advisory Committee WetSWAC)• Volunteers from the city were solicited to participate and advise public WorKs on storm water education, technical issues such as capital Facilities improvement and best management practices and policy. The Committee also conducted reconnaissance surveys for fourteen of the nineteen sub-basins. These surveys have proven helpFul in identifying environmentally sensitive areas and mapping drainage patterns. WetSWAC was instrumental in developing the "natural drainage system approach" that was adopted as policy in the 1996 Comprehensive 'plan. 9 The City has WorKed in conjunction with other agencies in sponsoring public education activities. In the Spring of 1993, the City participated in a day long Wori<shop on wetlands coordinated by WETNET• The event included lectures in the morning and a Field visit to wetlands in 'port Townsend in the afternoon. In the spring of 1994, the City participated in the Water Watchers program coordinated by Washington State University (WSU) Cooperative Extension, Jefferson County. 'Participants were instructed on the values and functions of wetlands as well as the impact OF urban storm water. The City regularly participates in the WSU continuing education worKshops for local realtors. Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\7PUBED•WPD 95- City of port Townsend SWMP The City has also worKed in cooperation with the 'port Townsend School District to facilitate educational programs in the High School. In the fall NUM OF 199q, the City 'public WorKs Department purchased a storm water test Kit for use by the High School. The oceanography and Marine Science class monitored four local wetlands for water quality and vegetation in the fall OF 1994. Most recently, the City received a 'Puget Sound Water Quality Action Team Public Involvement and Education (PTE) grant in the spring of 1998. This PTE grant funds public education activities to support the restoration efforts at the wetland Known as Froggy Bottoms. The Froggy Bottoms education activities include a wetland restoration volunteer training course, design of a brochure, installation of an interpretive sign at the wetland and sponsorship of a realtor worKShop. The City currently uses the Department of Ecology's photo ready brochures on various storm water issues. These Ecology brochures are available for those persons applying for a City permit at the Department of Building and Community Development. Section 7.3 Potential Education Programs Public education is a continual process and ongoing programs are needed to inform and educate the public about the complex environmental problems related to storm water. The suggested programs are based on the assumption that personal stewardship and citizen action are vital parts of the storm water solution. Cost and relative priority of the suggested programs are to be determined by City staff. The following are suggested programs: Pollution Prevention and Storm water Brochures The City currently uses the Department of Ecology s brochures on various storm water issues as described above. The City is currently developing a brochure For distribution to the residents of Froggy Bottoms basin. This brochure could easily be modiFied For wider distribution. Contractor Education An education program For contractors would include a worKshop For erosion and sediment control best management Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD—96— City of port Townsend SWMP practices which could be hosted in conjunction with Jefferson County 'public WorKs Department. In addition, a brochure would be developed for contractors to address specific storm water and erosion control issues. Storm Drain Stenciling Program This program would marK the appropriate catch basins with graphics such as "Dump No Waste - Drains to Bay." This program could use volunteers from either the schools or local groups such as Water Watchers or Marine Science Center volunteers. Wetlands Education The City will continue to worK with the Port Townsend School District to facilitate on-going wetlands education in the high school. The City will continue to offer wetland vegetation worKShopS (such as the Froggy Bottoms course) to train volunteers to then worK on revegetation or invasive plant eradication programs. County Fair Display The Public WorKs Department normally occupies a booth at the County Fair. The City could develop an interpretive display regarding the relationship between storm water and water quality. This display could be made portable and used at other meetings and events. Local Media Articles The local newspapers, the Port Townsend Leader and the Peninsula Daily News, remain powerful public education tools. Previous articles focusing on storm water issues are included in Appendix 1. Section 7.4 Cost of the Program Costs of these programs could be shared between the water and storm water funds or potential additional Funding resources such as the Centennial Clean Water Fund, the Public Involvement and Education Fund and EPA Education Grants. The City could also coordinate with such institutions as Washington State (Jniversity Cooperative Extension to utilize already available materials at a substantial cost savings. This plan recommends a portion of the annual budget be dedicated to storm water education. This allocation has been made in the Financial analysis of this plan. Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\7PUBED•WPD 97— City of port Townsend SCAMP Section 7.5 Implementation Recommendations Dedicate an annual budget to storm water education. 'priorities and programs should be determined on an annual basis. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD—98— city of port Townsend SCAMP Section 8.0 Monitoring and Evaluation Section 8.1 Introduction The City of Port Townsend is in a unique position to preserve its natural drainage system, as well as protect habitat areas and enhance the water quality oF?uget Sound. The goal of the City's Storm water Monitoring Plan is to preserve and protect these natural resources by evaluating the effectiveness OF the Storm water Management Program. Section 8.2 Procedural Monitoring This plan recommends the implementation of a system of "Procedural Monitoring". Procedural Monitoring is based on monitoring the implementation of Best Management Practices, Basin Plan recommendations and Environmentally Sensitive Areas development criteria. The essential element of Procedural Monitoring is the assurance that planned water quality best management practices are appropriate and are actually deployed at the project level. Thus, Procedural Monitoring is dependant upon a regular inspection program. The value of both pre-application site visitation for development review and construction inspection led to the creation of the position of Public WorKS inspector in 1997. The Public WorKs inspector is responsible for assuring that BMPs are built according to approved plan and City requirements. Many storm waterBMPs such as biofiltration swales and wet ponds require a period of time for vegetation establishment and a wet season evaluation before their performance can be assessed. This plan recommends that a record system be established for all BMPs installed. This record system would traCK the requirements for release of any construction bonds, the maintenance needs, schedule and responsibility and the transfer of ownership to the City W applicable. Exhibit 8.1 presents an example monitoring form that could be used for traCKing monitoring requirements for BMPs. Procedural Monitoring is also an evaluation of the implementation of other elements of the Storm water Master Plan such as the Operation and Maintenance Program and Basin Planning and Special Studies as well as adherence to Environmentally Sensitive Areas ordinance requirements. In Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\8MONITORWPD —99— City of port Townsend SCAMP addition, the 1994 'Puget Sound Water Quality 'Plan states that "local governments should monitor compliance with storm water requirements and publish the results of the monitoring in watershed report cards, or in other forms." This plan recommends that the 'public WorKs and Building and Development Departments prepare such a report card, on an annual basis For presentation to City Council and publication. Section 8.3 School Water Quality Monitoring Assistance In general, this plan does not recommend water quality sampling and quantitative analysis of either storm water discharges or receiving water bodies. The establishment of a statistically defensible monitoring program can be prohibitively expensive. However, when water quality sampling is combined with an educational objective, the value of a less exhaustive monitoring program is greatly enhanced. Consequently, this plan recommends the implementation of the ,.School Water Qua Iity M on itori ng Assista nce preliminary Sampling Plar)". This plan was prepared by WetSWAC in April 1993 and is presented in Appendix J. The implementation of this plan may also serve as a screening process that may identify problem areas that would warrant additional investigation and sampling. Section 8.4 Implementation Recommendations Implement a procedural Monitoring Program for all storm water BMPs. Develop an annual report card to report the results of programmatic monitoring. Implement the School Water Quality Monitoring Assistance Preliminary Sampling Plan. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-too- City of port Townsend SWMP Insert Exhibit 8.1 - 'public WorKS Storm water Facility Operation 4, Maintenance form gK/c:\dots\pt\stormWtr\98memt—l\04,MFORM.W'D Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\8MONITORWPD -101- City of port Townsend SWMP Section 9.0 Program Funding Section 9.1 Introduction This section of the plan provides a recommended funding strategy for both structural and non-structural solutions to storm water management issues. The capital improvements, operations and maintenance activities, monitoring, education and planning described in the previous chapters require funding and staff to provided the services identified. This chapter examines current revenue sources, potential revenue sources and recommends a Funding strategy. Finally, a rate analysis is summarized. 