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2050 FAC IL IT IES PLAN
March 2021
CERTIFICATION
I hereby certify that this report was prepared under my direct supervision and that I am a registered professional engineer under the laws of the State of Wisconsin.
Kathleen Ziino
Registration No. E-36399
March 18, 2021
Milwaukee Metropolitan Sewerage District
2050 Facilities Plan
ACKNOWLEDGEMENTS
MMSD COMMISSIONERS
Dan Devine, Commission Chair Mayor, City of West Allis
Eugene Manzanet, Vice Chair Senior Vice President Community Lending, U.S. Bank
Dan Bukiewicz Mayor, City of Oak Creek
Tim Carpenter State Senator
Cavalier Johnson Alderman, City of Milwaukee
LaTonya Johnson State Senator
Bryan Kennedy Mayor, City of Glendale
Kris Martinsek Owner, Martinsek & Associates
Jeff Stone Senior Consultant, Kapur & Associates Consulting Engineers
John Swan III Business Agent Local 113
Corey Zetts Executive Director, Menomonee Valley Partners
MILWAUKEE METROPOLITAN SEWERAGE DISTRICT
Kevin L. Shafer Executive Director
TECHNICAL ADVISORY TEAM
ORGANIZATION NAME TITLE
City of Brookfield Mr. Tom Grisa Public Works Director
City of Brookfield Mr. Joe Tew Engineering Technician II
City of Cudahy Mr. Tim Birkel Engineering/Sewer Utility Supervisor
City of Cudahy Ms. Mary Jo Lange Director of Public Works/City Engineer
City of Franklin Mr. Glen Morrow City Engineer
City of Franklin Ms. Sara Arnold Assistant City Engineer
City of Glendale Mr. Charlie Imig Director of Public Works
City of Greenfield Mr. Bryan Haas Project Engineer
City of Greenfield Mr. Jeff Katz City Engineer
City of Greenfield Mr. Jeff Tamblyn Environmental Engineering/GIS Technician
City of Greenfield Mr. John Laskoski Public Works Superintendent
Milwaukee Metropolitan Sewerage District
2050 Facilities Plan
TECHNICAL ADVISORY TEAM
ORGANIZATION NAME TITLE
City of Mequon Mr. Kevin Driscoll Deputy Director of Utilities
City of Mequon Ms. Kristen Lundeen Public Works Director
City of Milwaukee Mr. Dennis Yaccarino Budget & Management Director
City of Milwaukee Mr. Jeffrey Polenske Commissioner of Public Works
City of Milwaukee Mr. Nadar Jaber Engineer in Charge
City of Milwaukee Mr. Timothy Thur Infrastructure Administration Manager
City of Muskego Mr. Scott Kloskowski Superintend of Public Utilities
City of Muskego Mr. Scott Kroeger Public Works Director
City of New Berlin Mr. Greg Kessler Director
City of New Berlin Ms. Nicole Hewitt Division Engineer - Storm Water
City of New Berlin Ms. Tammy Simonson City Engineer
City of Oak Creek Water & Mr. Brian Johnston Utility Engineer
Sewer Utility
City of Oak Creek Water & Mr. Darrin Allard Senior Utility Service Worker
Sewer Utility
City of Oak Creek Mr. Michael Simmons City Engineer
City of Oak Creek Water & Mr. Michael Sullivan General Manager
Sewer Utility
City of Oak Creek Ms. Sue Winnen Environmental Engineer
City of St. Francis Ms. Melinda Dejewski City Engineer
City of Wauwatosa Mr. David Simpson Public Works Director
City of Wauwatosa Mr. William Wehrley City Engineer
City of West Allis Mr. Dave Wepking Public Works Director
City of West Allis Mr. Health Brozovich Principal Engineer
City of West Allis Mr. Peter Daniels City Engineer
Milwaukee County Mr. Jack Sudar Environmental Engineer
Milwaukee County Mr. Mark Sifuentes Engineer
Milwaukee County Mr. Stevan Keith Environmental Engineer
raSmith, Inc. Mr. Ben High Project Manager
raSmith, Inc. Mr. Chris Stamborski Municipal Engineer
raSmith, Inc. Mr. Len Roecker Director of Municipal Services
River Hills Mr. Randy Groth Superintend of Public Health
Milwaukee Metropolitan Sewerage District
2050 Facilities Plan
TECHNICAL ADVISORY TEAM
ORGANIZATION NAME TITLE
River Hills Ms. Tammy LaBorde Village Manager
Ruekert Mielke Mr. Steve Wurster Chief Operating Officer
Ruekert Mielke Mr. William Mielke President/CEO
Village of Bayside Mr. Andy Pederson Village Manager
Village of Brown Deer Mr. Matthew Maederer Public Works Director
Village of Brown Deer Mr. Nate Piotrowski Director of Community Development
Village of Butler Ms. Carolyn Jahnke Deputy Clerk
Village of Butler Ms. Kayla Chadwick Village Administrator/Clerk
Village of Caledonia Mr. Robert Lui Utility Operations Supervisor
Village of Elm Grove Mr. Richard Paul, Jr. Public Works Director
Village of Fox Point Mr. Scott Brandmeier Public Works Director
Village of Germantown Mr. Larry Ratayczak Public Works Director
Village of Greendale Mr. Mark Uecker Utility of Superintend
Village of Greendale Ms. Sarah Weishar Assistant Village Manager
Village of Greendale Mr. Todd Michaels Village Manager
Village of Hales Corners Mr. Michael Martin Public Works Director
Village of Menomonee Falls Mr. Matt Janecke Assistant Director of Public Works
Village of Shorewood Ms. Leeann Butschlick Assistant to Village Manager
Village of Thiensville Mr. Andy Lafond Director of Publics Works
Village of Thiensville Ms. Colleen Landisch- Village Administrator
Hansen
Village of West Milwaukee Ms. Kim Egan Village Administrator
Village of Whitefish Bay Mr. John Edlebeck Public Works Director
Village of Whitefish Bay Mr. Paul Boening Village Manager
Village of Whitefish Bay Mr. Spencer Charczuk Staff Engineer
Milwaukee Metropolitan Sewerage District
2050 Facilities Plan
CONTENTS
Acronyms and Glossary List ...................................................................................xviii
