Utilities Element

Table of Contents

Executive Summary

I. Introduction

II. Legislation and its influence on this element

III. Inventory and Analysis

-- Potable Water Service

-- Sanitary Sewer Service

-- Solid Waste Disposal Service

VI. Utility Reports and the Concurrency Management System

V. Goals, Objectives, and Policies

List of Tables

5.1 Town of Fort Myers Beach Potable Water Service, South Fort Myers Franchise Area

5.2 Current Potable Water Demand, Florida Cities Water Company, 1995

5.3 Proportionate Capacity of Potable Water Treatment Facilities, 1995/96

5.4 Estimated Level of Service for Potable Water Service

5.5 Projected Water Demand for the Town of Fort Myers Beach

5.6 Town of Fort Myers Beach Sanitary Sewer Service, Fort Myers Beach/Iona-McGregor Service Area

5.7 Current Sanitary Sewer Demand, Lee County Utilities, 1994/95

5.8 Proportionate Capacity of Sanitary Sewer Treatment Facilities, 1995/96

5.9 Estimated Level of Service for Sanitary Sewer Service

5.10 Projected Sanitary Sewer Demand for the Town of Fort Myers Beach

5.11 Lee County Waste Disposal Capacity

5.12 Town of Fort Myers Beach Comparison of Household Disposal Costs, Property Tax vs. MSBU Assessment

5.13 Unincorporated Lee County Solid Waste Rate Summary FY 96-97

5.14 Population Projections

5.15 Solid Waste Projections by Population: Collection of Total Solid Waste 1990-2020

List of Maps

5.1 South Fort Myers Franchise Certificated Area, Florida Cities Water Company

5.2 Potable Water Facilities Locations, Florida Cities Water Company

5.3 Potable Water Line Inventory within Town of Fort Myers Beach, Florida Cities Water Company

5.4 Fort Myers Beach/Iona-McGregor Service Area, Lee County Utilities

5.5 Sanitary Sewer Facilities Locations, Lee County Utilities

5.6 Sanitary Sewer Line Inventory within Town of Fort Myers Beach, Lee County Utilities

5.7 Solid Waste Disposal Franchise Area

List of Charts

5.1 Annual Residential Solid Waste Rates FY96/97

5.2 Tons of Waste and Population Growth

Executive Summary

The purpose of the Utilities Element is to ensure that public facilities are available to meet the existing and future needs of the Town of Fort Myers Beach. Potable water, sanitary sewer, and solid waste services must be examined in each comprehensive plan. The rules require that water, sewer, and solid waste services be provided in accordance with future land use projections, using a basic framework for analyzing existing facilities and service. The element contains the Town's formal policy on utilities.

A private utility, Florida Cities Water Company, provides potable water service throughout the Town. Florida Cities is regulated by the Florida Public Service Commission which is responsible for service and economic regulation of investor-owned (for-profit) water and wastewater facilities throughout the state. Florida Cities operates two water production facilities south of the Caloosahatchee. The Green Meadows plant and the College Parkway plant, and their accompanying well fields, serve Florida Cities' customers in this area. These two facilities are permitted to pump and treat up to 12,000,000 gallons a day. The plants have approximately 14,875 water customers and serve an estimated population of 52,062.

Florida Cities uses established gallon-per-day rates in order to determine estimated daily flows and consumption rates for designing its facilities. Single-family dwelling units are rated at 300 gallons per day, which is deemed equivalent to one "equivalent residential connection" (ERC). Multifamily units are rated at 240 gallons per day. Those standards have also been established in the Lee County Comprehensive Plan which had jurisdiction prior to the Town's incorporation. Lee County has also established minimum level-of-service standards for water facilities serving mobile homes and recreational vehicles, 187.5 and 150 gallons per day respectively. Florida Cities has also established a minimum pressure level of service standard of 20 pounds per square inch (psi) for its potable water system. This comprehensive plan adopts these same level-of-service standards for the Town of Fort Myers Beach.

Lee County Utilities, a branch of county government, provides sanitary sewer service. Its service area, known as the Fort Myers Beach/Iona-McGregor Service Area, includes Estero Island, San Carlos Island, and the Iona-McGregor district. Wastewater collected within the service area is treated by the Fort Myers Beach Wastewater Treatment Plant near Summerlin Road.

The original design capacity of the Fort Myers Beach Wastewater Treatment Plant in 1978 was 2,700,000 gallons per day. It was expanded to its current design and permitted capacity of 6,000,000 gallons per day in 1989. As of September 1995, the plant served 7,015 residential and commercial customers. The predominant land uses served are residential (6,519 customers) with some commercial (496 customers). The permanent and peak season populations within its service area are estimated to be 26,138 and 39,207 persons, respectively. According to the Lee County Utilities, there are no on-site treatment and disposal systems (package treatment plants or septic systems) operating on Estero Island, with structures connected to the central sewer system in accordance with a mandatory connection policy. Therefore, it is assumed that the number of sanitary sewer customers within the Town of Fort Myers Beach is identical to the 3,000 potable water customers reported by Florida Cities Water Company.

Lee County Utilities also uses minimum level-of-service standards which have been established within the Lee County Comprehensive Plan. Those standards state that county sewage treatment plants will have basic capacity to treat and dispose of 200 gallons per day per ERC for the peak month. For mobile homes, the minimum level-of-service standard is 150 gallons per day and for recreational vehicles it is 120 gallons per day. This comprehensive adopts those sanitary sewer minimum level-of-service standards established by Lee County for its wastewater treatment plants.

The Town of Fort Myers Beach does not own or operate a landfill, and therefore depends upon Lee County's solid waste disposal facilities and a private contractor for waste collection. For many years Lee County has relied on the Gulf Coast Landfill located on SR 82 south of Colonial Blvd. The landfill is operated by Waste Management, Inc. of Florida. The new Lee/Hendry Landfill is a Lee County owned landfill, currently under construction. Phase I is scheduled to be completed in January 1997. The estimated ultimate capacity of the Lee/Hendry Landfill to receive solid waste is 40 years, assuming continued renewal of necessary permits and construction of additional phases at the landfill. Kimmins Recycling, Inc. is the private contractor providing solid waste collection for the Town of Fort Myers Beach. Its franchised service area includes the Town as well as other locations within Lee County. Its current franchise is with the Lee County Board of Commissioners.

