Title
Service Connection Requirement for Water and Wastewater Servicing Policy
Proposed Motion
That the Service Connection Requirement for Water and Wastewater Servicing Policy report be received as information, as presented.
Body
Administration Recommendation
Administration supports the proposed motion.
Purpose
This report is in follow up to one five motions proposed by Mayor Shaigec at the May 11, 2021 Committee of the Whole (CoW) meeting. An amended motion was carried directing Administration to prepare a report outlining information and potential policy development regarding Acceptance of Potentially Contaminated Soils, Service Connection Requirement for Water and Wastewater Servicing, Multi Parcel Residential Subdivision Approval, Capital and Operating Cost Sharing, and Agricultural Impact Assessment. These were to be brought forward to the September 7, 2021 Committee of the Whole meeting. This report addresses the second item, Service Connection Requirement for Water and Wastewater Servicing.
Summary
With the ongoing development of the West Interlake District (WILD) regional water line, the expansion of the Capital Region Parkland Water Services Commission (CRPWSC) and expansion of the Alberta Capital Region Wastewater Services Commission (ACRWSC), there are growing opportunities to build connections to these regional systems and begin optimizing Parkland County's water/ wastewater allocations/ discharges as identified within the commission business plans.
The information below and the included attachments provide general background information on where the systems are located, how the systems operate and what the systems can be used for. Administration has outlined a few options however there are many options that could be considered as opportunities present themselves.
Water Systems Background Info and Context
A regional water system is used to move significant amounts of water long distances with minimal interruptions. Reservoirs are developed at strategic points along the regional lines with distribution systems extended off the reservoir locations. The distribution system typically follows the road alignments and brings the water servicing to the property line of as many homes and businesses as possible. As the property is developed, the building developer will connect to the water distribution system at their property line with a local service line. Multiple direct connections to the regional systems are discouraged as it becomes very expensive and highly inefficient to the overall network to build single connections off the regional systems.
Another way to think about this is to picture our roadway networks. We have highways that are high speed / high volume roadways with minimal access points and interruptions. Highways allow for the maximum speed and highest volumes along the network. Off the main highway we have interchanges or large scale intersection points (this would be the reservoir and pump houses). From there we have a series of collector and local roads that provide access to areas and then eventually individual properties. In terms of water servicing, it is the distribution system along the roadways that brings water to the property line. Each property has an access or a driveway that provides direct access into the property. This is the individual water service connection direct to the homes/businesses.
In Acheson, the CRPWSC feeds water into the reservoirs at Zone 3 and Zone 4. From the reservoirs, large pumps push water through a distribution system out to the businesses and homes within the local area. As a fully pressurized system, water connections to hydrants also provide fire support services. Many businesses and homes within Acheson and the Big Lake area are currently serviced with water and wastewater. Those that are not serviced either have chosen not to connect to the system, were developed prior to the system being available or are just on the fringe of the existing network and will potentially be connected in the near term.
The areas west of Stony Plain and generally north of Highway 16 have water servicing capability from the WILD water system. The WILD water system starts in Stony Plain and extends west to Seba Beach and north towards Lac St Anne County and various municipalities/ First Nations outside Parkland County. Within 2 years or less, it will include a westward extension to Entwistle. Areas currently connected to the system in Parkland County include the Water Reservoir/Truck Fill at Glory Hills (RR13 and Twp Rd 534), the Water Reservoir/Truck Fill at Kapasiwin (RR 35, south of Hwy 16), Water Reservoir in Wabamun and soon to be Water Reservoir/Truck Fill at Seba Beach (Twp 532, west of Hwy 759).
The CRPWSC is designed as a high-pressure system capable of moving significant volumes of water as this also feeds reservoirs in Spruce Grove and Stony Plain. The CRPWSC is also the water source feed for the WILD water system. All water for both WILD and CRPWSC comes from the greater Capital Region Water Services commission, which draws from the North Saskatchewan River at the E.L. Smith Water Treatment Plant.
The WILD system is designed as a low-pressure system. It pushes just enough volume and pressure in the line to move water long distances with trickle fill reservoirs at strategic locations. This type of system ensures there is a constant supply of water however the reservoir recharge time is longer. Think of filling a pool with a garden hose (WILD system) versus a fire hose (CRPWSC system).