Executive Summary .............................................................................................. ES-1
Chapter 1: Introduction .......................................................................................... 1-1
1.1 Purpose and Goals of this Plan ................................................................................................................. 1-1
Drivers.................................................................................................................................................. 1-2
Goals .................................................................................................................................................... 1-3
Commission Policy Direction ............................................................................................................... 1-3
1.2 Planning Horizon....................................................................................................................................... 1-4
1.3 MMSD Overview ....................................................................................................................................... 1-5
Background .......................................................................................................................................... 1-5
Planning Area Description ................................................................................................................... 1-5
Asset Systems Description................................................................................................................... 1-6
1.4 Facilities Planning ................................................................................................................................... 1-14
What is Facilities Planning? ............................................................................................................... 1-14
History of Facilities Planning ............................................................................................................. 1-14
1.5 Accomplishments since the 2020 Facilities Plan .................................................................................... 1-15
1.6 Facilities Planning Approach ................................................................................................................... 1-15
1.7 Stakeholder Involvement........................................................................................................................ 1-16
Chapter 1 – Figures
Figure 1-1: 2050 FP Planning and Service Areas ................................................................................................. 1-8
Figure 1-2: Greater Milwaukee Watersheds ....................................................................................................... 1-9
Chapter 1 – Tables
Table 1-1: Population and Households by Civil Divisions.................................................................................. 1-10
Table 1-2: Residential Land Use ........................................................................................................................ 1-11
Table 1-3: Commercial, Industrial, Governmental/Institutional, and Commercial/Utility Land Uses .............. 1-12
Table 1-4: Open Lands, Freeway, Transportation, Recreational, Agricultural, and Landfill Uses ..................... 1-13
Table 1-5: 2050 Facilities Plan Stakeholder Roles ............................................................................................. 1-16
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Chapter 1 – Appendices
Appendix 1A – 2050 Facilities Plan Policy Direction ......................................................................................... 1A-1
Appendix 1B – Functional Descriptions of MMSD Asset Systems..................................................................... 1B-1
Chapter 2: Alignment with Regional and other MMSD Activities ............................ 2-1
2.1 Introduction .............................................................................................................................................. 2-1
2.2 Coordination with other Activities............................................................................................................ 2-1
State of Wisconsin ............................................................................................................................... 2-1
Regional Water Quality Management Plan Update ............................................................................ 2-1
Clean Water Act................................................................................................................................... 2-1
Watershed Planning ............................................................................................................................ 2-2
Southeastern Wisconsin Watersheds Trust, Inc.................................................................................. 2-2
2.3 Coordination with MMSD Asset Management Planning Process............................................................. 2-3
2.4 Alignment with MMSD Long-Term Financial Planning and Budgeting ..................................................... 2-3
2.5 Other MMSD Efforts and Programs .......................................................................................................... 2-4