Lee County has adopted a minimum level of service standard for solid waste disposal of 7 pounds per capita per day for collection, disposal, and management. This comprehensive plan adopts those same standards.

Implementation of this element occurs through numerous agencies. The Town of Fort Myers Beach is required to ensure that adequate infrastructure and services will be provided before issuing any new building permits, a requirement known as concurrency. When analyzing "adequacy," the Town must depend heavily on reports furnished by the utility providers. The inventory and analysis in this plan indicates that adequate service should be available to serve new development through build-out of Fort Myers Beach, given current regulations.

I. Introduction

Purpose of this element

The purpose of the Utilities Element is to ensure that public facilities are available to meet the existing and future needs of the Town of Fort Myers Beach. The provision of potable water, sanitary sewer, and solid waste disposal services are mandated by Florida growth management legislation under Chapter 9J-5 of the Florida Administrative Code. Rule 9J-5.001 requires that water, sewer, and solid waste services be provided in accordance with future land use projections, and it identifies a basic framework for inventories of existing infrastructure and services. It also defines a basis for goals, objectives, and policies which are adopted within this element.

The ability of service providers within the Town of Fort Myers Beach to supply potable water, sanitary sewer, and solid waste collection services can play an important role in shaping development patterns. The unavailability of water, sewer, and solid waste facilities can influence the timing and location, as occurred during sewer moratoriums in the 1980s. Planning for these services is an integral part of this comprehensive plan. The Town must ensure that new developments have access to adequate water, sewer, and solid waste services before issuing building permits.

Relationship of this element to the comprehensive plan

The provision of utility services is a major component of the comprehensive planning process. In order to ensure that facilities which serve the public are provided in an efficient and cost-effective manner, the Town utilizes the availability of infrastructure as one of the tools for determining when, where, and at what intensity growth will occur. The goals, objectives, and policies of this element must therefore be consistent with those established in the other elements of the comprehensive plan to promote a well-coordinated growth management strategy for the Town of Fort Myers Beach.

The Future Land Use Element provides for a variety of land uses which describe the intensity that development may occur within the town. As the community develops, utility services must be available to serve the population that will reside within those land uses which are allocated in that element.

The relationship between the Utilities and Housing Elements is an important one. The Housing Element includes projections for future dwelling units which must be served by utilities. The element also contains an inventory of existing dwelling units including those which are considered substandard and may be lacking potable water service.

The Intergovernmental Coordination Element describes the relationship of the Town of Fort Myers Beach with other governments. A requirement for the element is that it must acknowledge coordination of future land uses with the services provided by other governments, such as sanitary sewer service which is provided by Lee County.

The Utilities Element has a unique relationship with the Conservation and Coastal Management Element which seeks to protect the natural environment. The provision of utility services safeguards the environment by providing for collection and central treatment of wastewater and the collection and disposal of solid waste.

II. Legislation and its influence on this element

The Town of Fort Myers Beach's utility providers must construct and operate potable water and sanitary sewer facilities in accordance with all applicable federal, state, and local regulations. Most of the existing regulations pertaining to water quality and sewage treatment are based on federal guidelines mandated by the United States Environmental Protection Agency (E.P.A.). Minimum drinking water standards are defined under Public Law 93-423. This law, also known as the "Safe Drinking Water Act," establishes federal water quality standards for the protection of water for public uses, including operational standards and quality controls for public water systems.

In order to comply with the federal regulations for water quality, the State of Florida has adopted legislation pursuant to Chapter 403.850, Florida Statutes. The "Florida Safe Drinking Water Act" meets the same federal primary and secondary water quality standards required for public health and recommended for aesthetic quality. The State of Florida has also implemented specific laws for classifying and regulating public drinking water systems under Chapters 62-501 and 10D-4 of the Florida Administrative Code.

The federal regulations governing wastewater treatment are set forth under Public Law 92-500 or the "Federal Water Pollution Control Act." This law requires that wastewater treatment programs be established to regulate water quality limits for effluent disposal and to control "point source" pollution. These provisions have been implemented at the state level under Chapter 403.086, Florida Statutes, and Chapter 62-600, Florida Administrative Code. Separate standards for on-site sewage treatment and disposal systems are established in Chapter 10D-6, Florida Administrative Code.

State requirements pertaining to the management of water resources and the regulation of consumptive water use have been adopted by regional water management districts pursuant to Chapter 40D-2, Florida Administrative Code. The purpose of Chapter 40D-2 is to implement the provisions of Part II of Chapter 373, Florida Statutes, and the State of Florida Water Policy. Additional rules relating to water use are found in Chapter 40D-3, entitled "Regulation of Wells"' Chapter 40D-8, entitled "Water Levels and Rates of Flow"; and, Chapter 40D-21, entitled "Water Shortage."

Numerous federal, state, and local laws and rules regulate solid waste disposal in Fort Myers Beach. In addition to mandates, organizations such as the Southwest Florida Regional Planning Council have guidelines and policies with which Fort Myers Beach's solid waste operations are consistent. Among these rules and plans are chapters 187 and 403 F.S., the Federal Resource Conservation and Recovery Act, Rules 9J-5 and 62-701, the Florida Administrative Code, and the Regional Strategic Regional Policy Plan.

Chapter 187, of the Florida Statutes, is the state's comprehensive plan. A goal of the plan is that all solid and hazardous wastes, as well as wastewater, are managed properly. Its policies call for the reduction of landfilled wastes by thirty percent by 1994; countywide solid waste collection systems which discourage littering and illegal dumping; initiation of programs to develop or expand recyclable material markets; strengthening and enforcement of regulations regarding generation, storage, treatment, disposal, and transportation of hazardous wastes; establishment of systems for identifying the location, type, and quantity of hazardous materials; encouraging coordination of intergovernmental and interstate waste management efforts; identification, development, and encouragement of environmentally sound wastewater treatment and disposal methods; and encouragement of strict enforcement of hazardous waste laws and swift prosecution of violators.