There have been several questions raised recently as to how the County may take advantage of this regional system and how it may improve overall water servicing to the residents and business owners throughout the County. This report provides a few key opportunities to consider and begins to outline what infrastructure needs to be in place to take full advantage of the water system.
Key opportunities with the CRPWSC system include continued development of Acheson and Big Lake areas. There is a long-term integrated water network plan that takes full advantage of the CRPWSC water system. It is primarily funded through off-site levies as growth occurs and will provide long term benefits for the area. This is well established and functioning very well.
Key opportunities for WILD include connections at major business employment areas and recreation areas as well as communities along its length. The WILD system currently connects directly to Wabamun's reservoir. Off Wabamun's reservoir, the local distribution system sends water to all businesses and homes within the community. The WILD system will soon connect to Entwistle and a new water reservoir with pump house will be constructed to take full advantage of this water supply. Like Wabamun, there is an existing water distribution system in Entwistle. In the future, Meridian Business Park will include a reservoir, pump house and fully pressurized local system for developing areas once completed. There are truck fill locations along its length that shorten the distance required to travel to access clean potable water - which also reduces wear and tear on County roadways. A key strategic connection will be to Trestle Creek, to Pine Ridge Golf Course and potentially other RV / Recreation destinations along the length of the line. There is opportunity for strategic development pockets along the length to also take advantage of this water source however a local water storage system (reservoir), pumps and distribution lines will be required for this to be effectively used.
Wastewater Systems Background Info and Context
There is currently one regional wastewater system that Parkland County is a member of. This is the Alberta Capital Region Wastewater Services Commission (ACRWSC). This system starts in Stony Plain and extends easterly through Spruce Grove and Acheson/ Big Lake eventually ending in the wastewater treatment facility near Fort Saskatchewan. This is primarily a gravity system with lift stations at key destinations. Wastewater is gathered within the communities through local systems and is dumped into the regional line at strategic locations. Acheson currently has two primary connection points with a planned third connection in the long term. There is also a centralized dump station at Hwy 44 north of Hwy 16 for hauling companies to discharge waste collected from rural properties.
Outside of the extents of the ACRWSC system, Parkland County manages its wastewater through a few isolated wastewater lagoons. These are located at Duffield, Tomahawk, Entwistle, and Wabamun. They are either an evaporative based lagoon or systems with outlets into the natural environment once treatment is completed and water quality meets the environmental regulations. From each resident and/or business, there are underground gravity based systems that collect the wastewater from the properties into distribution lines. From the distribution lines the wastewater flows into mainlines that lead out to the wastewater lagoons. There are a series of pumps and lift stations necessary to make the gravity portions of the system work.
Many of these sites have been considered for regional systems but are just too far outside the reach to make it a fiscally viable consideration. Recent discussions with adjacent communities have continued to explore additional regional wastewater options. Lac St Anne County is leading this discussion and exploring potential options and may be proposing a new regional system to benefit several communities. A regional system would not likely change how Parkland County collects the wastewater into the lagoons however it may provide opportunity for more dump stations in closer vicinity to concentrated residential or business employment areas. It may also provide an opportunity to discharge lagoons into a pipe, and eventually a treatment centre, rather than being released into the natural environment after pre-treating. As populations increase in our developed areas or with increasing environmental policy obligations, this may become an increased priority.
Key opportunities for ACRWSC include connections at major business employment areas and residential areas along Highway 16, where the existing system is developed. There is a long term integrated wastewater network plan that takes full advantage of the ACRWSC wastewater system for the Acheson / Big Lake area. It is primarily funded through off-site levies as growth occurs and will provide long term benefits to the area. This is well established and functioning well. Additional dump stations might be considered at strategic locations west of Highway 44 however this would be in near vicinity of residential areas and highly undesirable from an odour consideration. Continued discussions with regional neighbours on a regional system are encouraged.
Strategic Opportunities
The County could pursue the following activities:
1. Develop a Water and Wastewater Master Plan to fully review and develop long term strategy for servicing.
o Administration completed the Transportation Master Plan in 2020
o Administration is working on the Drainage Master Plan in 2021-2022
o Administration intends to pursue a Water/ Wastewater Master Plan following completion of the Drainage Master Plan (2023-2024)
2. The County could construct local distribution systems, reservoirs, and pump houses where servicing does not currently exist or is not currently available:
o This could occur in areas with existing development or in areas with projected development.
o Costs could be managed through Off-Site levy models, capital funding via Grant or Tax or could be done through a Local Improvement (with appropriate community support).
o A small-scale reservoir and pump house servicing a few hundred homes will cost in the range of $2M to $4M with a distribution system, dependent of the service area, and additional $1M to $2M
o Previous work done in 2014 indicated the cost to service a single home off the WILD system is approximately $45K (2014 costs) for water and double that work water and wastewater servicing (if possible).
o Long term operational costs, lifecycle replacement, and expenses to manage and maintain the system would need to be considered.