Strategic Plan, 2035 Vision, and Connections to Changing Climate.................................................... 2-4
Sustainability ....................................................................................................................................... 2-4
Regional Green Infrastructure Plan ..................................................................................................... 2-5
Energy Plan .......................................................................................................................................... 2-5
TMDL Implementation Plan................................................................................................................. 2-5
Water Quality Improvement Plan ....................................................................................................... 2-5
Resilience Plan ..................................................................................................................................... 2-6
PPI/I Reduction Program ..................................................................................................................... 2-6
Wet Weather Peak Flow Management Program ................................................................................ 2-6
Biodiversity Plan .................................................................................................................................. 2-7
Greenseams® ....................................................................................................................................... 2-7
Working Soils® ..................................................................................................................................... 2-7
Chapter 3: Planning Process .................................................................................... 3-1
3.1 Planning Process Overview ....................................................................................................................... 3-1
3.2 Identify Level of Service ............................................................................................................................ 3-3
3.3 Estimate Future Demands ........................................................................................................................ 3-7
3.4 Assess Existing Facilities............................................................................................................................ 3-7
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3.5 Conduct Alternative Analyses ................................................................................................................... 3-7
3.6 Develop Recommended Plan to meet Regulatory Guidelines/Permit Requirements ............................. 3-8
3.7 Develop Recommended Plan to meet 2050 Foundational Goals............................................................. 3-8
3.8 Develop Implementation Plan .................................................................................................................. 3-8
Chapter 3 – Tables
Table 3-1: 2050 Facilities Plan Development Methodology ............................................................................... 3-2
Table 3-2: Level of Service Categories................................................................................................................. 3-3
Table 3-3: Key Performance Indicators and Level of Service Targets ................................................................. 3-5
Table 3-4: Performance Indicators and Level of Service Targets ........................................................................ 3-6
Chapter 3 – Appendices
Appendix 3A – Level of Service ......................................................................................................................... 3A-1
Chapter 4: Future Demand...................................................................................... 4-1
4.1 Purpose ..................................................................................................................................................... 4-1
4.2 Factors Affecting Demand ........................................................................................................................ 4-2
Service and Planning Area Changes..................................................................................................... 4-2
Climate Change.................................................................................................................................... 4-5
Regulatory and Permit Changes .......................................................................................................... 4-6
Operating and Maintenance Contract Changes .................................................................................. 4-9
Changes in Customer Expectations ................................................................................................... 4-10
Changes in Technology ...................................................................................................................... 4-11
Conservation Efforts .......................................................................................................................... 4-12
4.3 Projected Demand Trends ...................................................................................................................... 4-13