9.2 Existing Utility Revenues Chapter 35.67 of the Revised Code of Washington (RCW) enables cities to operate storm water utilities for the protection of the public health and saFety. Chapter 35.67RC1j constitutes a very significant grant of authority to municipalities to adopt, regulate, and provide revenue sources for the operation of sewage, storm water, and solid waste utilities. In enacting Chapter 35.67RC1j, the Washington State Legislature recognized that management and control of storm water and sewage is a Fundamental attribute OF municipal business, and is central to protection of the public health and safety. The City of port Townsend Storm Water Utility has been in existence since 1986. The Utility is currently authorized to bill single family residences and commercial and multiple property at the rate of six dollars per month per 3,000 square feet of impervious area. In addition, the Utility levies special charges For properties developed after the effective date of the first billing. This charge, Known as the [Reserve Capacity Charge reflects the city s prior investment in storm water facilities. The charge is calculated at three dollars per month times the number of months since the first storm water billing of the Utility. The monthly rate collected by the storm water utility has often come under criticism from residents and commercial or industrial operations within the city. 'property owners often question the rationale for a monthly service Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2PURPOSE•WPD-10e- city of port Townsend SWMP charge W they do not receive any direct benefit at their property or if they have installed storm water facilities at their own expense. Washington state law authorizes municipalities to collect fees to fund activities intended to protect the entire population and to provide general benefits to the rate payers. This authority allows the city to charge fees in order to undertake those activities necessary to operating an overall storm water system Without providing any specific service or special benefit to individual property owners. The city expends funds on many activities that may not be readily apparent to the average citizen. These activities have been described in the preceding chapters and include maintenance activities, capital improvement projects, basin planning, land acquisition, public education and review of development proposals. These activities are undertaken to reduce the risk of Flooding and degradation of water quality. Figure 9.1 shows how the fees collected since the inception of the storm water utility in 1987 have been expended. Storm Water Utility Expenditures Planning 7% Land Acquistion Taxes 23% 5% apital Projects 11% Operations, Maintenance, Administration Engineering 54% The UtilitY has also received funding from state grants and low or no interest loans. Notably, the UtilitY has received funding from the Centennial Clean Water'program, the Flood Control Assistance Account 'program, the State Revolving Fund for Water'pollution and the 'public Involvement and Education Fund. These grant/loan funds are discussed below. Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\60RDINAN•WPD -103- city of port Townsend SWMP 9.3 Other Potential Sources of Funding State Grants and Loans A. The Centennial Clean Water program (CCWP) is administered by the Washington State Department OF Ecology. The Centennial Clean Water Fund was created in 1986 to provide financial and technical assistance to meet state and federal requirements for water pollution control. This Storm Water Management plan was in large part funded by a CCWP grant. B. The Flood Control Assistance Account program (FCAAP) is administered by the Washington State Department OF Ecology, Flood plain Management program. This program provides funds for comprehensive flood management planning and emergency and non-emergency maintenance OF flood management facilities. C. The State 7Zevolving Fund for Water pollution is also administered by the Department OF Ecology. This is a selF sustaining loan program presently being capitalized through Federal grants. Below marKet rate loans for up to loo percent OF eligible costs with paYbacK periods up to 20 Years are made for a variety OF water pollution control projects. D. The State OF Washington public WorKS Trust Fund is administered by the State Department OF Community Services, Local Government Assistance Division. Monies for repair, replacement, reconstruction, rehabilitation and improvement OF existing public worKS systems are available. E. The public Involvement and Education Fund is administered by the Puget Sound Water Quality Action Team. The Action Team annually solicits proposals for the provision OF services. The process is open to all Puget Sound local governments, businesses, and individuals interested in developing educational and public involvement programs to improve education and public awareness OF water quality issues. While important funding sources, these grants and loans cannot be used to support an ongoing storm water management program nor is their availability guaranteed. They should only be used to supplement funding for specific storm water management projects. Debt Financing Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-1ov- city of port Townsend SWMP Municipal bonds are a written promise to pay a specified sum of money principal amount) at specific dates in the future (maturity dates), together with periodic interest. (Municipal bonds fit into two basic categories: General Obligation Bonds and-Revenue Bonds. The primary difference between these bonds is the source of funds pledged to pay principal and interest on the