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RESOLUTION NO. ~
A RESOLUTION of the City Council of the City of
Bremerton, Washington, relating to the association of the Gorst
UGA and provision of sewer service within the West Bremerton
and Gorst Urban Growth Areas
WHEREAS, in 2006, Kitsap County adopted a ten year update to its
comprehensive land use plan; and
WHEREAS, pursuant to the State Growth Management Act, Chapter 36.70A
RCW, Kitsap County expanded the West Bremerton and Gorst Urban Growth Areas (UGAs)
through the ten year update to accommodate population through the year 2025; and
WHEREAS, the County's ten year update was appealed to the Central Puget
Sound Growth Management Hearings Board (CPSGMHB); and
WHEREAS, the CPSGMHB remanded the capital facilities element and plan of
the County's comprehensive plan for, among other reasons, additional information regarding
public sewer service within the West Bremerton and Gorst UGAs; and
WHEREAS, the County was instructed to obtain assurances from the relGvant
service providers that sanitary sewer service will be adequate and available within the 20-year
planning period; and
WHEREAS, the City of Bremerton provides sanitary sewer service within the
West Bremerton UGA and can provide sewer service within the Gorst UGA, and thus can
provide such assurances; NOW THEREFORE
THE CITY COUNCIL OF THE CITY OF BREMERTON, WASHINGTON,
DOES HEREBY RESOLVE AS FOLLOWS:
SECTION 1. The City of Bremerton currently provides sewer service within
portions of the West Bremerton UGA.
SECTION 2. In 2006, Kitsap County expanded the West Bremerton and Gorst
UGAs pursuant to Kitsap County Or~inance No. 370-2006.
SECTION 3. The City of Bremerton operates two wastewater treatment
facilities: The Westside Wastewater Treatment Plant and the Eastside Treatment Facility. The
Westside Wastewater Treatment Plant has a peak wet weather capacity of 60+ MGD and a peak
secondary treatment hydraulic capacity of 32.5 million gallons per day (MGD). The Eastside
1
West Bremerton and Gorst UGAs
Treatment Facility has a peak hydraulic capacity of 20 MGD. Currently, the Bremerton
wastewater system has a current (2005) surplus of 13,102 equivalent residential units (ERUs),
which translates into capacity for 32,755 additional people, which is more than enough capacity
to accommodate the 2025 growth population for the City and the West Bremerton and Gorst
UGAs.
SECTION 4. The City of Bremerton has the capacity and will serve the West
Bremerton and Gorst UGAs upon the annexation of those areas to the City, or through Outside
Utilities Agreements, which is anticipated to occur through the year 2025.
SECTION 5. Pursuant to the Bremerton Municipal Code 15.03.040, the City
may extend its sewer collection service to property lying within its urban growth area which is
not contiguous to City limits upon request and the execution of an Outside Utilities Agreement.
The party seeking the utility extension is responsible for paying the entire cost of the sewer
connection, subject to latecomer reimbursement if applicable.
SECTION 6. The City's commitment and ability to provide service to the
expanded West Bremerton and Gorst UGAs is demonstrated through the "City of Bremerton
Sewer UGA Planning" document, dated February 2008, attached hereto and incorporated herein
by this reference as Exhibit A.
SECTION 7. The City acknowledges and accepts that Kitsap County will be
"associating" the Gorst UGA as part of its comprehensive plan amendments enacted in response
to the CPSGMHB Order and pursuant to RCW 36.70A.110(7). Once the association takes place,
the City may annex the Gorst area.
SECTION 8. Since the City generally relies upon developer extension
agreements to finance the extension of sewer collection systems outside of the City boundaries,
such extensions are not shown in the City's capital facilities plan, but rather, are added once a
binding commitment is finalized. Figures 10 and 12 in the City of Bremerton Sewer UGA
Planning document show the proposed infrastructure for West Bremerton and Gorst,
respectively.
SECTION 9. For the reasons set forth above, the City has both the capacity
and/or the ability to serve its portions of the West Bremerton and Gorst UGAs with public
sanitary sewer service.
SECTION 10. Severabilitv. If anyone or more sections, subsections, or
sentences of this Resolution are held to be unconstitutional or invalid, such decision shall not
affect the validity of the remaining portion of this Resolution and the same shall remain in full
force and effect.
SECTION 11. Effective Date. This Resolution shall take effect and be in force
immediately upon its passage.
2
West Bremerton and Gorst UGAs
~~ ~SED by tbe City Council of the City of Bremerton, Washington this~
day of ),2008.
.. '
APPROVED AS TO FORM:
ATTEST:
R:\Legal\Legal\Files\Current Active Files\Gorst-Navy Yard City\Resolution Bremerton PO Sewerassurance-final.doc
3
West Bremerton and Gorst UGAs
City of Bremerton
Sewer Urban Growth Area Planning
Portions of the West Bremerton UGA (Rocky Point, SR 304)
and the Gorst UGA
February 2008
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Suite 1200
Bellevue, WA 98004-5549
(425) 450-6200
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Table of Contents
1.0 Introduction a II.. II 111111 II II II II 111111. II II II II II II II 11.11 II II II II II II II II 11.11 II II II II 11.11.. II II 11.11 II II II II II 11.11 II II a 1I1I1I1I.lIall II II 111111 ... IIl1all.II.... II II II II 1
1.1 Plan Objectives ..................................................................................................... 1
1.2 Description of UGAs ..............................................................................................1
2.0 Existi n9 System II II II.. II II II II II II II II 111111 II II II 11...111111 II II II.. ~ 111111 all II II II II II 11.11 II.. II II II II II 1I.a II II. II II II.. II II 1111.. II.. II II II all II.. II 11111111 II 3
3.0 Plan n i n9 Criteria. II a...a 11.111111 II II.. II II II II II II II II II II II II II II II ~ II II II II II II II II II II II II II. ..1111 II II 11.11 II II II II II a II II II II II II.. II II II II II II II II II.. II II II II II II 8
3.1 Flow Projections.................................................................................................... 8
3.1.1 Sanitary Projections................................................................................... 8
3.1.2 I nflow and I nfiltration Projections............................................................... 9
3.2 Proposed Infrastructure Assumptions................................................................. 10
3.3 Population Projection.......................................................................................... 11
4.0 Planning Areas and Proposed Improvements ......................................... 12
4.1 West Bremerton UGA.......................................................................................... 12
4.1.1 Rocky Point Area .....................................................................................12
4.1.2 SR 304 Area............................................................................................ 17
4.2 Gorst UGA........................................................................................................... 21
4.2.1 Population Projection............................................................................... 21
4.2.2 Sewer Flows Generated.......................................................................... 21
4.2.3 Sewer System Layout and Sizing............................................................ 22
5.0 Opi nion of Probable Cost II II.... II.... II II II II II II.. II II II ... II II II II II.. ... II II II II II.. II II.. II II II II II II II.. II II II II.. ... II II II.... 25
5.1 West Bremerton UGA - Rocky Point Area ..........................................................25
5.2 West Bremerton UGA - SR 304 Area .................................................................27
5.3 Gorst UGA........................................................................................................... 28
5.4 Homeowner I Developer Extension Costs........................................................... 29
6.0 Fundi ng .. II II II. II II II II ..... II II II II.... II II II II II II........ II II................................................ ......... 30
6.1 Potential Funding Sources.................................................................................. 30
6.2 External Sources of Funds..... ....................... ........................................... ........... 33
6.2.1 Centennial Clean Water Fund ................................................................. 33
6.2.2 State Water Pollution Control Revolving Fund ........................................34
6.2.3 Pub Ii cWo rks T ru st Fun d ......................................................................... 34
6.2.4 Community Development Block Grants................................................... 34
6.2.5 Infrastructure Assistance Coordinating Council............................ ...........35
6.2.6 Municipal Financing................................................................................. 35
6.3 Internal Funding Sources.... ..................................... ............................ ............... 36
City of Bremerton
Sewer Urban Growth Area Planning
i
February 2008
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7.0 Cancl usion.. II II.. II II II II II II II II II II II II II II 11111111 II II II II II II II II II.. II.. II 11.11 11111111 II II IIll II II II II II II 11.11 111111111111 11111111 11.11 II II II II II II II II 111111 II II II II II II II II II 38
8.0 References II II II II 11.11.11 1111.11 II........ lIall.a 111111.. .,........... II.......... II....... ...11 111111.. 11111111...................... II"" 111111..........11.11111111 111111 39
Table 1.