3. The County could increase the number of truck fill stations along the existing WILD waterline or work with the WILD commission to increase the number of fill stations they operate.
o Residents with existing systems would have less distance to travel to access water, without taking on the large-scale capital and operational costs of a local distribution system.
4. The County could develop Policy and/or Development Regulations mandating new or expanded developments install local distribution systems, reservoirs, and pump houses and wastewater systems in growth areas.
o In Acheson and Big Lake, this is currently in place through the existing Area Structure Plans policies. All new developments must be serviced and must connect to the local distribution system for water and wastewater servicing.
o Developments in Acheson and Big Lake are also obligated to contribute to the Off-Site levy program and share the costs of all large-scale infrastructure investments for water/ wastewater. While off-site levies do provide a means for proportionate cost sharing, there is still a requirement for up-front capital funding to build the systems.
o Additional regulations could be established such that all land development within a specific area or perhaps a distance from the regional water systems shall connect. This could be done through updated Area Structure Plans for specific areas, through Land Use Bylaw updates and/or through specific policy development for water and wastewater.
o Regulations around a particular size, kind or type of development may also be a consideration along with vicinity to regional water systems.
o Careful consideration needs to occur to ensure development is not stagnated or driven elsewhere. In some cases, this may be acceptable to not have certain developments occur, in other cases, it may be considered a missed opportunity
5. Develop and or expand the Off-Site levy model to establish a cost sharing model to help fund local distribution systems, reservoirs and pump houses, and wastewater systems in areas where servicing currently does not exist or where it is under-serviced.
o This would help smaller developers recover costs and ensure they are only paying their proportionate share of expenses
o May help service a larger area as a bigger system could be developed and shared with multiple landowners.
o May help improve under-serviced areas with ability to cost share improvements
o As mentioned in number 4 above, up front capital funding is required to complete the work. The off-site levies provide a means for proportionate cost sharing and future distribution of funds as lands develop, often many years after the infrastructure has been completed. The carrying cost with unknown timelines for repayment is a financial obstacle that is challenging for many developers.
o This can also create a significant liability for the County for if an area becomes fully serviced, without the residential or industrial dwellings being completed or the area is partially completed. The revenue from the growth area will not cover operational costs if only partially filled in and we may have issues with operations and water quality if sufficient water is not flushed through the system.
6. Update the Local Improvement Policy for roadways and include additional infrastructure assets such as water, wastewater, and drainage.
o Administration has presented Local Improvement Bylaws to Council previously for water and wastewater servicing in Big Lake that were approved.
o Administration is currently working on several policy updates for Council by end of 2021 and this will be one area of focus that will be presented for Council’s consideration.
7. The County could continue to align with area municipalities and continue to consider benefits for a new regional wastewater network. Early proposals did not provide too many positive outcomes for the County, but this can continue to be evaluated.
Key Considerations:
1. Most developers in the industrial areas are very keen and eager to find a means for water and wastewater servicing and in many cases, it is a minimum expectation that there is servicing. Most developments won’t occur without it. Continuing to develop systems that take full advantage in these areas is appropriate as are strategies to continue to expand and build capacity in our existing systems, such as Meridian Business Park.
2. Some areas developed prior to regional systems being in place and may not need to be conditioned, mandated, or required to connect. Expectations are that with the service availability, they will want to connect as a cost saving measure for their own operations or as an overall improvement to their own service levels.
o In these situations, Administration will need to create open and collaborative work environment to determine design, construction standards, operational requirements, fees/charges, utility costs, lifecycle replacement obligations, etc. Most of these will be one-off designs to match the specific need.
o Some components of the system will be privately owned, and others will be publicly owned by the County. The County must have due diligence to ensure any component owned and operated by the County maintains a safe, quality potable water supply without incurring expenses beyond reasonable means. There must be a clear distinction of responsibilities.
o The County will need to determine applicable utility rates, fees, and charges for set up and operations and will need to develop an operations model for how to maintain and operate the public portion of these new connections.