Chapter 403, Part IV, Florida Statutes, known as the 1988 Solid Waste Management Act, greatly altered the management of solid waste for local governments within the state. The act required local governments to start recycling programs in order to reduce the amount of waste being deposited into landfills by thirty percent (30%). In addition, counties are required to recycle at least fifty percent (50%) of newspapers, aluminum cans, glass, and plastic bottles. The act also addresses the disposal of various other wastes such as lead-acid batteries, used oil, and tires.

The Resource Conservation and Recovery Act (RCRA) was adopted by Congress in 1976 and serves as the Federal legislation which regulates the disposal of municipal solid waste by setting minimum standards for waste disposal facilities. It also established resource recovery as a national priority and mandated that efforts to better utilize and manage the recycling of wastes were needed. Rule 9J-5, Florida Administrative Code, specifies the requirements for local government comprehensive plans. It requires the Town of Fort Myers Beach to include an infrastructure element with a solid waste section and goals, objectives, and policies relating to solid waste. The Rule requires adoption of minimum level of service standards and concurrency requirements indicating that the Town of Fort Myers Beach will not issue development orders or building permits unless facilities and services are in place to manage a development's impact.

Chapter 62-701, Florida Administrative Code, outlines specific state requirements regarding the operation and closure of landfills, solid waste permits, and the handling of special wastes. This rule also regulates the disposal and classification of waste, and prohibits the disposal of yard wastes in landfills with liners.

The Town of Fort Myers Beach has currently adopted Lee County regulations which govern solid waste in order to be consistent with these state, federal, and regional guidelines.

The State of Florida's comprehensive plan (Chapter 187, Florida Statutes) seeks to ensure that sewer, water, and solid waste disposal services are provided in accordance with the aforementioned regulations. The plan has several goals relating to utility services. Overall, the plan seeks to safeguard the environment from the effects of pollution.

Chapter 163, Part II, Florida Statutes is known as the local government comprehensive planning act. It requires local governments to adopt comprehensive plans which are reviewed and approved by the state's land planning agency, the Department of Community Affairs. This element is one of those required by Chapter 163.

The Florida Department of Community Affairs also requires local governments to incorporate a concurrency management system in accordance with Chapter 163, Part II, Florida Statutes. For the Utility Element, potable water and sanitary sewer facilities and solid waste collection and disposal must be in place or available to serve new development at the time a certificate of occupancy is issued by the local government.

The Southwest Florida Regional Planning Council has a Strategic Regional Policy Plan (SRPP) for its region. This plan identifies several issues and policy statements which have regional significance. These regional issues and policies cover "Surface Water Management," "Protection of Groundwater Resources," "Planning for Public Facilities," and "Protection of Water Supply" to name a few. The goals, objectives, and policies of the Utility Element should be consistent with these federal, state, and regional laws and plans.

According to the SRPP, "Planning for Public Facilities" section, sewer (facilities and service), water, and solid waste are categorized as "primary" public facilities in the SRPP, which are required by the public on a daily basis. Region-wide, population growth will continue to strain existing facilities and services. Seasonal populations make facility planning very difficult. It is hard to ensure that development utilizes existing unused service capacities before resorting to the construction of new facilities.

The SRPP indicates that local governments within the region should support and establish recycling and hazardous waste disposal programs; transportation of hazardous waste products is regulated; personnel working with hazardous wastes be trained and properly protected; and local governments properly collect solid wastes and operate disposal facilities.

Solid waste management programs in the Region consist of landfills, transfer stations, and yard trash compost sites. An SWFRPC study indicated limited effectiveness for a single six county solid waste disposal system. As a result, alternatives such as the Lee County Resource Recovery Facility and the currently under construction - Lee/Hendry Landfill have come to fruition.

III. Inventory and Analysis

Potable Water Service

A private utility, Florida Cities Water Company, provides potable water service to the Town of Fort Myers Beach and surrounding areas. Florida Cities is a private utility which is regulated by the Florida Public Service Commission (PSC) which is responsible for service and economic regulation of investor-owned (for-profit) water and wastewater facilities throughout the state. The PSC attempts to ensure adequate service and fair, non-discriminatory service and rates for customers. The PSC also ensures that utilities provide service without unreasonable delay to those applying for service. Florida Cities has been certified to provide water service in a precise area. That certification authorizes Florida Cities to be that area's sole water provider, thereby avoiding overlap with another provider. Map 5.1 identifies Florida Cities' South Fort Myers certificated potable water supply area which includes the Town of Fort Myers Beach and nearby portions of mainland Lee County.

Florida Cities operates two water treatment plants within its South Fort Myers certificated area. The Green Meadows Water Treatment Plant and College Parkway Treatment Plan, and their accompanying well fields, serve the area which includes the Town of Fort Myers Beach. These plants have permitted and plant design capacities of 10,500,000 and 1,500,000 gallons per day respectively. These plants have approximately 14,875 water customers and serve an estimated population of 52,062. The predominant types of land uses served are primarily residential and some commercial. Florida Cities estimates that 3,000 of these customers and 10,500 of the population are located within the town's limits. (The number of customers is less than the total number of dwelling units because a majority of dwellings within the town are multi-family units which share a water meter, and are considered as one customer.)

Source: Florida Cities Water Company, November 1996.

Estimated population based on 3.5 persons per customer connection.

Florida Cities has a number of other facilities which serve the Town of Fort Myers Beach and the certificated area. These include:

1. a marina in-line booster station,
2. North Beach booster station and 500,000-gallon ground storage tank,
3. South Beach booster station and 1,000,000-gallon ground storage tank,
4. Alico Road booster station and 1,000,000-gallon ground storage tank,
5. Shell Point in-line booster station, and
6. Miner's Corner high service pumping station and 2,000,000-gallon ground storage tank.

These facilities are delineated on Map 5.2. Map 5.3 displays the potable water line inventory within the Town of Fort Myers Beach. The water line inventory map indicates that potable water service is currently available throughout the Town's jurisdiction.

Map 5.1 South Fort Myers Franchise Certificated Area,

Florida Cities Water Company

Map 5.2 Potable Water Facilities Locations,

Florida Cities Water Company

Map 5.3 Potable Water Line Inventory within Town of Fort Myers Beach,

Florida Cities Water Company

The average annual daily water demand within the South Fort Myers franchise area was 5,390,000 gallons per day between November 1995 and October 1996. The peak monthly demand was 6,734,000 gallons per day in March 1996 (see Table 5.2).