Table 2.
Table 3.
Table 4.
Table 5.
Table 6.
Table 7.
Table 8.
Table 9.
Table 10.
Table 11.
Table 12.
Table 13.
Table 14.
Table 15.
Table 16.
Table 17.
Table 18.
Table 19.
List of Tables
Sanitary Flow Assumptions.......................................................................................... 8
Gravity Sewer Assumptions....................................................................................... 10
Force Main Assumptions ...........................................................................................10
West Bremerton UGA Aggregate Population............................................................. 12
Population Projection for the Rocky Point Area......................................................... 13
Sanitary Flow Projections for Rocky Point................................................................. 13
Pump Station Sizing for Rocky Point ......................................................................... 14
Population Projection for the SR 304 Area ................................................................17
Sanitary Flow Projections for the SR 304 Area.......................................................... 17
Population Projections for the Garst UGA .................................................................21
Flow Projection for the Garst UGA............................................................................. 21
Pump Station Sizing for Gorst.............................................. ................. ...... ...............22
Opinion of Probable Cost for the Rocky Point Area ................................................... 26
Opinion of Probable Cost for the SR 304 Area ..........................................................27
Opinion of Probable Cost for the Garst UGA ............................................................. 28
Homeowner / Developer Extension Cost Estimate ....................................................29
Funding Programs at a Glance .................................................................................. 31
Funding Agency Contacts.......................................................................................... 33
Potential Funding/Revenue Strategies...................................................................... 37
List of Figures
Figure 1. Planning Area Vicinity Map .......................................................................................... 4
Figure 2. Rocky Point Land Use Zoning ..................................................................................... 5
Figure 3. SR 304 Land Use Zoning ............................................................................................6
Figure 4. Garst UGA Land Use Zoning ....................................................................................... 7
Figure 5. Ratio of Peak Hourly Flow to Design Average Flow.................................................... 9
Figure 6. Total Basins Exceeding a Given III Rate ................................................................... 10
Figure 7. Rocky Point Sub-Basins............................................................................................ 15
Figure 8. Rocky Point Proposed Infrastructure .........................................................................16
Figure 9. SR 304 Sub-Basins ................................................................................................... 19
Figure 10. SR 304 Proposed Infrastructure................................................................................ 20
Figure 11. Garst UGA Sub-Basins.............................................................................................. 23
Figure 12. Garst UGA Proposed Infrastructure........................................................................... 24
City of Bremerton
Sewer Urban Growth Area Planning
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February 2008
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1.0 Introduction
This report amends the 2006 Kitsap County 10- Year Comprehensive Plan Update
(Comprehensive Plan) to include a strategy for providing sanitary sewer service for the
Gorst Urban Growth Area (UGA) and additions to the West Bremerton UGA. Kitsap
County (County) intends to add additional land area to the West Bremerton UGA, which
would become part of the City of Bremerton (City) in the future. The Gorst UGA (Gorst) is
contiguous to the City of Bremerton's sewer planning area. Discussions regarding its
association into the City are on-going.
The purpose of this plan is to meet the requirements of the Central Puget Sound Growth
Management Hearings Board Order of Continuing Non-Compliance (KCRP VI v. Kitsap
County, case 07 -3-0019C) by developing a sanitary sewer strategy for the Gorst UGA and
the additional portions of the West Bremerton UGA (Rocky Point and SR 304) as shown
on Figure 1.
In accordance with the Comprehensive Plan, the planning period for this addendum to the
Comprehensive Plan ends in the year 2025. The population projections used in this
addendum are consistent with those developed in the Comprehensive Plan.
The purpose of this amendment is to assess the sewage conveyance needs for the
additions to the West Bremerton UGA and the Gorst UGA. Due to the topography of the
studied areas, a conventional gravity-flow sewer system may not be feasible. An
alternative conventional gravity system is presented for regions of the West Bremerton
UGA and the Gorst UGA. Modifications to the existing system that may be required under
this plan are addressed; however, the City's existing treatment and conveyance systems
were assumed to have adequate capacity for additional flow. As with most sewer
planning, this document is based on information available at the time of creation, including
existing Comprehensive Plan documents, 25-foot contours, and previous City planning
documents. As the sewer plan proceeds into design, the City should review and update,
as needed, surveying, population projections, and the future planning horizon.
1.1 Plan Objectives
The objective of this plan is to meet the requirements laid out by the Central Puget Sound
Growth Management Hearings Board by providing sewer planning for the Gorst UGA and
additions to the West Bremerton UGA.
This is accomplished by providing the City of Bremerton with proposed infrastructure
improvements, cost estimates and financing options for the Gorst UGA and additions to
the West Bremerton UGA.
1.2 Description of UGAs
Areas to be added to the West Bremerton UGA include Rocky Point and SR 304, which
are between the Port Washington Narrows and Dyes Inlet. Rocky Point (shown in Figure
2) is approximately 410 acres of urban low-density residential and 40 acres urban
medium-density residential zoning. The City's current sewer system extends to the edge
of Rocky Point with small diameter gravity sewer pipes.
The SR 304 area includes Navy Yard City (currently unincorporated) and extends south
from the Westside WWTP roughly to the northern edge of the Gorst UGA. The area
covered in this study (shown in Figure 3) excludes Navy Yard City and is approximately
80 acres of urban low-density residential and 122 acres of urban medium/high-density
City of Bremerton
Sewer Urban Growth Area Planning
1
February 2008
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residential. Kitsap County operates a sewer district within the northern portion of the area
(Sewer District 1). The southern portion of the planning area is relatively undeveloped.
The Gorst UGA (shown in Figure 4), is located at the western end of Sinclair Inlet at the
junction of SR 16 and SR 3. Gorst is primarily an industrial and small commercial center.
Future plans for the area include the addition of more residential zoning to the west.
Failing septic systems in the region have increased the interest in a public sewer system.
City of Bremerton
Sewer Urban Growth Area Planning
2
February 2008
'L.::~""':
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2.0 Existing System
The City of Bremerton is located in central Kitsap County near the Sinclair Inlet and Dyes
Inlet. The Port Washington Narrows divide the city into two sections: West Bremerton and
East Bremerton.
The City operates two wastewater treatment facilities: The Westside Wastewater
Treatment Plant (Westside WWTP) and the Eastside Treatment Facility. The Westside
WWTP in West Bremerton discharges secondary treated effluent to the Sinclair Inlet, and
has a peak hydraulic capacity of 32.5 MGD. The Eastside Treatment Facility provides
treatment for combined sewer flows during storm events in East Bremerton. The
treatment involves high-rate clarification and ultraviolet (UV) disinfection. This facility
discharges to the Port Washington Narrows with a peak hydraulic capacity of 20 MGD.
The sewer service area and collection system includes nine West Bremerton and six East
Bremerton sewer drainage basins. A combined sewer system serves the East Bremerton
drainage basins and transports sanitary and stormwater flows in a single conveyance
system. Four of the nine West Bremerton drainage basins are also combined sewers.
The City's gravity mains range in size from 6 to 42 inches in diameter, and force mains
range from 4 to 36 inches in diameter.
Unless specified, the City is assumed to have adequate capacity in both the current
conveyance system and in the treatment plants to provide service to the expanded
portions of the West Bremerton UGA and the Gorst UGA.