Background ........................................................................................................................................ 4-13
Conveyance Projections .................................................................................................................... 4-13
Water Reclamation Facilities and Biosolids Projections.................................................................... 4-17
Watercourse and Flood Management Projections ........................................................................... 4-26
Green Infrastructure Projections....................................................................................................... 4-27
Summary of Projected Demand Trends ............................................................................................ 4-28
4.4 Demand Management ............................................................................................................................ 4-28
Conveyance and Storage ................................................................................................................... 4-28
WRFs and Biosolids............................................................................................................................ 4-29
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Watercourse and Flood Management .............................................................................................. 4-30
Green Infrastructure.......................................................................................................................... 4-31
Non-Asset-Based Methods ................................................................................................................ 4-31
Chapter 4 – Figures
Figure 4-1: Future Flow Basis ............................................................................................................................ 4-14
Figure 4-2: Projected Future Quantities of GI by Year Based on Linear Projection and Exponential
Projection................................................................................................................................................ 4-27
Chapter 4 – Tables
Table 4-1: Possible Impacts from Service and Planning Area Changes............................................................... 4-5
Table 4-2: Possible Impacts from Climate Change .............................................................................................. 4-6
Table 4-3: Possible Impacts from Changes in the WPDES Permit and MMSD Rules .......................................... 4-8
Table 4-4: Possible Impacts from Operating Contract Changes ......................................................................... 4-9
Table 4-5: Possible Impacts from Changes in Customer Expectations ............................................................. 4-10
Table 4-6: Possible Impacts from Changes in Technology ................................................................................ 4-11
Table 4-7: Possible Impacts from Changes in Conservation Efforts.................................................................. 4-12
Table 4-8: Uniform Conveyance Future/Buildout Flow Parameters................................................................. 4-15
Table 4-9: Population, Land Use, and Flows for Conveyance Baseline, Conveyance Future, and
Buildout Conditions ................................................................................................................................ 4-16
Table 4-10: WRF Baseline Conditions Flows and Wasteloads .......................................................................... 4-19
Table 4-11: Projected WRF Future Conditions Flows and Wasteloads ............................................................. 4-20
Table 4-12: Projected Buildout Conditions Flows and Wasteloads .................................................................. 4-20
Table 4-13: Projected Percent Increase to Average Annual Flows and Wasteloads from
Baseline Conditions ................................................................................................................................ 4-21
Table 4-14: Needed Capacity at JIWRF to Maintain Baseline CSO Frequency .................................................. 4-22
Table 4-15: WRF Effluent Limitations................................................................................................................ 4-23
Table 4-16: Flow and Wasteload Estimates for a Large Industrial User in MMSD Service Area ...................... 4-24
Table 4-17: Residential, Commercial, Industrial, and I/I Portion of Total Annual Average Flows .................... 4-25
Table 4-18: Summary of Identified Factors on Projected Demand Trends....................................................... 4-28
Chapter 4 – Appendices
Appendix 4A – Conveyance Future Demand .................................................................................................... 4A-1
4A-1: SEWRPC/MMSD Data Memo and Maps
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4A-2: Flow Generation Technical Memorandum
4A-3: Conveyance Modeling Summary Technical Memorandum
Appendix 4B – WRFs and Biosolids Future Demand ......................................................................................... 4B-1
4B-1: Future Flows and Wasteloads Forecasting Methodology