Source: Florida Cities Water Company, November 1996.

Florida Cities serves a large area on the mainland in addition to the Town of Fort Myers Beach. In this situation, a "proportional capacity" can be calculated to identify the percentage of water treatment which can be assumed to be consumed by the Town. It is based on the number of customers which each location and the average annual daily water demand. These figures are shown in Table 5.3. (Proportional capacity figures can be somewhat misleading since demand may be greater within one location one day and less on another day.)

Source: Florida Cities Water Company; Smith-Osborne Associates; November 1996.

Estimating the level of service for utilities can be calculated by using various methods. For this element, residential levels of service are expressed in gallons per capita (person) per day, and also in gallons per Equivalent Residential Connections per day. The gallon per capita per day calculation utilizes the peak month average daily demand, which is then divided by the estimated population for the entire Florida Cities service area. The ERC calculation utilizes the total proportionate capacity serving the Town of Fort Myers Beach (consumed and available capacities) divided by the dwelling unit estimate. Both are shown in Table 5.4. The ERC figure is 444.40 which is higher than the minimum standard of 300 adopted within this element. This means that current consumption levels are higher than the minimum levels of service that are required for issuance of building permits. Based on the current standard, there is sufficient capacity to serve new development. (Note: this calculation does not consider uses other than residential.)

Source: Smith-Osborne Associates, December 1996.

Existing and Projected Water Facility Needs

Florida Cities uses established gallon per day rates in order to determine estimated daily flows and consumption rates for designing its facilities. Single-family dwelling units are rated at 300 gallons per day, which constitutes 1 equivalent residential connection (ERC), and 240 gallons per day for multi-family units. Those standards have also been established in the Lee County Comprehensive Plan which had jurisdiction prior to the Town's incorporation. Lee County, has also established minimum level of service standards for water facilities serving mobile homes and recreational vehicles. Those standards are 187.5 and 150 gallons per day, respectively. Florida Cities has also established a minimum pressure level of service standard of 20 pounds per square inch (psi) for its potable water system. For comprehensive planning purposes, the Town of Fort Myers Beach adopts minimum level of service standards of 300 gallons per day per ERC for single-family dwelling units and 240 gallons per day per ERC for multi-family dwelling units and all other structures such as commercial establishments, 187.5 gallons per day for mobile homes, and 150 gallons per day for recreational vehicles. The Town also adopts a 20 psi minimum pressure level of service standard. These standards have been used by Florida Cities in designing it facilities. They are also established by Lee County, allowing for consistency throughout this area.

According to the 1990 U.S. Census, there were 7,420 dwelling units within the town's limits during April of that year. An additional 472 units have been constructed since that time for a total of 7,892. As identified in the Future Land Use Element, housing units are projected to increase to 8,318 by the year 2003 and 8,740 at buildout in the year 2020. Assuming a growth of 426 dwelling units by the end of the first planning time frame in 2003, additional projected water demand will be approximately 102,240 gallons per day using the 240 gallons per day minimum level of service standard. At buildout, an additional 422 dwelling units are projected to require an additional 101,280 gallons per day of potable water.

Source: Smith-Osborne Associates, November 1996.

* 1996 is dwelling unit estimate.

The information from Tables 5.3 and 5.4 indicate ample potable water for the additional new dwelling units projected through the second planning time frame. Assuming that the entire proportional capacity amount is available to housing development within the town, 2.2 millions gallons would still be available to serve other forms of development and the remainder of land within the South Fort Myers franchise area.

Performance of Existing Facilities

Florida Cities' existing water facilities are generally well maintained and in good condition. The treatment plants and storage systems are regularly inspected, and the utility has established maintenance programs for pipe, meter replacement, valve inspection and operation, and flow testing. Its facilities are regulated by numerous agencies including the South Florida Water Management District and the Department of Environmental Protection.

The Town should continue to monitor the performance of Florida Cities' facilities and service and to allow the Public Service Commission to continue its regulation of the utility's service and rates. The Town has the ability to intercede in rate setting cases decided by the Commission, and may be eligible to assume regulation of the utility in the future. It may even be possible for the Town to purchase and operate the utility, or to handle the retail sale of water within the Town. However, there is no evidence that there is a need for any of these options under current conditions.

Problems and Opportunities for Facility Replacement, Expansion, and New Facility Siting

The company's potable water system serving the South Fort Myers area first began operations in 1955. The utility reported that no problems are currently foreseen with operations or opportunities for new facility siting, expansion, or replacement. The existing permitted and plant design capacities are more than adequate to meeting the current customer demands.

As stated above, the performance of existing potable water facilities must be constantly monitored to determine the adequacy of the used treatment capacity and evaluate the ability of the distribution system to meet the future demands of a growing population. Utility providers must therefore plan ahead to ensure that sufficient capacity will always remain available to accommodate anticipated growth within their respective certificated area. Any new or expanded facilities that are needed must comply with applicable federal, state, and local regulations. These regulations require that all potable water facilities be constructed, operated, and maintained in accordance with the guidelines established by the Florida Department of Environmental Protection.

In addition to these requirements, potable water providers must obtain water use permits from the appropriate water management district before any new treatment facilities can be constructed or existing treatment facilities can be expanded. Prior to the need for additional potable water, Florida Cities will apply to those agencies responsible for oversight into order to obtain the necessary permits for additional water withdrawals and treatment capacity.

Water Conservation

With Florida's ever-increasing population and a limited potable water supply, water conservation programs are becoming more important. The Town of Fort Myer Beach and its citizens should do their part to conserving this resource. The South Florida Water Management District developed a water conservation program in 1990 which identifies six measures specifically for urban areas. These measures identified in the District Water Management Plan, October 1994, include:

1. limiting lawn irrigation to the hours between 5:00 P.M. and 9:00 P.M.;
2. requiring the adoption of Xeriscape landscape ordinances;
3. requiring the installation of ultra-low volume plumbing fixtures in all new construction;
4. requiring the adoption of conservation oriented rate structure by utilities;
5. requiring the implementation of leak detection programs by utilities with unaccounted water losses greater than 10%; and
6. requiring implementation of water conservation public education programs.