City of Bremerton
Sewer Urban Growth Area Planning
3
February 2008
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FIGURE 1
Planning Area Vicinity Map
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City of Bremerton
Sewer UGA Planning
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<::::) Urban Low Residential (4-9 DUlAc) D RDW
c::> Urban Medium Residential (10-18 DUlAc)
QUGA Boundary
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c=I Parcel Boundary
FIGURE 2
Rocky Point Land Use Zoning
500 1,000
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City of Bremerlon
Sewer UGA Planning
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City of Bremerton
Sewer UGA Planning
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City of Bremerton
Sewer UGA Planning
FIGURE 4
Gorst UGA Land Use Zoning
QUGA Boundary
'.. : City of Bremerton Boundary
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3.0 Planning Criteria
The planning criteria are based on flow projections, infrastructure assumptions and
population projections.
3.1 Fiow Projections
Flow projections include sanitary flow and infiltration/inflow (1/1). The sum of the peak
diurnal sanitary flow and the 1/1 allowance is the peak design flow.
3.1.1 Sanitary Projections
The 2005 City of Bremerton Water Plan estimates water usage at 85 gallons per day per
capita (gpdc); the sanitary flow is assumed to be the same. A complete set of sanitary
flow assumptions are provided in Table 1.
Table 1. Sanitary Flow Assumptions
Residential
85 gal/capita/day
1,500 gal/Ac/d
Industrial
3,000 gal/Ac/d
2005 City of Bremerton Water Plan
Wastewater Engineering Treatment
and Reuse, Fourth Edition, 2003
Wastewater Engineering Treatment
and Reuse, Fourth Edition, 2003
Commercial
The Department of Ecology (DOE) Criteria for Sewage Works Design (Orange Book)
recommends Equation 1 for calculating the ratio of the peak hourly sanitary flow to design
sanitary flow (plotted in Figure 5). Peak hourly sanitary flow varies with the population;
larger areas will have smaller peaking factors than smaller areas.
Equation 1
QPeak 18+.JP
Q Design - 4 + .JP
Where:
QPeak is the maximum peak hourly flow,
QOesign is the design average daily wastewater flow, and
P is the population in thousands.
As recommended by DOE, the peaking factor used in this planning study is never below
2.5.
City of Bremerton
Sewer Urban Growth Area Planning
8
February 2008
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Adapted from: Washington State Department of Ecology. Criteria for Sewage Works Design. November 2007.
Figure 5. Ratio of Peak Hourly Flow to Design Average Flow
3.1.2 Inflow and Infiltration Projections
The definitions of inflow and infiltration (III) from the Joint WEF Manual of Practice FD2 -
ASCE Manual and Report on Engineering Practice No. 62 are:
· Infiltration is water that enters a sewer system from the ground through defective
pipes, pipe joints, damaged lateral connections or manhole walls.
· Inflow is extraneous storm water that enters a sanitary sewer system through roof
leaders, cleanouts, foundation drains sump pumps and cellar, yard and area
drains.
III creates a measurable increase in flow during storm events. Results from the
2001/2002 King County Regional Infiltration/Inflow Control Program Wet Weather
Technical Memorandum document that nearly 50-percent of all basins exceeded an III
rate of 3,000 gallAcld over ten measured storms, as shown in Figure 6. It is reasonable
to assume 3,000 gallAcld as the III rate for this study, as both new and old basins were
documented in the III rates over 3,000 gal/Ac/d.
City of Bremerton
Sewer Urban Growth Area Planning
9
February 2008
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King County Regimall/l Control Program
III Data for 2001/2002 Flavv lV1etering Period
Number of Basins Exceeding Given Flavv
(based on highest basin flovvs from 10 rreasured storrm)
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III (GallonsfAcre/Day- 30 Mnute Peak)
Adopted from: King County. 2001/2002 King County Regional Infiltration/Inflow Control Program
Wet Weather Technical Memorandum
Figure 6. Total Basins Exceeding a Given III Rate
3.2 Proposed Infrastructure Assumptions
Gravity sewer assumptions are provided in Table 2.
Table 2. Gravity Sewer Assumptions
Minimum 8-inch pipe
2.0 fps design velocity
Manning's Roughness Coefficient of 0.013
Force main assumptions are provided in Table 3.
Table 3. Force Main Assumptions
Minimum 4-inch pipe
Design velocity between 2.0 and 8.0 fps
Manning's Roughness Coefficient of 0.013
City of Bremerton
Sewer Urban Growth Area Planning
10
February 2008
@3
2025 projected population was considered in the evaluation of additional infrastructure.
Gravity sewer pipe and force mains were sized based on 4 dwelling units per acre (DulAc)
for undeveloped areas and 3 DUlAc for developed areas. Pipe capacity is considered to
be met at 80% of the full pipe capacity because gravity sewers are considered surcharged
at this point. Force mains were sized based on the Hazen-Williams equation for a velocity
of 2-8 fps with less than 30 ft of headloss.
The proposed pump stations should be designed to accommodate the force main friction
losses and static head at the required flow rate. Because no formal pump station site
analysis was completed, at the time of design, the City will need to select a location based
on the availability of land.
3.3 Population Projection
County Traffic Analysis Zone (T AZ) mapping provides data to make population projections
for the West Bremerton and Gorst UGAs. The population projections provided are for the
2025 planning horizon; This sewer plan accommodates those population projections.
Detailed population projections and allocations are provided under each of the three areas
of this planning study.
City of Bremerton
Sewer Urban Growth Area Planning
11
February 2008
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4.0 Planning Areas and Proposed Improvements
The West Bremerton UGA and Garst UGA were divided into sewer sub-basins to aid in
sizing the gravity and pressure mains based on the following factors:
1. Presence of existing infrastructure inside and outside of the UGAs.
2. The use of existing rights-of-way (ROWs) as future locations for gravity and force
mains.
3. Topographic changes.
4. Tax parcels. Flows from a given tax parcel will most likely flow to a single main.
5. The design for portions of the West Bremerton and Garst UGAs is centered on the use
of a low pressure sewer (LPS) system using residential grinder pumps
The sub-basins used for planning in the Rocky Point, SR 304, and Garst areas are shown
in Figures 7, 9, and 11, respectively.
4.1 West Bremerton UGA
Two areas, Rocky Point and SR 304, are proposed to be added to the existing West
Bremerton UGA. These areas are further described below. Table 4 shows the
distribution of population for the West Bremerton UGA based on the sub-areas; Rocky
Point and the SR 304 - Planning Area are included in this study. These populations
concur with the Kitsap County Comprehensive Plan.
Table 4. West Bremerton UGA Aggregate Population
1. Planning for Navy Yard City and West Hills is not included in
this report.
4.1.1 Rocky Point Area
Rocky Point is approximately 410 acres of urban low-density residential and 40 acres
urban medium-density residential zoning. The City's current sewer system extends to the
edge of the Rocky Point area.
4.1.1.1 Population Projection
According to the Comprehensive Plan, the West Bremerton UGA had a total population of
3,229 in 2000, and a projected population of 5,246 in the year 2025. The design
population for flow projections for the Rocky Point area assumes a year 2025 total
population of 2,075, based on County TAZ mapping. The size of each sub-basin (Figure
7) is indicated in Table 5 along with the projected population; the allocation of population
to each sub-basin was determined based on the County's TAZ mapping.
City of Bremerton
Sewer Urban Growth Area Planning
12
February 2008
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Table 5. Population Projection for the Rocky Point Area
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Urban Low 168 775
Residential
Urban Low 113 520
Residential
Urban Low 64 320
Residential
Urban Low 23 131
Residential
Urban Low 38 164
Residential
Urban Medium 43 165
Residential
449 2,075
RP-1
RP-2
RP-3
RP-4
RP-5
RP-6
Totals
4.1.1.2 Sewer Flow Projection
Peak design flow is the sum of the peak sanitary flow and an allowance for 1/1. Proposed
infrastructure is based on the peak design flow provided in Table 6 and a conservative
allowance.