3. Any acreage development area that currently exists has an established means for water and wastewater servicing. Water will come from a drilling a water well or installing a cistern. Wastewater will likely be managed through a septic field, septic mound or holding tank. Developing a new distribution system to the property line will still require individual lot owners to connect to the system. This will occur over time, but many will not connect unless replacement of the existing system is required. If there is a large connection fee this will be a discouragement. If there are high costs to pay for a new system when there is already an acceptable functioning means this will likely be met with objection and challenge by existing residents. A system that is developed with low engagement will be expensive to operate with little revenue incoming from permit fees or utility fees to recover or recoup expenditures.
4. Stagnated development may occur if the costs to connect are too high. Land areas will continue to develop, and opportunities may move elsewhere if the regulations create an environment that misses the intended market desirability or creates an imbalance in market pricing.
5. There is no current regional wastewater line parallel to or associated with the WILD waterline. Water and wastewater systems would be developed independent of each other. The wastewater systems required for “full servicing” will be highly dependent on location. It may be appropriate to concentrate only on water servicing in many locations.
Summary
There are planned activities to take advantage of the regional water and wastewater systems. We currently see this in the Acheson and Big Lake areas as well as the future Meridian Business Park, and this will continue for the foreseeable future. Increased use of the WILD system will occur with the extension to Entwistle. The opportunities to places like Trestle Creek Golf Resort and the Pineridge Golf Resort will become viable options once the line is available as a connection source. Continued considerations for a regional wastewater system should continue as well. Administration will need to consider developing plans to connect new areas, as highlighted above in the Water and Wastewater Master Plan being proposed. Administration will maintain a collaborative work environment with the development community to take advantage of the system opportunities. Each connection requires a unique site sensitive solution and Administration expects to be open minded and creative in the solutions that benefit all parties involved.
Strategic Plan/Policy/Legal/Staff Implications:
Guiding Principle 1.1 - We offer a range of lifestyle choices, community services, and other amenities to meet community needs
Guiding Principle 1.2 - We are a region of connected communities, through infrastructure, transit, recreation facilities, trails, and technology
Guiding Principle 2.2 - We are a region that supports the local economy, including the agricultural, tourism, entrepreneurial, and industrial sectors
Guiding Principle 2.3 - We effectively pursue and manage new opportunities to stimulate economic growth, increase investment, and diversify our long-term economic bases
Guiding Principle 3.1 - We are a regional leader in setting and achieving high standards of environmental and sustainability in both our own practices, and by encouraging and enabling the practices of our partners
Guiding Principle 3.2 - We responsibly manage growth to protect our region’s biodiversity and the natural environment, while supporting a balance of land uses and strategic development
Guiding Principle 4.1 - We are recognized leaders in municipal governance, managing our resources responsibly and sustainably, ensuring we leave a vibrant and resilient community legacy for those that follow us
Guiding Principle 4.3 - We ensure streamlined and modernized municipal operations and services, with a focus on customer service
Financial Impact:
Cost: $0.00
Source of Funding: n/a
Other:
Website Links to Water and Wastewater (Sanitary) Servicing reports for Acheson and Big Lake: https://www.parklandcounty.com/en/county-office/acheson-big-lake-reports-and-studies.aspx
Additional Reports presented to Council/ Committee of the Whole since November 2015 are identified below. These reports may provide additional background and context on the WILD waterline are available as requested. They are as follows:
1. Nov 24, 2015 - RFD15-085 West Interlake District (WILD) Water Line Servicing Study
o Provides detailed technical review of WILD system and possible service areas
that Phase 1 would be able to service
2. Feb 2, 2016 - CoW Report - WILD Water Line Servicing Study
o Provides executive level summary of technical report presented Nov 24, 2015 in RFD 15-085 and include cost summary on a per lot basis
3. Aug 24, 2018 - RFD18-179 - Strategic Overview of Regional Water and Waste Water
o Provides an overall strategic update on current activities as of Aug 2018
4. Oct 10, 2019 - RFD18-217 West Interlake District (WILD) Water Commission - Phase 3
o Provides direction to Administration to pursue options for Phase 3 - Extension to Entwistle
5. July 6, 2021 - RFD 21-128 West Inter Lake District (WILD) Regional Water Services Commission - Phase 3 Entwistle Extension Funding Request
o Outlines funding approval to support Phase 3 - Extension to Entwistle