As the Town of Fort Myers Beach develops and maintains its public facilities, water conservation measures will be followed, partly to reduce consumption and partly to reduce public expenditures for water supply. The town will also install low volume plumbing fixtures in new government facilities.

Sanitary Sewer Service

Lee County Utilities provides sanitary sewer service to the Town of Fort Myers Beach. Its service area, known as the Fort Myers Beach/Iona-McGregor Service Area, includes Estero Island, San Carlos Island, and the Iona-McGregor district. Wastewater collected within the service area is transferred to the Fort Myers Beach Wastewater Treatment Plant where it is treated. A portion of the effluent is distributed for irrigation purposes.

The original design capacity of the Fort Myers Beach Wastewater Treatment Plant in 1978 was 2,700,000 gallons per day. It was expanded to its current design and permitted capacity of 6,000,000 gallons per day in 1989. As of September 1995, the plant served 7,015 residential and commercial customers. The predominant types of land uses served are primarily residential (6,519 customers) with some commercial (496 customers). The permanent and peak season populations within its service area are estimated to be 26,138 and 39,207 persons, respectively. Lee County Utilities does not distinguish between the number of customers located within the separate districts of the service area. According to the utility, there are no on-site treatment and disposal systems (package treatment plants or septic systems) operating on Estero Island and the vast majority of structures are connected to the central sewer system in accordance with a mandatory connection policy. Therefore, it is assumed that the number of sanitary sewer customers within the Town of Fort Myers Beach is identical to the 3,000 potable water customers reported by Florida Cities.

Source: Lee County Utilities, November 1996.

The following maps display Lee County's Fort Myers Beach/Iona-McGregor Service Area, the location of wastewater treatment facilities, and sanitary sewer lines within the Town of Fort Myers Beach.

Map 5.4 Fort Myers Beach/Iona-McGregor Service Area,

Lee County Utilities

Map 5.5 Sanitary Sewer Facilities Locations,

Lee County Utilities

Map 5.6 Sanitary Sewer Line Inventory within Town of Fort Myers Beach,

Lee County Utilities

The average annual daily sewer demand within the South Fort Myers franchise area was 2,840,000 gallons per day between October 1994 and September 1995. The peak monthly demand was 3,436,000 gallons per day in February 1995.

Source: Lee County Utilities, November 1996; Department of Environmental Protection, Domestic Wastewater Treatment Plant Monthly Operating Report, July 1995.

As pointed out earlier, Lee County Utilities serves not only the Town of Fort Myers Beach, but also a much larger area on San Carlos Island and the mainland within its service area. The proportional capacity identifies the percentage of water treatment which can be assumed to be consumed by the Town and the remainder of the service area. It is based on the number of customers which each location and the average annual sanitary sewer demand. The proportional capacity may be somewhat misleading since demand may be greater within one location one day and less on another day. As stated with Florida Cities, Lee County Utilities is required and wants to provide service to all customers within its service area.

Source: Florida Cities Water Company; Smith-Osborne Associates; November 1996.

As for potable water, the level of service for sanitary sewer is expressed in gallons per capita per day and Equivalent Residential Connections for residential uses. The gallon per capita per day calculation utilizes the peak month average daily flow which is divided by the estimated population for the entire Lee County Utilities service area. The ERC calculation utilizes the total proportionate capacity serving the Town of Fort Myers Beach (consumed and available capacities) divided by the dwelling unit estimate. The ERC figure is 479.03 which is well above the minimum level of service standards adopted within this element. Therefore, there appears to be sufficient capacity to serve new development. (Note: this calculation does not consider uses other than residential.)

Source: Smith-Osborne Associates, December 1996.

Existing and Projected Water Facility Needs

Lee County Utilities uses minimum level of service standards which have been established within the Lee County Comprehensive Plan. Those standards state that county sewage treatment plants will have basic capacity to treat and dispose a volume of 200 gallons per day per equivalent residential connection for the peak month. For mobile homes, the minimum level of service standard is 150 gallons per day and for recreational vehicles it is 120 gallons per day. Within this comprehensive plan, the Town of Fort Myers Beach adopts those sanitary sewer minimum level-of-service standards established by Lee County for its wastewater treatment plants.

The following table displays the projected sanitary sewerage demand for the Town of Fort Myers Beach for the two planning periods of this comprehensive plan. Assuming a growth of 426 dwelling units by the end of the first planning time frame in 2003, additional projected sanitary sewerage demand will be approximately 85,200 gallons per day using the 200 gallons per day minimum level of service standard. At buildout, an additional 422 dwelling units are projected to require an additional 84,400 gallons per day of sanitary sewerage treatment capacity.

Source: Smith-Osborne Associates, November 1996.

* 1996 is dwelling unit estimate.

By examining the information from Tables 5.7 and 5.8, there appears to be an ample sanitary sewerage capacity to provide for the additional new dwelling units projected through the second planning time frame. Assuming that the entire proportional capacity amount is available to housing development within the town, approximately 2.396 millions gallons would still be available to serve other forms of development and the remainder of land within the Fort Myers Beach/Iona-McGregor service area.

Performance of Existing Facilities

The Fort Myers Beach Wastewater Treatment Plant has been in operation since 1979 and is currently in good condition with sufficient treatment capacity. The utility provides monthly monitoring reports to the Department of Environmental Protection which regulates the operations of the treatment plant. In the past, the plant has made improper discharges into a drainage ditch that is connected to Estero Bay. Upon investigation, the Department of Environmental Protection found that this action was in violation of rules found in the Florida Statutes and Florida Administrative Code. Lee County has taken actions to halt the illegal discharge, pay a fine that was levied against the utility, and increase the effluent disposal capacity of the utility during peak periods.

Problems and Opportunities for Facility Replacement, Expansion, and New Facility Siting.

Lee County Utilities reported no major problems specific to the Town of Fort Myers Beach relating to facility replacement, expansion, and siting for new facilities. The Fort Myers Beach Wastewater Plant was recently upgraded with the addition of two chlorine contact tanks which increase disinfection retention time. Lee County has applied for a renewal of its operating permit for the plant and also for deep-well injection in order to increase disposal capacity during periods when demand for irrigation water is insufficient. The utility foresees installation of the deep well in 1997.