4B-2: WRF Future Conditions Flow and Wasteloads Trends
4B-3: User Flows and Wasteloads
Appendix 4C – WCFM Future Demand ............................................................................................................. 4C-1
Appendix 4D – GI Future Demand .................................................................................................................... 4D-1
Chapter 5: Assessment of Existing Facilities and Risks ............................................ 5-1
5.1 Purpose ..................................................................................................................................................... 5-1
5.2 Overview of Asset System Risk Assessments ........................................................................................... 5-2
5.3 Risk-Based Approach ................................................................................................................................ 5-2
Asset-Level Risk Assessments .............................................................................................................. 5-3
Risk Registers ....................................................................................................................................... 5-3
Systemwide Assessments .................................................................................................................... 5-4
Summary.............................................................................................................................................. 5-4
5.4 Assessed Failure Modes and Data Sources............................................................................................... 5-4
Failure Modes ...................................................................................................................................... 5-4
Data Sources ........................................................................................................................................ 5-6
5.5 Conveyance and Storage Asset System Assessments .............................................................................. 5-7
Capacity Failure Mode ......................................................................................................................... 5-7
Physical Mortality Failure Mode........................................................................................................ 5-14
Level of Service Failure Mode ........................................................................................................... 5-15
Economic Efficiency Failure Mode..................................................................................................... 5-19
Summary of Conveyance and Storage System Risks ......................................................................... 5-19
5.6 Water Reclamation Facilities and Biosolids Asset System Assessments ................................................ 5-22
Capacity Failure Mode ....................................................................................................................... 5-22
Physical Mortality Failure Mode........................................................................................................ 5-27
Level of Service Failure Mode ........................................................................................................... 5-30
Economic Efficiency Failure Mode..................................................................................................... 5-32
Summary of WRFs and Biosolids Asset System Risks ........................................................................ 5-32
5.7 Watercourse and Flood Management Asset System Assessments ........................................................ 5-33
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Capacity Failure Mode ....................................................................................................................... 5-33
Physical Mortality Failure Mode........................................................................................................ 5-33
Level of Service Failure Mode ........................................................................................................... 5-35
Economic Efficiency Failure Mode..................................................................................................... 5-36
Summary of Conveyance and Storage System Risks ......................................................................... 5-37
5.8 Green Infrastructure Asset System Assessments ................................................................................... 5-37
Capacity Failure Mode ....................................................................................................................... 5-38
Physical Mortality Failure Mode........................................................................................................ 5-38
Level of Service Failure Mode ........................................................................................................... 5-39
Economic Efficiency Failure Mode..................................................................................................... 5-42
Summary of Green Infrastructure System Risks................................................................................ 5-42