Table 6. Sanitary Flow Projections for Rocky Point
RP-1 775 65,900 177 526
RP-2 520 44,200 122 356
RP-3 320 27,200 77 211
RP-4 131 11 ,1 00 33 80
RP-5 164 14,000 40 119
RP-6 165 14,000 40 119
Totals 2,075 176,400 489 1,411
Per the Design Criteria, flow is based on 85 gpdc with an III rate of 3,000 gpd/Ac.
4.1.1.3 Sewer System layout and Sizing
The recommended sewer system layout for Rocky Point is shown in Figure 8. Based on
the elevations and preliminary planning, this Iyout includes the use of an low pressure
sewer system with grinder pumps and pressure service connections (side sewers).
Service connections will use a grinder pump with a 230 gallon storage capacity to connect
to small low-pressure force mains. The low-pressure side sewers will convey the sewage
to a larger gravity trunk line. The recommended storage capacity provides storage during
City of Bremerton
Sewer Urban Growth Area Planning
13
February 2008
@....R..
. .,
, "",
a power outage for approximately 24 hours. It is assumed low-pressure side sewers will
connect to the proposed gravity sewer trunks through manholes.
Sewer flows generated from sub-basin RP-1 will collect in a 1O-inch gravity main. To
accommodate peak flows from both RP-1 and RP-2, the gravity sewer main at the
intersection of RP~1 and RP-2 increases to a 12-inch main. A pump station (MD-3) will be
required to convey flow from RP-1 and RP-2 south to RP-4 via a 10-inch force main. An
8-inch gravity sewer will run parallel to the force main, conveying flow from RP-3 and RP-
4 along Rocky Point Road north to the proposed MD-3 pump station. A 12-inch gravity
main will connect to the end of the 10-inch MD-3 force main to convey flow to a second
proposed pump station (MD-2) near the intersection of Kelly Road and Marine Drive (See
Figure 8). MD-2 has been sized to accommodate flows from Marine Drive, which is within
the City, but currently not sewered. The proposed pump station will convey flow south
toward Kitsap Way via a 12-inch force main.
The following table summarizes the preliminary sizing of the MD-2 and MD-3 pump
stations. Wet well volumes are based on the DOE Orange Book.
Table 7. Pump Station Sizing for Rocky Point
MD-2
MD-3
6,100
4,000
150
120
1,620
1,050
105
55
Under this proposed plan, a 15-inch gravity sewer will be installed parallel to the existing
gravity mains on Kitsap Way. The City operates an existing pump station (OB-1) located
along Kitsap Way. This pump station would convey the flows from Rocky Point into the
City's existing conveyance system. The OB-1 pump station has a current rated capacity
of 1500 gpm at 212-feet of total dynamic head (TDH). Improvements to the existing pump
station may be required to accommodate increased flow from these areas. The OB-1
pump station would need to produce approximately 230 feet of pressure head, which
would make it similar to the existing City pump station CW-1 being upgraded at this time.
A portion of flow generated within RP-3 can be conveyed to the City system via an 8-inch
gravity main running along NW Phinney Bay Drive. The LPS system allows for service
connections on the downhill side to reach this sewer main. Other service connections will
reach the main via gravity flow. RP-5 and RP-6 can be served by 8-inch gravity sewers
running along the existing ROWs. The central part of RP-6 should flow by LPS to the
City's existing sewers along Corbet Road or proposed gravity sewers along Morgan Road
NW.
City of Bremerton
Sewer Urban Growth Area Planning
14
February 2008
e
1,000
1,500
Feet
Legend
~ Urban Low Residential
C) Urban Medium Residential
<:::> Sub-Basin Boundary
OUGABoundary
': : City of Bremerton Boundary
~ Contour (25')
c=J Parcel Boundary
City of Bremerton
Sewer UGA Planning
@
I
1
I
~:
o
f
"
>
.
i
.
~
5
;;
I~.
_jID~
1,000
1,500
Legend
... 8" Force Main
- 8" Gravity Main
- . 10" Force Main
- 10" Gravity Main
- . 12" Force Main
- 12" Gravity Main
c::mI:OD 15" Gravity
c::> ~~:=~~~~~~
QUGA Boundary
..... : City of Brernerton Boundary
c=J Parcel Boundary
EXisting Bremerton
- Sewer Line
DROW
~ Pump Station
FIGURE 8
Rocky Point Proposed Infrastructure
~
2,000
Feet
City of Bremerton
Sewer UGA Planning
li):1
4.1.2 SR 304 Area
4.1.2.1 Population Projection
The Kitsap County Comprehensive Plan details land use for SR 304. Sub-basin SR-1 is
already sewered and contains multiple land use zones. The projected 2025 population of
SR-1 is approximately 296 according to the County TAZ mapping. The size of each sub-
basin (shown on Figure 9) is indicated in Table 8 along with the allocated projected
population based on the County's TAZ mapping.
Table 8. Population Projection for the SR 304 Area
SR-1 Urban Medium 67 296
Residential
SR-2 Urban Medium 67 295
Residential
SR-3 Urban Low 31 55
Residential
SR-4 Urban Low 42 83
Residential
Totals 207 729
4.1.2.2 Sewer Flows Generated
The estimated sanitary sewer flow is determined by taking the design population and
multiplying by the sanitary flow. Peak sanitary flow is a function of population as
described in the planning criteria. Peak design flow is the sum for the peak sanitary flow
and 1/1 allowance. Proposed infrastructure sizing is based on the peak design flow
provided in Table 9 and a conservative allowance.
Table 9. Sanitary Flow Projections for the SR 304 Area
SR2 295 25,000 71 210
SR3 55 4,700 14 78
SR4 83 7,000 21 108
Totals 433 36,700 106 396
Per the Design Criteria, flow is based on 85 gpdc with an 1/1 rate of 3,000 gpd/Ac.
4.1.2.3 Sewer System Layout and Sizing
The proposed sewer system layout for the SR 304 area is shown in Figure 10. Sub-basin
SR-1 is currently sewered and is referred to as Sewer District 1. Sewer District 1 provides
City of Bremerton
Sewer Urban Growth Area Planning
17
February 2008
ro~
a 12-inch ductile iron (01) gravity sewer, which reduces to an 8-inch gravity sewer, along
SR 3. The proposed plan includes connecting to this stub. Similar to Rocky Point, the
use of an LPS can be implemented to eliminate lift stations and reduce the number of
trunk lines required to serve the SR 304 in areas where gravity flow is difficult.
An 8-inch gravity sewer is proposed to run along the ROW to the currently undeveloped
sub-basin SR-4. The 8-inch trunk continues west along West Sherman Heights Road
through the southern portion of SR-2 and connect to Sewer District 1. Eight-inch gravity
sewers are proposed to serve residences along Viking Street West and Kent Avenue
West. Service connections located to the south of West Prospect Street are
recommended to flow by gravity south, and service connections located north of West
Prospect Street are recommended to flow north.
The northern portions of SR-2 and SR-3 can be served via a 8-inch gravity sewer running
along an undeveloped ROW (Kent Avenue W). To connect this main to Sewer District 1,
an easement will be needed through SR-2 due to the topography. It is assumed the exact
location of the easement will be determined at the design stage.
Flow from Sewer District 1 is conveyed to the Westside WWTP through Kitsap County
Pump Station #75 (KCPS-75). Currently, KCPS-75 has a pumping capacity of 470 gpm
with 55 feet of TDH. The rated performance of these pumps is larger and it appears there
is wear on the impellers. Under this plan, the current pumps would need to be upgraded
with larger pumps (with approximately 30 HP motors) capable of handling 900 gpm. The
wet well volume should also be increased to accommodate the additional flow volume
from SR 304. Under the proposed plan the 8-inch force main leaving the pump station
has adequate capacity to handle the increased flow from SR 304.