bonds. The source of funds pledged is referred to as the security for the bonds. Generally, the City OF Port Townsend has not considered general obligation bonds as a viable funding source for utilities. Revenue bonds are secured by Funds from a specified revenue source, such as a storm water utility service charge. State law does not limit the amount of revenue debt incurred by an issuer. However, the legal documents associated with the issuance of revenue bonds generally require that the entity pledge to set rates so that the funds will be available to pay debt and to provide adequate reserves. System Development Charges The use of system development charges for financing storm water improvements is a relatively new funding method, but has gained acceptance in conjunction with the establishment of storm water as a public utility. The basic premise of a system development charge is that those new developments creating additional storm water management costs should be held responsible For a reasonable share of these costs. System development charges are thus a method for assuring that properties which develop in the future share in the capital cost of drainage facilities designed and built in anticipation of this development. This mechanism was developed to support designing systems for ultimate build-out in urbanizing areas. It reduces the need for system retrofitting due to IacK of capacity. At the same time, this funding mechanism does not place the total burden for system development on presently developing properties, but becomes the basis for allocating facility costs to new development as it occurs. A unit fee (typically related to impervious area) is calculated to offset anticipated capital costs within the watershed, sub-basin or other hydrologically defined area. A Key stipulation is that the charge not be related to mitigating existing problems, but to those anticipated from the new Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\60RDINAN•WPD -105- City of port Townsend SWMP development. HUM In order to establish an equitable basis for the system development charge, the cost Of storm water facilities required to accommodate future growth must be estimated and this factor divided among the properties to be developed in the future. Fee-in-Lieu-of Construction This capital Financing technique enables the storm water authority to offer a developer the option Of paying into a regional detention fund in-lieu-of constructing an on-site detention facility. The fee-in-lieu-Of approach can serve two distinct yet complementary functions: 1) as a revenue generator to Fund localized storm water detention facilities and 2) as a tool to guide development patterns and encourage comprehensive storm water management on a watershed basis. The mayor impetus behind this program is the recognized value Of regional detention and a growing understanding Of the full cost for the proper construction, inspection and maintenance Of an expanding number Of on-site detention facilities. Implementation Of a fee-in-lieu-of structure should be governed by a basin management plan in order to optimize the location Of facilities. 'practically, the need to establish a fee-in-lieu-of often precedes adoption Of a basin plan. An in-lieu-of approach to funding also requires decisions Of policy issues such as: Basis and method for determining the fee amount potential lag between the time fees are paid and facilities are actually constructed, and Limitations Of the use Of fees The concept Of an in-lieu-of fee supporting a regional detention strategy is sound from both a development and engineering perspective. A regional detention program presents some cost efficiencies and provides for better long term maintenance and repair than a proliferation Of on-site facilities. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPOSE•WPD-1os- City of port Townsend SWMP Coordination with existing land use patterns can also provide multi-use opportunities for regional detention facilities such as open space and recreation. Construction OF fee-in-lieu-of supported regional Facilities requires contributions from multiple sources in order to maKe this approach Fiscally viable. Construction OF regional Facilities would require funding from monies collected as fees-in-lieu-of and rate or grant supported funds, Therefore, this joint method OF funding is best suited to areas that are moderately developed, but are expected to experience significant growth. Developer Extension/Latecomer Fees and Agreements This financing mechanism allows storm water authorities to contract with a private developer for the construction OF a new facility that the developer chooses to install as part OF site development conditions. The developer may then be reimbursed for a portion OF their up-front costs by other properties that develop and use the capacity OF the oversized system. The basis for allocating costs/fees to new development is a Function OF system capacity used. An agreement between the storm water authority and developer must stipulate: a) the physical boundary OF the area served by the facility and identification OF the parcels that would be required to provide similar storm water improvements at the time they develop, and b) the time period and specifications for the construction OF the facility. This mechanism is most appropriate for undeveloped or marginally developed areas laCKing adequate storm water facilities. A portion OF the costs OF these improvements are reimbursed by properties within the defined areas which receive a direct benefit. This method for financing capital improvements requires an effective administrative program in order to be viable. 