5.9 Systemwide Assessments ....................................................................................................................... 5-42
Methodology ..................................................................................................................................... 5-43
Findings.............................................................................................................................................. 5-44
Summary of Systemwide Risks .......................................................................................................... 5-52
Chapter 5 – Figures
Figure 5-1: Risk Matrix ........................................................................................................................................ 5-4
Figure 5-2: Conveyance System Capacity Risks................................................................................................... 5-8
Figure 5-3: Projected Conveyance Pipeline Capacity Constraints under Conveyance Baseline
Conditions ............................................................................................................................................... 5-10
Figure 5-4: Projected Conveyance Pipeline Capacity Constraints under Conveyance Future
Conditions ............................................................................................................................................... 5-11
Figure 5-5: Projected Conveyance Pipeline Capacity Constraints under Buildout Conditions ......................... 5-12
Figure 5-6: Status of Enforcement Metersheds as of 2019 .............................................................................. 5-13
Figure 5-7: Projected Conveyance System Physical Mortality Risks ................................................................. 5-14
Figure 5-8: Summary of Conveyance System Level of Services Risks Identified in Risk Register ..................... 5-16
Figure 5-9: Conveyance System Economic Efficiency Risks .............................................................................. 5-19
Figure 5-10: Summary of Projected Conveyance and Storage System Capacity and Physical
Mortality Risks by Time Period ............................................................................................................... 5-20
Figure 5-11: Overview of WRFs and Biosolids Physical Mortality Estimates .................................................... 5-29
Figure 5-12: Projected Green Infrastructure Replacement Costs over Time.................................................... 5-39
Figure 5-13: Projected Future MMSD GI Capital and Maintenance Costs ........................................................ 5-41
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Figure 5-14: Baseline and Projected Percent Renewable Energy ..................................................................... 5-50
Chapter 5 – Tables
Table 5-1: Risk Assessment Data Sources used by Asset System and Failure Mode .......................................... 5-6
Table 5-2: Conveyance System Level of Service Risks by Category .................................................................. 5-17
Table 5-3: High Level of Service Risks Across Multiple Subsystems Identified in Conveyance Risk
Register not already Addressed by MMSD Strategies ............................................................................ 5-18
Table 5-4: Number of Unit Processes Projected to Start Being Capacity Deficient at Jones Island
WRF for each Time Period ...................................................................................................................... 5-24
Table 5-5: Number of Unit Processes Projected to Start Being Capacity Deficient at South Shore
WRF for each Time Period ...................................................................................................................... 5-26
Table 5-6: Number of Unit Processes Projected to Start Being Capacity Deficient at Interplant
Sludge Pipeline for each Time Period ..................................................................................................... 5-26
Table 5-7: Moderate and High Capacity Risks Identified in WRF Risk Register not Already Addressed
by MMSD Strategies ............................................................................................................................... 5-27
Table 5-8: Moderate and High Physical Mortality Risks Identified in WRF Risk Register not Already
Addressed by MMSD Strategies ............................................................................................................. 5-30
Table 5-9: Moderate and High Level of Service Risks Identified in WRF Risk Register not Already
Addressed by MMSD Strategies ............................................................................................................. 5-31
Table 5-10: Identified Watercourse and Flood Management Capacity Risks by Watershed ........................... 5-33
Table 5-11: Watercourse and Flood Management Asset System – Physical Mortality Risks
Identified in the Risk Register by Watershed ......................................................................................... 5-34
Table 5-12: High Physical and Mortality Risks Identified in Watercourse and Flood Management
Risk Register not Already Addressed by MMSD Strategies .................................................................... 5-34