Solid Waste Disposal Service

Proper collection and disposal of solid wastes is a critical public service. Lee County uses a public-private partnership for this purpose. All of the household garbage that is collected in the County is taken by private contractor to the Lee County Resource Recovery Plant (RRP). There is burned, producing electricity and an inert ash residue which is then transported to the county landfill. This ash product takes up 90% less room by volume in the landfill than the unburned garbage would, greatly extending the life of the landfill.

Solid Waste Collector serving the Town of Fort Myers Beach

Kimmins Recycling, Inc. is the primary solid waste collector for the Town of Fort Myers Beach. Its franchised service area includes the Town as well as other locations within Lee County. Lee County has adopted a minimum level of service standard for solid waste disposal of 7 pounds per capita per day for the proper collection, disposal, and management. The Town of Fort Myers Beach adopts those same standards. Map 5.7 delineates Kimmins Recycling, Inc.'s service area which includes the Town.

Landfill Operations

The Town of Fort Myers Beach does not own or operate a landfill, and therefore depends upon Lee County's waste disposal facilities. Lee County's landfill is the Gulf Coast Landfill located on SR 82 south of Colonial Blvd. The landfill is operated by Waste Management, Inc. of Florida. Additional disposal capacity is provided here at approximately 100 TPD (tons per day) of construction debris material to supplement the RRP. The remaining lifespan of the Gulf Coast Landfill filled to its permitted height of 100' NGVD, is estimated to be the years 2000 to 2004, assuming renewal of its DEP operating permit.

The Lee/Hendry Landfill is a Lee County owned landfill, currently under construction. Phase I is scheduled to be completed in January 1997. The estimated ultimate capacity of the Lee/Hendry Landfill to receive solid waste is 40 years, assuming continued renewal of necessary permits and construction of additional phases at the landfill. However, there are no additional phases currently planned.

Because of the high water table found in Southwest Florida, landfills are created by depositing layers of waste and other fill material. In Lee County's case, ash from the Resource Recovery Plant is the primary waste product which is deposited. The ash accumulates over time and is formed into a mound. Upon reaching a designated height, the landfilled waste receives a final cover of soil and vegetation. Landfill closures are governed by Rule 62-701 of the Florida Administrative Code.

Map 5.7 Solid Waste Disposal Franchise Area

The Resource Recovery Plant

The Resource Recovery Plant (RRP) is also known as a waste-to-energy plant because it produces electricity from burning household garbage. The plant receives, on average, 900 TPD (330,000 tons per year), and produces up to 39.7 megawatts of power, which is enough electricity for about 25,000 homes (more than all of the homes in Bonita Springs and Lehigh Acres combined). The Resource Recovery Plant is projected to reach its current capacity of 1,200 TPD within the next 10 years. Additional disposal capacity is provided for approximately 100 TPD of construction debris at the Gulf Coast Landfill.

The Resource Recovery Plant has a projected operating lifespan of 30 years and sufficient capacity to serve the Town of Fort Myers Beach and Lee County until 2027. The projection of plant life is based on engineering design, operational techniques, projected population, and average per capita solid waste generation.

The Resource Recovery Plant is equipped with extensive air pollution control systems. It is the first operational plant in the United States to be built with a permanent activated carbon injection system for controlling mercury emissions. The environmental control systems were designed with the new, more stringent, Clean Air Act, in mind, and emissions have met the proposed standards without any modification. It was the only waste-to-energy facility in the world to win the prestigious Power Engineering and Power Engineering International magazine's 1995 Project of the Year Award, which recognizes excellence in design, construction and operation of power generation systems throughout the world.

Source: Lee County Department of Solid Waste, 1996.

Recycling Program

The State of Florida mandated a thirty percent reduction in municipal solid waste deposited at landfills beginning in 1988. Fifteen percent of this reduction was to come from glass, aluminum, steel cans, plastic, and newspaper recycling. The other fifteen percent would come from the recycling of yard trash, appliances, construction and debris material, and automobile tires. To assist Lee County in meeting this mandate, the Town of Fort Myers Beach needs to continue in the county-sponsored recycling program.

This voluntary program consists primarily of the residential curbside collection of recyclables utilizing 90 gallon carts, or other suitable methods. The Town's franchised solid waste hauler, Kimmins Recycling, Inc., provides curbside collection of paper, aluminum, metal, plastic, and glass products. The hauler sorts the recyclables at the curb each week and then transports the recyclables to markets located in Fort Myers. Lee County's current recycling rate is 33%, which exceeds state recycling requirements. The Town strongly encourages all of its residents and businesses to participate to the greatest extent possible in the existing voluntary recycling program.

Residential wastes are collected using a 1-1-1 system with once-per-week garbage, recycling, and yard waste collection. Commercial collection is mandatory for businesses and institutions. Commercial wastes are primarily generated by retail businesses, restaurants, and resorts.

Fees

Residents of the Town of Fort Myers Beach pay for garbage collection, recycling and disposal through an annual assessment (garbage bill) from the Lee County Tax Collector. Other residents (of condominiums and mobile home parks) and businesses pay their hauling company for collection and part of the disposal expenses.

The fixed operating expenses of the county-owned solid waste disposal facilities are paid to the Lee County Tax Collector as a special assessment (separate bill) in the Town of Fort Myers Beach. The fixed disposal facility expenses are divided equally among all Lee County areas, and each customer pays their share. Sharing these expenses allows Lee County Department of Solid Waste to dispose of waste in ways that are both cost effective and environmentally responsible for the long term.

1995 was the first year that residents of the Town of Fort Myers Beach received the assessment and property taxes were reduced when the assessment was added. Table 5.12 compares household disposal costs from property taxes versus MSBU assessment. Clearly, an MSBU assessment costs less than a property tax-based assessment. Table 5.13 is the unincorporated Lee County solid waste rate summary for fiscal year 1996-97. This table details the fees, recycling rebates, and collection fees for unincorporated Lee County.

Source: Lee County Solid Waste Rates, Fiscal Year 96/97, 1996.