'port Townsend s utility latecomer agreement program is codified in Chapter 13.O4 PTMC• Special Assessments/Local Improvement Districts Several different methods for levying special assessments have been used throughout the United States for storm water improvements. projects Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\6ORDINAN•WPD -107- city of port Townsend SWMP Funded through special assessments must provide a special identifiable benefit to the properties included in the assessment area. Also, charges For each parcel must be consistent with the relative benefit to each property. In Washington, cities can establish a local improvement district(LID) or utility local improvement district (OLID)• This technique involves an assessment against property owners within some well-defined district. Sixty percent OF property owners within the boundaries OF the proposed district must agree to the establishment OF the improvement district. The use OF LIDS to fund storm water projects has been limited, due to the difficulty in quantifying the benefit to individual properties. For example, upstream or hillside properties which may be major runoff contributors may not been seen as specific recipients OF project benefits. However, when completed in conjunction With road improvements primarily on local streets, the area OF benefit becomes easier to define. The use OF LIDS to mitigate drainage problems in conjunction With street improvements can be an effective mechanism to fund projects that would not otherwise be funded because OF their small areas OF benefit. Comprehensive basin planning also remains important in order to provide guidance and context For these smaller projects. A proliferation OF LIDS can place a burden on limited staff resources. This approach can be administratively complex and time consuming for local government staff. However, cost savings to the utility as well as the construction OF needed improvements may justify the additional staff needed or the cost for contracting this service. Plan Review and Inspection Fees These fees are intended to recoup the expense OF reviewing development plans to ensure consistency with the storm water engineering design standards, and to insure that construction standards and regulations are implemented in the Field. In theory, a detailed cost accounting system can determine the actual costs OF providing these services to developers. However, in practice, most storm water authorities monitor the accumulated costs OF providing this service so that the resulting fee is based on an average total cost. Two fee Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPOSE•WPD-1o8- city of port Townsend SWMP structures are commonly applied to this problem: Fees based on a Flat or fixed rate For all projects reviewed and inspected, regardless of size, complexity, or actual costs incurred. A variable or sliding scale Fee based on the size of the development or project (i.e., acres, square Feet, etc.) Section 9.4 Evaluation of Funding Sources The criteria used to evaluate potential Funding sources included: Feasibility of Implementation - The relative ease or diFFicultY associated with maKing a Funding program operational (e.g. adopting ordinances and establishing billing systems.) Fairness and Equity - The degree to which a Funding source is linKed to the payee s speciFic beneFit, or in this case, the contribution to storm water problems. Revenue Generating Capacity - The ability of the Funding source to produce signiFicant amounts of revenue. Legal DeFensabilitY - The probability of a Funding source being satisFactorilY de-Fended in the courts. Administrative Simplicity - This reFers to the ease of administering the Funding source, including billing, collection, record Keeping and updating record Files. Table 9-1 summarizes the results of the potential Funding sources evaluation. Table 9.1 Funding Source Evaluation Legal Fairness Feasibility Revenue Administratiue Source Defensiblility and of' 4parating Simplicity Equity Implementation !Capacity Fee-in-Lieu of Construction High High High High Fair System Development Charge High High High High Fair Debt Financing High Fair High High High Special Assessment Revised Draft 9118198 GK/D:\SCAM\SWMP\99swmp\6ORDINAN•WPD —109— City of port Townsend SWMP LIDs High Fair Fair Fair Fair Developer Extension Latecomer Fees High Fair Fair Poor Poor Plan Review Inspection Fees High Fair Poor Poor Poor Section 9.5 Recommended Funding Strategy The recommended funding strategy incorporates both primary and secondary sources OF funding. 7),ate increases in the utility based service charge are recommended as the primary source OF funds to implement the capital improvement and operation and maintenance programs. 