Table 5-13: Watercourse and Flood Management Asset System – Level of Service Risks by
Watershed .............................................................................................................................................. 5-35
Table 5-14: High Level of Service Risks Identified in Watercourse and Flood Management
Risk Register not Already Addressed by MMSD Strategies .................................................................... 5-35
Table 5-15: Estimated Number of Flooded Structures per Watershed During 1-percent Annual
Probability Rainfall Event........................................................................................................................ 5-36
Table 5-16: Watercourse and Flood Management Asset System – Economic Efficiency Risks by
Watershed .............................................................................................................................................. 5-37
Table 5-17: GI Asset System – Level of Service Risks ........................................................................................ 5-41
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Table 5-18: Key Performance Indicators 2015–2017 Results ........................................................................... 5-46
Table 5-19: Performance Indicators, 2015–2017 Results ................................................................................. 5-47
Table 5-20: Baseline Energy Demands .............................................................................................................. 5-48
Table 5-21: Future Energy Demands under WRF Future Condition Projections .............................................. 5-49
Table 5-22: Energy Plan Alternatives Identified for Further Review in the 2050 FP ........................................ 5-51
Chapter 5 – Appendices
Appendix 5A – Conveyance Assessment of Existing Facilities and Risks .......................................................... 5A-1
5A-1: Subsystem 1 Dashboard
5A-2: Subsystem 2 Dashboard
5A-3: Subsystem 3 Dashboard
5A-4: Subsystem 4 Dashboard
5A-5: Subsystem 5 Dashboard
5A-6: Subsystem 6 Dashboard
5A-7: Subsystem 7 Dashboard
A1-7: Subsystem 1-7 Leg Maps
5A-8: Conveyance Physical Mortality Gap Methodology
5A-9: Conveyance Risk Register
5A-10: Conveyance Risk Register COF Definitions
5A-11: Conveyance Risk Register – LOS Risks
5A-12: Conveyance Risk Register – Economic Efficiency Risks
5A-13: H2S, Odor, and Venting Technical Memorandum
5A-14: Conveyance Access Alternatives Technical Memorandum
5A-15: Outfall Alternatives Technical Memorandum
5A-16: Sewer Self-Cleansing Technical Memorandum
Appendix 5B – WRFs and Biosolids Assessment of Existing Facilities and Risks ............................................... 5B-1
5B-1: Level Designations
5B-2: WRFs and Biosolids Asset Summary
5B-3: WRF Risk Register
5B-4: WRF Risk Register COF Definitions
5B-5: WRF Capacity Assessment
5B-6: WRF Risk Register – Capacity Risks
5B-7: WRFs Physical Mortality Gap Methodology
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5B-8: WRF Risk Register – Physical Mortality Risks
5B-9: WRF Risk Register – LOS Risks
5B-10: WRF Risk Register – Economic Efficiency Risks
Appendix 5C – Watercourse and Flood Management Assessment of Existing Facilities and Risks.................. 5C-1
5C-1: Kinnickinnic River Watershed Dashboard
5C-2: Lake Michigan Direct Watershed Dashboard
5C-3: Menomonee River Watershed Dashboard
5C-4: Milwaukee River Watershed Dashboard
5C-5: Oak Creek River Watershed Dashboard
5C-6: Root River Watershed Dashboard
5C-7: WCFM Risk Register
5C-8: WCFM Risk Register COF Definitions
5C-9: WCFM Risk Register – LOS Risks
5C-10: WCFM Risk Register – Economic Efficiency Risks
Appendix 5D – Green Infrastructure Assessment of Existing Facilities and Risks............................................. 5D-1
5D-1: GI Risk Register
5D-2: GI Risk Register COF Definitions
5D-3: GI Risk Register – LOS Risks
5D-4: GI Risk Register – Economic Efficiency Risks
Appendix 5E – Energy Alternatives Selection for 2050 FP Review ....................................................................5E-1
Appendix 5F – 2018 Urban Biodiversity Plan .....................................................................................................5F-1
Chapter 6: Alternative Analyses ............................................................................. 6-1
6.1 Purpose ..................................................................................................................................................... 6-1
6.2 Alternative Development Process .......................................................................................................... 6-12
Alternative Analysis Assumptions ..................................................................................................... 6-12
Process Overview .............................................................................................................................. 6-13
Attributes for Alternatives................................................................................................................. 6-13
Alternative Analysis Scoring Methodology........................................................................................ 6-13
Exceptions.......................................................................................................................................... 6-19