City of Bremerton
Sewer Urban Growth Area Planning
18
February 2008
"0
"
,
j
~
I
.
~
~
~
1,000
Legend
~ Industrial
C) Urban Low Residential
C) Urban Medium Residential
OSub-Basln Boundary
f: : City of Bremerton Boundary
~ Contour (25')
c=J Parcel Boundary
1,500
Feet
City of Bremerton
Sewer UGA Planning
~
1,200
f::- City of Bremerton Boundary ~ Pump Station
c=J Parcel Boundary
Existing Bremerton
- Sewer Line
DROW
FIGURE 10
SR 304 Proposed Infrastructure
City of Bremerton
Sewer UGA Planning
Hl1.
4.2 Garst UGA
The Garst UGA is located at the western end of Sinclair Inlet at the junction of SR 16 and
SR 3. Garst is primarily an industrial and small commercial center.
4.2.1 Population Projection
Based on the population projection presented in the Comprehensive Plan, the Garst UGA
had a population of 154 in 2000 and is projected to have a population of 227 in 2025. The
size of each sub-basin is indicated in Table 10 along with the projected population based
on County TAZ mapping.
Table 10. Population Projections for the Gorst UGA
GT-1 Mostly Industrial 127 -0-
Highway/Tourist
GT-2 Commercial and 122 227
Residential
Mostly
GT-3 Highway/Tourist 85 -0-
Commercial
Totals 334 227
4.2.2 Sewer Flows Generated
The estimated sanitary-sewer flow is determined by taking the design population and
multiplying by the sanitary flow, then adding in flow for industrial and commercial areas.
Peak sanitary flow is a function of population as described in the planning criteria. Peak
design flow is the sum of the peak sanitary flow and the III allowance. Proposed
infrastructure sizing is based on the peak design flow provided in Table 11 and a
conservative allowance.
Table 11. Flow Projection for the Gorst UGA
GT1 -0- 316,500 549 814
GT2 227 204,700 355 609
GT3 -0- 145,600 253 429
Totals 227 666,800 1,157 1,852
Per the Design Criteria, flow is based on 85 gpdc with an III rate of 3,000 gpd/Ac.
City of Bremerton
Sewer Urban Growth Area Planning
21
February 2008
m.........R..
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. ...
4.2.3 Sewer System layout and Sizing
The proposed sewer system layout for the Gorst UGA is shown in Figure 12.
Topographical issues, similar to those in Rocky Point, led to the use of an LPS with
grinder pumps. The Gorst UGA consists of industrial, tourist/highway commercial, urban
low residential and urban restricted zones. Important infrastructure within this UGA
includes SR 16 and SR 3. The design assumes that sewer lines will not cross these two
major highways except to connect into the City's existing force main along SR 3.
A small section of land between SR 3 and the Sinclair Inlet has been determined to be
cost prohibitive for sewer service and will remain on a septic sewer system; currently,
there is one business in this section. This section is indicated on Figure 12.
The City of Bremerton is currently slip-lining an 8-inch and a 1 O-inch force main through
an existing pipe along SR 16 and SR 3. The sewer improvements presented herein
propose to connect to this force main by two proposed pump stations. One pump station
(SB-3) would be located north of SR 3 along West Belfair Valley Road. The other pump
station (SB-4) would be located to the south of SR 16 along West Frontage Road. These
pump stations would provide the required pressure to convey sewage flow into the force
main. Preliminary pump station sizing is presented in Table 12. The static head is based
upon pumping into the new, slip-lined force main from the Southwest Bremerton Pump
Station currently planned for construction. Adding the peak design flow from the Gorst
UGA to the flow from the Southwest Bremerton Pump Station would require the use of
both force mains.
Table 12. Pump Station Sizing for Gorst
SB-3
SB-4
5,400
1,600
155
130
1 ,435
430
100
25
Sub-basin GT-1 contains primarily industrial and highway/tourist commercial zoning.
Based on the assumptions stated in the planning criteria, a 12-inch gravity sewer
conveying flow toward Gorst on West Sherman Heights Road should provide adequate
capacity for future industrial development of this area. The 12-inch sewer would convey
sewage to the proposed pump station SB-3 north of SR 3. A 10-inch force main would
then convey flow into the City's future force main.
A second proposed sewer running along West Belfair Valley Road would also enter SB-3.
Sub-basin GT -2 would be served by this 1 O-inch sewer and a second 1 O-inch sewer along
Sam Christopherson Avenue West. The LPS is capable of conveying flows from the
service connections to these gravity sewers where gravity flow is not possible.
The area south of SR 16 is zoned primarily highway/tourist commercial. To accommodate
the commercial flows, two 10-inch sewers leading to a pump station are recommended.
One main would run along Frontage Road and the other would run north on Feigley Road
Way to tie in with the proposed main along Frontage Road. The purpose of the
recommended pump station SB-4 is to convey flows to the City of Bremerton force main
along SR 16 via a 6-inch force main. To accommodate flows along the Sinclair Inlet within
GT-3, a LPS system could be implemented. The flow could be conveyed to pump station
SB-4 by using horizontal directional drilling (HOD) under SR 3.
City of Bremerton
Sewer Urban Growth Area Planning
22
February 2008
6)
1,200
Legend
c==> Highway/Tourlst Commercial
~ Industrial
~ Urban Low Residential
~ Urban Restricted
QUGA Boundary
t _ :City of Bremerton Boundary
D Parcel Boundary
DROW
"""- Contour (25')
FIGURE 11
Gorst UGA Sub-Basins
City of Bremerton
Sewer UGA Planning
c
!
I
t
~
.
"
~
"
"
e
....6" Force Main
- . 10" Force Main
- 10" Gravity Main
- 12" Gravity Main
. .. HOrizontal
Directional Dnll
C) ~~::/~~~~e:
QUGA Boundary
t _ : City of Bremerton Boundary
CJ Parcel Boundary
Existing Bremerton
- Sewer Line
DROW
~ Septic Sewer System
[g!I Pump Station
FIGURE 12
Garst UGA Proposed Infrastructure
o
17_
1,200
City of Bremerton
Sewer UGA Planning
HI~
5.0 Opinion of Probable Cost
A total estimated project budget, including both an opinion of probable construction and
engineering cost, for each portion of the expanded West Bremerton UGA and Gorst UGA
are presented in this section.
Additionally, each planned UGA requires the use of a low pressure sewer system to serve
portions of the area. The costs for the low pressure sewer system would be the
responsibility of the homeowner or developer. A preliminary opinion of construction and
connection cost is presented for an individual owners low pressure grinder system. Each
lot wishing to connect to the City sewer system within the area designated as low
pressure must provide a grinder pump station at their own cost. Once construction of the
low pressure grinder pump station is installed, the homeowner would be required to
provide an access easement to the City. Once the easement is completed, the City would
take over maintenance and operation of the low pressure grinder pump station.
5.1 West Bremerton UGA - Rocky Point Area
An opinion of probable construction and engineering cost for the recommended
conveyance system for the Rocky Point area is presented in Table 13.
City of Bremerton
Sewer Urban Growth Area Planning
25
February 2008
H:I~
Table 13. Opinion of Probable Cost for the Rocky Point Area
~ ,;,;;":.' '",t:ga~61ltY":\'~J ,;~:~j0I111!I[~E~j:! ')tQiilfl~~~t,~~ J~1ff~iaiE~'Q~~.t:,[:;!