Assumes $125,000 value and homestead exemption.

Assumes $500,000 value and homestead exemption.

Source: Lee County Solid Waste Rates, Fiscal Year 96/97, 1996.

Hazardous Waste

The Lee County Department of Solid Waste sponsors several Household Hazardous Waste Collection Days throughout the year. Many of these products are poisonous, and can be harmful or fatal if swallowed. These are items such as fluorescent tubes, paint, paint thinner, drain cleaners, automobile oil, thermostats, polishes, strippers, car/boat batteries, pool chemicals, pesticides, float switches, or anything marked corrosive, toxic, flammable, or reactive.

Existing and Projected Solid Waste Needs

There are no major problems of development or physical deterioration which will adversely affect solid waste collection within the Town of Fort Myers Beach over the next two planning time period increments of 5 and 17 years. The waste-to-energy facility is a fairly new plant with modern equipment and a landfill for the safe disposal of the ash. Projections indicate that it has sufficient capacity to dispose of solid waste until 2027. The solid waste collector operating within the Town of Fort Myers Beach - Kimmins Recycling, Inc. - has met the level of service standards that have been adopted from the current Lee County Comprehensive Plan, and this comprehensive plan incorporates that same level of service standard. Kimmins Recycling, Inc. will continue to provide more than an adequate level of service over the next planning time period.

Lee County has implemented, and will continue to improve upon, its successful recycling programs. By 1991, the county's 115,000 single-family homes were involved in the recycling program. Currently, in 1996, all single-family homes as well as all multi-family complexes (apartments, condominiums, and mobile home parks) have the opportunity to participate in the recycling program. In 1995, 33% of the county's total waste stream was recycled. In comparison, only 5% was recycled in 1989. The County is working toward a voluntary goal of 50% by the year 2000.

As The Town of Fort Myers Beach's population continues to grow, so will solid waste that needs to be disposed. The following table and chart display the population and solid waste projections through the year 2020.

Source: Spikowski Planning Associates, compilation of STF1A data for Census Tract 601, BG 3-7 plus Census Tract 602, BG 1-6.

*Population = [ (known dwelling units x 40.7% dwelling units occupied) + (known dwelling units x 59.3% x .33 allowing for 4 months out of year 100% dwelling units occupied)] x 2.02 persons per household

Source: Spikowski Planning Associates, compilation of STF1A data for Census Tract 601, BG 3-7 plus Census Tract 602, BG 1-6 and Smith-Osborne Associates projections.

 Chart 5.2 Tons of Waste and Population Growth

The projections above include solid wastes that will be recovered, as well as recycled. In order to more accurately project the life expectancy of the waste-to-energy facility, recycled wastes must be accounted for because they will not be incinerated. In 1995, the Town of Fort Myers Beach achieved an adjusted recycling rate of 33 percent, based on Lee County's results. The adjusted recycling rate places goals on specified categories of recyclables; therefore, actual recyclable percentages may exceed those ceilings.

Analysis of Problems and Opportunities for Facility Replacement, Expansion, and Siting

The Town of Fort Myers Beach does not own or operate a landfill, and therefore depends upon Lee County's waste disposal facilities. Lee County's landfill is the Gulf Coast Landfill located on SR 82 south of Colonial Blvd. The landfill is operated by Waste Management, Inc. of Florida and will remain in service until filled to its permitted height of 100' NGVD, which is estimated to be in 2000 to 2004, assuming renewal of its Department of Environmental Protection (DEP) operating permit. The Lee/Hendry Landfill is a Lee County owned landfill, currently under construction. Phase I is scheduled to be completed in January 1997. The projected capacity of the Lee/Hendry Landfill is 40 years, assuming continued renewal of necessary permits and construction of additional phases at the landfill. At the time of this report, there are no additional phases currently being planned.

VI. Utility Reports and the Concurrency Management System

Implementation of this element occurs in many places and by numerous agencies and departments. The Town of Fort Myers Beach itself needs to ensure that infrastructure and services are provided in order to support new development. This can be accomplished through a Concurrency Management System (CMS) - a requirement of Chapter 163, Florida Statutes, and Rule 9J-5, Florida Administrative Code. A CMS is used to coordinate the issuance of development orders/permits and certificates of occupancy with infrastructure and services to support development. For potable water, sanitary sewer, and solid waste disposal services, the town depends heavily upon reports furnished by the utility providers.

The inventory and analysis of utility providers indicates that services should be available to serve new development through the second planning time frame. Even though there appears to be no problem with the provision of these services, the town must still monitor reports to ensure that the impacts of new development are being met. Therefore, the town will obtain reports from the utility providers in order to review pertinent information prior to the decision to issue building permits and certificates of occupancy.

V. Goals, Objectives, and Policies

Goal 1: To improve the existing systems that provide safe drinking water, irrigation water, sewer service, and solid waste disposal in order to reduce environmental impacts on land and water while keeping costs as economical as possible.

Objective 1.1: Working with utility providers, the Town of Fort Myers Beach shall ensure the provision of acceptable levels of potable water, sanitary sewer, and solid waste disposal services are provided for its residents and visitors.

Policy 1.1.1: The minimum acceptable level of service standards for utility services within the Town of Fort Myers Beach shall be:

(a) for potable water service: an available supply and treatment capacity of 300 gallons per day per equivalent residential connection (ERC) for single-family dwelling units and 240 gallons per day per equivalent residential connection for multi-family dwelling units and other uses for the peak month, except that facilities serving mobile homes shall be 187.5 gallons per day and facilities serving recreational vehicles shall be 150 gallons per day; and can deliver potable water at a minimum of 20 pounds per square inch (psi) at the meter anywhere in the system.

(b) for sanitary sewer service: an available facility capacity to treat and dispose of a volume of wastewater equal to 200 gallons per day per equivalent residential connection (ERC) for the peak month, except that facilities serving mobile homes shall be a capacity of 150 gallons per day and facilities serving recreational vehicles shall have a capacity of 120 gallons per day.

(c) for solid waste disposal service: the proper collection, disposal, and management of no less than 7 pounds of municipal solid waste per capita per day.