7),ate increase recommendations and debt financing are discussed below in the rate analysis section. Secondary sources recommended for adoption as part OF the overall Funding strategy include system development charges, fees-in-lieu-of construction, LIDS and Developer Extension/Latecomer Fees. The recommended secondary sources focus on costs associated with new development. System Development Charges have been developed as a two tiered system. The first tier would be a base fee that all new Equivalent Residential Units EROS) would pay to fund regional conveyance system needs attributable to growth. The second tier would be a Fee to account for regional detention needs created by street improvements and not mitigated on site. (This second tier could be waived for those larger developments that provide detention or retention for all created impervious surface areas including street improvements.) Table 9-2 summarizes the calculation OF these two System Development Charges. These System Development Charges should replace the existing Reserve Capacity Charges. A fee-in-lieu-of construction program provides a method for new development to fund regional detention facilities. This program would be voluntary in nature; the developer would retain the right to construct required detention or infiltration facilities on site. Table 9.2 also summarizes the calculation OF Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPOSE•WPD-110- city of port Townsend SWMP this fee-in-lieu-of construction. Amore detailed discussion of the System Development Charges and Fees-in-Lieu-of Construction is provided in Appendix K. Figure 9.2 provides a graphic explanation of both the System Development Charges and Fee-in-lieu-of Construction. Institution of a Local Improvement District 'program is strongly recommended. It is unliKely that utility service charges or other funding sources will be able to address the many localized problems. Developer extension/latecomer fees are used to recover the costs of facilities from Future development. This Funding source has applicability in those areas of the City relatively undeveloped. Alternatives exist for how to implement the recommended funding strategy. The adoption of a threshold for when the fees would be applied is also required. Alternatives and their implications are presented in Table 9.3. Section 9.6 Rate Analysis In 1996 the City performed a rate study for the Storm Water Utility to establish the utility rate. At that time, the Utility Committee adopted a two dollar per month per ETJ increase over a five year period (an increase from five dollars per month to seven dollars per month). An update of the rate study was Per-Formed by the City as part of the preparation of this plan. As summary of the rate analysis is provided in Table 9-4. This rate study presents two scenarios: 1) adoption of the recommend programs in this plan and the completion of the regional conveyance CIP in a ten year period, and, 2) adoption of the recommended programs in this plan and the completion of the regional conveyance CIP in 20 years. The first scenario of completion of the regional conveyance CIP in ten years would require an eight percent annual rate increase for six years. The second scenarios of completion of the regional conveyance CIP in twenty years would require an eight percent annual rate increase for three years. In both scenarios a Four percent increase (one percent over the rate of inflation) in storm water utility rates each year will be necessary following the eight percent increases.. Section 9.7 Implementation Recommendations Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\60RDINAN•WPD —111— city of port Townsend SWMP Adopt a two tiered System Development Charge. This combined charge would assess development for its impacts to both regional conveyance and regional detention needs. The charge for regional detention could be waived if the development installs detention Facilities for all impervious surface areas including street improvements. Adopt a Fee-in-Lieu-of-Construction program. This program would provide a method to fund regional detention facilities to control runoff From private property and offer an option to developers who are required to provide detention or infiltration on their site. Institute a Local Improvement District program to address localized drainage issues. Adopt a fee collection alternative and threshold for fee collection. Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-112- city of Port Townsend SWMP insert Table 9.2 - System Development Charge Justification c:\sam\swmp\SCDJust2.xls Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\GORDINAN•WPD —113— City of port Townsend SCAMP Insert Table 9.37),ate Study Assumptions 1998-2007 Excel Spreadsheet Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-114- City of port Townsend SWMP Insert ate Study Assumptions 2008-2018 Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\60RDINAN•WPD -115- City of port Townsend SWMP insert Summary Of Utility Capital Expenditures 1998-2003 Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\2?URPORE•WPD-116- City of port Townsend SWMP insert Storm water Utility Sources 4, Uses of Funds 1998-2008 Revised Draft 9118198 GK/D:\SAM\SWMP\99swmp\60RDINAN•WPD —117— City of port Townsend SCAMP insert Storm water Utility Sources 4, Uses of Funds 2009-2018 Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\21:)URPORE•WPD-118- City of port Townsend SWMP Revised Draft February 1999 GK/D:\SAM\SWMP\99swmp\3CIP•WPD 119— City of port Townsend SCAMP