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Trench Safety System 29,400 LF $2 $58,800
8-in Gravity PVC Pipe 15,000 LF $150 $2,250,000
10-in Gravity PVC Pipe 2,800 LF $155 $434,000
12-in Gravity PVC Pipe 3,200 LF $160 $512,000
15-inch Gravity PVC Pipe 3,000 LF $170 $510,000
10-in HDPE Sewer Force Main 2,400 LF $150 $360,000
12-in HDPE Sewer Force Main 3,000 LF $160 $480,000
48-in Manhole 80 EA $4,500 $360,000
MD-2 Pump Station 1 LS $850,000 $850,000
MD-3 Pump Station 1 LS $750,000 $750,000
$1,000,00
08-1 Pump Station Upqrades 1 LS 0 $1,000,000
Mobilization/Demobilization 1 LS 5% $378,240
Temporary Erosion/Sedimentation Control 1 LS 3% $226,944
Traffic Control 1 LS 10% $756,480
Subtotal $8,926,464
Construction Contingency 1 LS 40% $3,570,586
Subtotal - Construction Costs $12,497,100
Sales Tax 1 LS 8.6% $1,074,751
Construction Budget - Preliminary Design Estimate $13,572,000
Engineerinq Desiqn 1 LS 20% $2,715,000
Total Estimated Project Budget $16,287,000
1) Pipe prices per linear foot include all bedding, backfill, excavation, soil removal, surface restoration,
existing utility relocation/avoidance allowance, and pipe costs.
2) No easements or land acquisition costs included. Pipelines and pump stations assumed in public rights of
way.
3) For certain properties, the landowner would be required to install a low-pressure grinder pump to connect
to City services. Costs for the grinder pumps are not included.
City of Bremerton
Sewer Urban Growth Area Planning
26
February 2008
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5.2 West Bremerton UGA - SR 304 Area
An opinion of probable construction and engineering cost for the recommended
conveyance system for the SR 304 area is presented in Table 14.
Table 14. Opinion of Probable Cost for the SR 304 Area
~ a~!,~it~[~lit~] f~~;~'~I~~~t~:;~
Trench Safety System 9,420 LF $2 $18,840
8-in Gravity PVC Pipe 9,420 LF $150 $1,413,000
48-in Manhole 57 EA $4,500 $256,500
Mobilization/Demobilization 1 LS 5% $84,417
Temporary Erosion/Sedimentation Control 1 LS 3% $50,650
Traffic Control 1 LS 10% $168,834
Subtotal $1,992,241
Construction Contingency 1 LS 40% $796,896
Subtotal - Construction Costs $2,789,200
Sales Tax 1 LS 8.6% $239,871
Construction Budget - Preliminary Design Estimate $3,030,000
Engineering Design 1 LS 20% $606,000
Total Estimated Project Budget $3,636,000
1) Pipe prices per linear foot include all bedding, backfill, excavation, soil removal, surface restoration,
existing utility relocation/avoidance allowance, and pipe costs.
2) No easements or land acquisition costs included. Pipelines and pump stations assumed in public rights of
way.
3) For certain properties, the landowner would be required to install a low-pressure grinder pump to connect
to City services. Costs for the grinder pumps are not included.
City of Bremerton
Sewer Urban Growth Area Planning
27
February 2008
ID:l
5.3 Gorst UGA
An opinion of probable construction and engineering cost for the recommended
conveyance system for the Garst UGA is presented in Table 15.
Table 15. Opinion of Probable Cost for the Gorst UGA
.".. ~~~r@~~hmy;;;:';;.~ )3:~;),\;:;Q~~JJ~\r~~~ SQl'!,;9j~~'t~:' ~~'1;1T9,qljlrg'2~g;
Trench Safety System 10,540 LF $2 $21,080
10-in Gravity PVC Pipe 7,380 LF $155 $1,143,900
12-in Gravity PVC Pipe 2,760 LF $160 $441,600
6-in HOPE Sewer Force Main 200 LF $125 $25,000
10-in HOPE Sewer Force Main 200 LF $150 $30,000
48-in Manhole 35 EA $4,500 $157,500
S8-3 Pump Station 1 LS $750,000 $750,000
S8-4 Pump Station 1 LS $650,000 $650,000
Mobilization/Demobilization 1 LS 5% $160,954
Temporary Erosion/Sedimentation Control 1 LS 3% $96,572
Traffic Control 1 LS 10% $321,908
Subtotal $3,798,514
Construction Contingency 1 LS 40% $1,519,406
Subtotal - Construction Costs $5,318,000
Sales Tax 1 LS 8.6% $457,348
Construction Budget - Preliminary Design Estimate $5,776,000
Engineering Design 1 LS 20% $1,156,000
Total Estimated Project Budget $6,932,000
1) Pipe prices per linear foot include all bedding, backfill, excavation, soil removal, surface restoration,
existing utility relocation/avoidance allowance, and pipe costs,
2) No easements or land acquisition costs included, Pipelines and pump stations assumed in public rights of
way.
3) For certain properties, the landowner would be required to install a low-pressure grinder pump to connect
to City services. Costs for the grinder pumps are not included.
City of Bremerton
Sewer Urban Growth Area Planning
28
February 2008
L~""
,,(';J...A.. "
5.4 Homeowner I Developer Extension Costs
An opinion of probable construction costs to be borne by the homeowner or developer of
land for the recommended low-pressure grinder pump connection fees is presented in
Table 16.
Table 16. Homeowner I Developer Extension Cost Estimate
~ ~ -.,:;~ :~~f'~~jj;y;,JJt~::~~;::(:~ :':;:tQ:F:l:i(;~g~li]:1 :~;imgf~J~,~Q~tg
Package Grinder Station 1 EA $8,500 $8,500
1-1/4" Pipeline 100 LF $20 $2,000
Decommission Existing Septic Tank 1 LS $500 $500
Subtotal $11,000
Construction Contingency 1 LS 10% $1,100
Subtotal - Construction Costs $12,100
Sales Tax 1 LS 8.6% $1,041
Construction Budget - Preliminary Design Estimate $13,200
City of Bremerton General Facility Charge 1 LS $3,800 $3,800
Total Estimated Project Budget $17,000
1) Pipe prices per linear foot include all bedding, backfill, excavation, soil removal, surface restoration,
existing utility relocation/avoidance allowance, and pipe costs.
2) Package grinder station costs include engineering design, excavation, uplift protection, pump station,
pumps, electrical connections, and minor landscaping.
3) Pipeline length will vary for each property. 100-LF is an assumed length.
4) Upon completion of landowner built grinder pump station, landowner will provide City with an access
easement, and turn over maintenance and operation of the grinder pump station to the City.
City of Bremerton
Sewer Urban Growth Area Planning
29
February 2008
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A
6.0 Funding
If these proposed sewer system improvements are funded through rates, the impact on
residents and businesses in the area could be significant. Because of this, the City is
evaluating revenue strategies to supplement existing sources to fund these wastewater
system projects. This section discusses the potential funding sources available to the City
including federal, state and internal sources. Funding of these projects should be
balanced against the financial rate impacts to wastewater customers.
6.1 Potential Funding Sources
The City of Bremerton is examining existing and additional revenue strategies it may want
to consider when funding future wastewater system projects. This section discusses the
potential funding sources available to the City including federal, state and internal
sources.
Table 17 outlines the federal and state loan and grant programs available for planning,
construction and emergency projects. All of them are low-interest or no-interest
programs. Due to the fact that these sources rarely provide full funding of a construction
project, the City will need to supplement any of these funding options with other sources
of revenue to cover the total costs of any upcoming wastewater system projects.
City of Bremerton
Sewer Urban Growth Area Planning
30
February 2008
Fil1.