Policy 1.1.2: Prior to the Town of Fort Myers Beach issuing a certificate of occupancy, one of the following conditions shall be met:

(a) development orders or building permits shall be issued subject to the condition that, at the time of the issuance of a certificate of occupancy, the necessary facilities and services are in place and available to serve new development; or

(b) at the time development orders or building permits are issued, the necessary facilities and services are guaranteed in an enforceable development agreement, or an agreement or development order issued pursuant to Section 163.3220, Florida Statutes, to be in place and available to serve new development at the time of issuance of a certificate of occupancy or its functional equivalent.

Policy 1.1.3: Utility providers are encouraged to extend potable water and sanitary sewer lines simultaneously to serve new development in a manner which reduces the effects of urban sprawl.

Policy 1.1.4: Utilities are encouraged to enforce mandatory customer connections to their systems upon availability of service.

Objective 1.2: The Town of Fort Myers Beach will assist utility providers in determining future facility needs and deficiencies as they pertain to the Town's welfare.

Policy 1.2.1: Upon determination that a facility need or deficiency in the provision of potable water, sanitary sewer, or solid waste disposal service exists, utility providers shall inform the Town Council of Fort Myers Beach regarding the circumstances of the issue. The notification requirement, discussions, and decisions to resolve the issue shall be made in the best interest of the citizens of the Town of Fort Myers Beach and the utility provider.

Policy 1.2.2: The Town of Fort Myers Beach encourages utility providers to construct and install sufficient treatment facilities and collection systems that meet or exceed the minimum level of service standards adopted within this comprehensive plan and those requirements of the county, state, and federal governments.

Objective 1.3: The Town of Fort Myers Beach will coordinate its land use decisions with the availability of central potable water and sanitary sewer infrastructure and solid waste disposal service.

Policy 1.3.1: The Town of Fort Myers Beach will consider the provision of existing and future potable water, sanitary sewer, and solid waste disposal services in making decisions regarding a change in the Future Land Use or zoning designation of property.

Policy 1.3.2: As a component of its development strategy, the Town of Fort Myers Beach will seek to maximize the use of existing potable water and sanitary sewer facilities and solid waste disposal service.

Objective 1.4: The Town of Fort Myers Beach shall work with the South Florida Water Management District and utility providers to conserve potable water supplies.

Policy 1.4.1: Utilities are encouraged to develop facilities for recycling treated wastewater and to promote water reuse through such methods as irrigation.

Policy 1.4.2: The Town of Fort Myers Beach will cooperate with the South Florida Water Management District in enforcement of regulations pursuant to water conservation programs.

Policy 1.4.3: The Town of Fort Myers Beach shall use drought tolerant vegetation, xeriscape techniques, recycled water, or other methods for landscaping of publicly owned lands.

Policy 1.4.4: The Town of Fort Myers Beach encourages the use of xeriscape techniques in the landscaping of private property in order to reduce water usage.

Policy 1.4.5: The Town of Fort Myers Beach shall support public educational programs that encourage water conservation practices.

Policy 1.4.6: The Town of Fort Myers Beach encourages the use of water-saving plumbing fixtures in new development.

Policy 1.4.7: Utility providers are encouraged to adopt special conservation rates for their customers.

Objective 1.5: The Town of Fort Myers Beach shall maintain a municipal solid waste (msw) collection franchise system designed and operated to assure that msw is collected and transported to a permitted msw management facility for disposal in an efficient, economical and environmentally sound manner.

Policy 1.5.1: The Town of Fort Myers Beach will maintain franchised municipal solid waste collection contracts or other appropriate service agreements which provide for routine scheduled collection of residential and commercial wastes; special collections of bulky items; separate curbside and bulk collection of recyclable materials; separate collection of vegetative yard wastes; and, such other provisions as may be deemed appropriate by the Town Council of Fort Myers Beach.

Policy 1.5.2: Municipal solid waste generated within the political jurisdiction of the Town of Fort Myers Beach is to be properly collected and transported to a permitted municipal solid waste management facility.

Policy 1.5.3: The Town of Fort Myers Beach will evaluate methods to improve the cost-effectiveness of municipal solid waste collection operations through its franchised collection contractors.

Policy 1.5.4: The Town of Fort Myers Beach will cooperate with existing Lee County Department of Solid Waste programs to segregate construction and demolition debris and to separate newspaper, aluminum cans, and glass bottles for recycling.

Policy 1.5.5: The Town of Fort Myers Beach will cooperate with the Lee County Department of Solid Waste in the implementation of resource recovery and recycling programs for glass, paper, plastic, and nonferrous metal containers.

Policy 1.5.6: The Town of Fort Myers Beach will cooperate with the Lee County Department of Solid Waste in the implementation of programs which will result in a decrease in the volume of materials in the solid waste stream requiring landfilling (i.e. source separation of material which can be reused, recycled, or disposed of in another manner).

Policy 1.5.7: The Town of Fort Myers Beach will cooperate with the Lee County Department of Solid Waste in the implementation of programs which will reduce the volume of roadside litter and the amount of illegal dumping.

Objective 1.6: The Town of Fort Myers Beach will cooperate with the Lee County Department of Solid Waste to identify and prevent the improper management and disposal of hazardous and special waste within the Town and provide for and encourage the proper management of special wastes, household (HHHW) and conditionally exempt small quantity generator (CESQG) hazardous wastes.

Policy 1.6.1: The Town of Fort Myers Beach will cooperate with the Lee County Department of Solid Waste in implementing a program to educate Town residents on minimization and proper management of HHHW and provide alternative HHHW management opportunities.

Policy 1.6.2: The Town of Fort Myers Beach will cooperate with the Lee County Department of Solid Waste in developing and distributing educational materials on the identification, proper handling and management of HHHW.

Policy 1.6.3: The Town of Fort Myers Beach will cooperate with the Lee County Department of Solid Waste in continuing to offer periodic HHHW collection days for the benefit of the Town's citizens and visitors.

Policy 1.6.4: The Town of Fort Myers Beach will cooperate with the Lee County Department of Solid Waste in continuing to pursue efforts to control the disposal of hazardous wastes. The Town will identify and monitor the disposal activities of hazardous waste generators through cooperative programs with county and state agencies.