Table 17. Funding Programs at a Glance
PWTF On-going, pending Upon Board
$ availability (due
Planning 5th of each month approval
PWTF Pre- On-going, pending Upon Board
$ availability (due
Construction 5th of each month) approval
PWTF Annual - due in Upon Legislative
Construction May approval -
following sprin
PWTF On-going, pending Upon Board
$ availability (due
Emergency 5th of each month approval
Centennial Annual - due in the Upon Legislative
Clean Water Fall approval -
Fund following spring
State Water
Pollution Annual - due in the Upon Legislative
Control Fall approval -
Revolving following spring
Fund
Public Works Board
$100,000
$1 Million
$10 Million
$500,000
0%
0.5 - 2%
linked to
local match
0.5 - 2%
linked to
local match
0-3%
Department of Ecology
30-60% of
Varies2 average
market rate3
Varies4
None
5 - 15% linked to
interest rate
(minimum of 5%)
5 - 15% linked to
interest rate
minimum of 5%
None
25% for grant,
None for Loan
30-60% of
average None
market rate3
Department of Housing and Urban Development
Community
Development
Block Grant
Annual - due end
of August
Upon City
Council approval Varies5
- following year
None
None
6 Years
5 Year maximum, or
20 years with proof
of construction
financing
Life of the project or
20 years maximum
Life of the project or
20-year maximum
0-5 years or 5-20
years
0-5 years or 5-20
years
Calendar year
k",j~~~i~~
18 Months
18 Months
48 Months
12 Months
5 Years
5 Years
Public service -
calendar year,
CIP-
reasonable
timeframe
City of Bremerton
Sewer UGA Planning Study
31
February 2008
Eli
Revenue
Bonds
None
Municipal Financing
Upon loan None Market None 20-30 years N/A
approval
Upon loan None Market None 20 years N/A
approval
Upon loan Voter
approval N/A N/A N/A N/A
approval required6
General
Obligation
Bonds
None
Utility Local
Improvement
District
None
1. Loan limits are per jurisdiction, per biennium.
2. $500,000 if the match for the grant is in the form of cash or interlocal cost, $250,000 if any part of the match is in the form of in-kind goods or
services, $500,000 for activities project loans.
3. 30% of average market rate for a 0 - 5 year loan, 60% average market rate for a 5 - 20 year loan.
4. Not more than 50% of available funding to anyone applicant, no more than $5 million for smaller combined design-construct projects, no more
than 50% of available funding for water pollution control activities.
5. City of Bremerton has a total of $500,000 to distribute to all approved applicants.
6. The maximum amount of an ULlD is unlimited with funding coming from voter-approved assessments on properties within the district.
City of Bremerton
Sewer UGA Planning Study
32
February 2008
L~~
,C."l.....J...,
6.2 External Sources of Funds
In the past, the City has been effective at securing grant and loan funds and should
continue to closely monitor future opportunities to obtain these potential funding sources.
Table 18 provides a summary of the contacts for the various funding agencies.
Table 18. Funding Agency Contacts
Progra~ . ...;'t Address .., PhonEi; Inte'rhet .... .:1
, . :":i
H
Centennial Clean Department of Ecology
Water Fund P.O. Box 47600 (360 )407 -6566 www.ecy.wa.gov
Olympia, WA 98504-7600
Drinking Water Department of Ecology
State Revolving P.O. Box 47600 (360)407 -6566 www.ecy.wa.gov
Fund Olympia, WA 98504-7600
Public Works Public Works Board www.cted.wa.gov
P.O. Box 48319 (360 )586-7186
Trust Fund Olympia, WA 98504-8319 www.pwb.wa.gov
Infrastructure Assistance
Infrastructure Coordinating Council (IACC) (360)586-4123 www.infrafunding.wa.gov
Database P.O. Box 48319
Olympia, WA 98504-8319
6.2.1 Centennial Clean Water Fund
The Centennial Clean Water Fund (CCWF) provides funding to local governments and
tribes for measures to prevent and control water pollution. Both grants and loans are
available on a yearly funding cycle.
CCWF is the largest State Grant Program. It provides grants for planning, design, and
construction of facilities and other activities related to water quality. The primary focus of
the program is pollution prevention and funding projects with a quantifiable water quality
benefit. In September 2005, the CCWF began the process of revising the rules which
guide the direction of the funding program. The CCWF recently completed the public
comment period on the changes. Proposed changes are to respond to existing and
merging priorities and financial management needs including, adding new loan and grant
eligibilities, additional best management practices, redistribution of program funding
allocation between facilities and activities projects, providing added flexibility to the
application process. These changes have been adopted and became effective for the
funding cycle beginning September 1, 2007 for FY 2009.
Each public body is limited to a maximum of five funded projects per year, with a
maximum of $2.5 million available for each of two projects, and a limit of $250,000 per
project for the remaining three projects. Grant funding of 50 to 75 percent of a project is
available depending on the type of project.
Previously, funding from this program was not available to provide excess capacity, but
only to meet existing residential needs. The new language allows for projects which
address water quantity issues if they will improve the water quality. Funds are available to
protect a source of water supply or for water conservation or water reuse projects, if they
can be shown to be a cost-effective way to solve a water quality problem.
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6.2.2 State Water Pollution Control Revolving fund
The State Water Pollution Control Revolving Fund (Revolving Fund) was created to
provide loans to finance the planning, design, and/or construction of water pollution
control facilities, nonpoint source pollution control management projects that implement
Washington's water quality management plan, and to develop and implement a
conservation and management plan.
Nonpoint source water pollution refers to pollution that enters any waters of the state from
any dispersed water-based or land-use activities, including, but not limited to, atmospheric
deposition; surface water runoff from agricultural lands, urban areas, and forest lands,
subsurface or underground sources; and discharges from boats or other marine vessels.
6.2.3 Public Works Trust Fund
The Public Works Trust Fund (PWTF) Loan program is a loan program set up by the
Legislature to assist cities, towns, counties, or special districts with funding for different
types of public works projects. The projects may include streets, roads, drainage
systems, water systems, or sanitary sewer systems. Projects that replace and/or repair
existing water and sewer systems are given priority. No funds will be allocated to install a
new system. Rather, funds will be granted to rehabilitate or replace an existing system
serving an existing population.
Interest rates for these loans are typically two percent or less for a maximum term of 20
years for applications requesting 95 percent funding of the project. The interest rate
decreases to 0.5 percent when municipalities provide 15 percent of the project funding.
Debt service coverage is not imposed on the PWTF loan. As a minimum, the PWTF
requires that cities impose a 0.25 percent excise tax on the sale of real property and have
a well defined capital improvement program for the utility.
The board may also make low-interest or interest-free loans to local governments for
emergency public works projects. Emergency public works projects shall include the
construction, repair, reconstruction, replacement, rehabilitation, or improvement of a
public water system that is in violation of health and safety standards and is being
operated by a local government on a temporary basis. The loans may be used to help
fund all or part of an emergency public works project less any reimbursement from any of
the following sources: (1) Federal disaster or emergency funds, including funds from the
Federal Emergency Management Agency (FEMA); (2) state disaster or emergency funds;
(3) insurance settlements; or (4) litigation.
6.2.4 Community Development Block Grants
The Community Development Block Grant (CDBG) program was developed in 1974 to
provide communities with resources to address a wide range of unique community
development needs. The Entitlement Communities, of which Bremerton is one, receive an
annual allocation of grants to develop viable communities by providing decent housing, a
suitable living environment and opportunities to expand their economic opportunities.
These grants are principally for low and moderate income persons.
As part of the funding process, the applicants attend a mandatory workshop to receive
detailed information on the application process. Projects must be utilized to assist those
below 50% of the median income level. The applications are then reviewed by a
Community Advisory Committee and those chosen for further consideration are moved
along in the process. Part of the approval process is to identify how the agencies are
City of Bremerton
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fit
using other funding sources to pay for their programs. The next step is a public comment
period and is followed by final City Council approval.
6.2.5 Infrastructure Assistance Coordinating Council
Many programs exist with funding available for sewer utility capital projects. A key
resource in identifying such programs is the Infrastructure Assistance Coordinating
Council (IACC). The IACC comprises state and local organizations whose function is to
provide funding for infrastructure repair and development. The purpose of the IACC is to
assist local governments in coordinating funding efforts for infrastructure improvements.
This is an important resource as the IACC will be aware of any new funding opportunities
that may arise.
6.2.6 Municipal Financing
Municipal bonds are commonly used in financing long-term capital improvements for publicly
owned systems. As with conventional loans, a municipality or public utility agrees to repay
the lender the face value of the municipal bond plus interest. Historically, municipal bond
interest proceeds and payments have been exempt from federal income tax. Therefore,
these bonds have been generally issued at lower interest rates than bonds issued by private
institutions.
Debt service is based on the annual principal and interest payments needed to retire the
bond. The bonds can be general obligation, revenue, or assessment.
6.2.6.1 General Obligation Bonds
General obligation (GO) bonds can be issued only by a unit of government. The issuer
secures it with an unconditional pledge to levy whatever taxes are necessary to pay
principal and interest. This "guarantee" is viewed as the safest pledge available.
6.2.6.2 Revenue Bonds
Revenue bonds are issued with the premise that revenues from current users of the
system should pay for improving or replacing the system rather than placing the burden
on the general taxpayer. Bond payments are normally made from revenues such as
monthly user charges and special fees, which are generated by the project being
financed. No general property taxes are levied or pledged as a backup. Revenue bonds
normally require the utility to provide further security in the form of a "debt service
reserve," which is usually equal to a one-year requirement of principal and interest. This
reserve may be completely funded initially or over time on a fixed schedule.
Revenue bonds generally do not require voter approval. Normally, there are no legal
limitations on the amount of revenue bonds to be issued, but the accumulated issuance of
excessive amounts may be unattractive to bond buyers because they may represent high
investment risks. In addition, extensive use of revenue bonds may result in user charges
which are unacceptably high to system customers.
These bonds are generally issued at a higher interest rate than are GO bonds. They
normally include financial covenants insuring that proper operation and maintenance of
the utility is accomplished through the collection of funds above that for the debt service.
This additional income is referred to as debt service coverage and may range from 25 to
50 percent of the total debt service.
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6.2.6.3 Assessment Bonds
When a project involves wastewater system improvements for adjacent properties, such
as wastewater lines extending in front of residential-type development, funding is often
accomplished through formation of an improvement district (10). An 10 bond is issued as
a revenue bond and can be paid back from assessments against the properties benefited,
or the utility may elect to use monthly user rates and revenues of the system to pay the
bonds. The principle of charges for improvement district bonds is that the charge against
the property must equal the benefit. Most states have very strict procedures for
establishing the collection of bond funds.
6.3 Internal Funding Sources
Internal funding sources available to offset capital costs include existing reserves and fees
received from new wastewater connections and existing reserves. The City's wastewater
connection fees or system development charges (SOCs) should be reviewed every few
years to ensure they are consistent with system planning criteria and are keeping pace
with inflation.
A key indicator of financial health and viability is a utility's reserve levels. Industry
standards (American Waterworks Association - AWWA) recommend that utilities maintain
working capital reserves at a level adequate to handle unexpected occurrences, including
unexpected cash flow fluctuations. The City currently has a policy of maintaining a cash
balance of no less than 12% (45 days/365 days) of O&M expenses and repair and
replacement reserves of 15% (55 days/365 days) of the total utility's operating budget.
The operating reserves protect the utility against shortfalls when expenses need to be
paid before revenue is received. The operating reserve can also be used to cover
unanticipated operating expenses or lower than expected revenue collections. The
minimum level is a financial measure or guideline to alert management when it is time to
take action to assure the operating fund will not continue to decline.
Repair and replacement reserves are used to fund the cash flow requirements of capital
infrastructure construction. These reserves can increase and decrease significantly
depending on funding sources available and the capital projects that are planned during
the year. The minimum funding level should be based on the average annual capital
expenditures for renewal and replacement of the utility's existing facilities. Annual
depreciation expense is a guideline for annual capital expenditures for renewal and
replacement projects.
The City should maintain the minimum balance for both of these reserves to meet the
fluctuating financial requirements of the City. The timing and funding of the two minimum
target reserve levels should be balanced against the potential rate impacts of the funding
of capital improvements from rates. The utility should clarify its financial planning goals by
establishing a target or minimum funding level for each reserve fund. Any use of these
funds for capital projects should be evaluated against the impacts to these minimum
target reserve levels.
Table 19 outlines internal sources of funding the City might wish to consider to
supplement the loans and grants discussed above. Implementation of these strategies
could have far-reaching effects as some interfund transfers may require significant cuts
from some programs, departments or levels of service in order to fund wastewater
projects.
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nI~
'- .. .F:u ri (II n'g:~["
.'. Qptitm ___
Wastewater
Operating
Fund
Wastewater
Capital
Reserve
Fund
Developer
Extension
Table 19. Potential Funding/Revenue Strategies
'. ::-," . '."'"
Des,cription
...
Voter J\pprQyal'
,. ,ReQyjred?
....-.-
, .
U,~Clge Issues".
,. ..,. .,.,,'. ......'..
Reallocation of Existing Revenues/Funds
Existing revenues are user
rates, fees, miscellaneous
revenues and loans. Some
of these monies may be
reallocated through transfer
to the wastewater capital
projects fund in order to
fund wastewater projects.
At least 50% of the
wastewater operating fund
must be self supporting fro
user charges.
No
City policy is to maintain
minimum target reserve
levels of 12% of O&M.
No
May require cuts in other
programs and levels of
service.
City policy is to maintain
minimum target reserve
levels of 15% of total
operating budget for
future repair and
replacement projects.
Existing revenue sources
are from wastewater
operating fund transfers,
grants, system
development charges and
debt proceeds from loans
to pay for capital projects.
System development
charge revenue must pay
for growth related portion
of projects.
Other Options
Extensions to the
wastewater collection
system would be the
responsibility of the
developers
No
Requires the ability and
mechanism to achieve
higher density within the
City's urban growth
areas.
This section outlines the various funding sources, internal and external, available to the
City for future wastewater projects. The City has been proactive in its financial
management in the past. It has demonstrated its commitment to responsible
management of the utility by funding adequate levels of operations, capital and reserves.
Continued fiscal management will enable the wastewater utility to operate on a financially
sound basis. All funding sources, both external and internal, should be reviewed for
potential rate impacts to customers and to the City's current financial policies.
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ID..1:
7.0 Conclusion
This report amends the 2006 Kitsap County 10- Year Comprehensive Plan Update
(Comprehensive Plan) by providing a sanitation strategy for the Gorst UGA and portions
of the West Bremerton UGA. Additional sewers and pump stations as identified in this
report will be required to provide sewer service for the population projected for the West
Bremerton UGA and Gorst UGA through 2025 as stipulated by the Comprehensive Plan.
City of Bremerton
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February 2008
Hl'l
8.0 References
Kitsap County to-Year Comprehensive Plan Update, December 2006.
Brown and Caldwell. Kingston Wastewater Facilities Plan Addendum Technical
Memorandum, August 2007.
Karcher Creek Sewer District 2007 Comprehensive Sewer Plan Technical Addendum,
December 2007.
Washington State Department of Ecology. Criteria for Sewage Works Design. November
2007.
Metcalf and Eddy. Tchobanoglous, G., Burton, F.L., and Stensel, H. D. Wastewater
Engineering Treatment and Reuse Fourth Edition. New York, NY. McGraw-Hili 2003.
Fair, G.M. and Gayer, J.C. Water Supply and Wastewater Disposal, First Ed., New York,
NY. John Wiley and Sons, Inc., 1954.
King County. 2001/2002 King County Regional Infiltration/Inflow Control Program Wet
Weather Technical Memorandum.
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