6.3 Summary of Recommended Projects ..................................................................................................... 6-19
Recommended Projects to meet Regulatory Guidelines and Permit Requirements ........................ 6-19
Recommended Projects to Meet 2050 Foundational Goals ............................................................. 6-27
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Chapter 6 – Figures
Figure 6-1: Organizational Flow Chart from Chapter 6 through Chapter 9 ........................................................ 6-2
Chapter 6 – Tables
Table 6-1: Conveyance Alternative Analyses for Potential Risks Identified in Chapter 5 ................................... 6-3
Table 6-2: WRFs and Biosolids Alternative Analyses for Potential Risks Identified in Chapter 5 ....................... 6-5
Table 6-3: Watercourse and Flood Management Alternative Analyses to Address Risks
Identified in Chapter 5 .............................................................................................................................. 6-9
Table 6-4: Green Infrastructure Alternative Analyses to Address Risks Identified in Chapter 5 ...................... 6-10
Table 6-5: Systemwide Analyses to Address Risks Identified in Chapter 5 ....................................................... 6-11
Table 6-6: Level of Service Category Weighting Factors ................................................................................... 6-14
Table 6-7: Example Analysis-Specific Performance Factors for Conveyance Capacity Project CS R1............... 6-17
Table 6-8: Example Alternatives Scoring Matrix for Conveyance Capacity Project CS R1 ................................ 6-18
Table 6-9: Summary of Recommended Conveyance Projects to Meet Regulatory Guidelines/
Permit Requirements.............................................................................................................................. 6-20
Table 6-10: Summary of Recommended WRFs and Biosolids Projects to Meet
Regulatory Guidelines and Permit Requirements .................................................................................. 6-22
Table 6-11: Summary of Recommended Watercourse and Flood Management Projects to Meet
Regulatory Guidelines and Permit Requirements .................................................................................. 6-25
Table 6-12: Summary of Recommended Green Infrastructure Projects to Meet
Regulatory Guidelines and Permit Requirements .................................................................................. 6-26
Table 6-13: Summary of Recommended Conveyance Projects to Meet 2050 Foundational Goals ................. 6-28
Table 6-14: Summary of Recommended WRFS and Biosolids Projects to Meet 2050
Foundational Goals ................................................................................................................................. 6-30
Table 6-15: Summary of Recommended Green Infrastructure Projects to Meet 2050
Foundational Goals ................................................................................................................................. 6-32
Table 6-16: Summary of Recommended Systemwide Projects to Meet 2050
Foundational Goals ................................................................................................................................. 6-33
Chapter 6 – Appendices
Appendix 6A – Appendix 6A – Conveyance Alternative Analyses..................................................................... 6A-1
Appendix 6A-1: CS R1 Peak HGL Conveyance Model Profiles
Appendix 6A-2: CS R1 Alternative 1 Schematic Map
Appendix 6A-3: CS R1 Alternative 2 Schematic Map
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10
15
20
25
30
35
Appendix 6A-4: CS R1 Conveyance Project Conceptual Costs
Appendix 6A- : CS R2 Peak HGL Conveyance Model Profiles
Appendix 6A-6: CS R2 Alternative 1 Schematic Map
Appendix 6A-7: CS R2 Alternative 2 Schematic Map
Appendix 6A-8: CS R2 Conveyance Project Conceptual Costs
Appendix 6A-9: CS R3 Peak HGL Conveyance Model Profiles
Appendix 6A- : CS R3 Alternative 1 Schematic Map
Appendix 6A-11: CS R3 Alternative 2 Schematic Map
Appendix 6A-12: CS R3 Alternative 3 Schematic Map
Appendix 6A-13: CS R3 Conveyance Project Conceptual Costs
Appendix 6A-14: CS R4 Peak HGL Conveyance Model Profiles
Appendix 6A- : CS R4 Alternative 1 Schematic Map
Appendix 6A-16: CS R4 Alternative 2 Schematic Map
Appendix 6A-17: CS R4 Alternative 3 Schematic Map
Appendix 6A-18: CS R4 Conveyance Project Conceptual Costs
Appendix 6A-19: CS R5 Peak HGL Conveyance Model Profiles
Appendix 6A- : CS R5 Alternative 1 Schematic Map
Appendix 6A-21: CS R5 Alternative 2 Schematic Map
Appendix 6A-22: CS R5 Conveyance Project Conceptual Costs
Appendix 6A-23: CS R6 Peak HGL Conveyance Model Profiles
Appendix 6A-24: CS R6 Alternative 1 Schematic Map
Appendix 6A- : CS R6 Alternative 2 Schematic Map
Appendix 6A-26: CS R6 Conveyance Project Conceptual Costs
Appendix 6A-27: CS R7 Peak HGL Conveyance Model Profiles
Appendix 6A-28: CS R7 Alternative 1 Schematic Map
Appendix 6A-29: CS R7 Alternative 2 Schematic Map
Appendix 6A- : CS R7 Conveyance Project Conceptual Costs
Appendix 6A-31: CS R8 Peak HGL Conveyance Model Profiles
Appendix 6A-32: CS R8 Alternative 1 Schematic Map
Appendix 6A-33: CS R8 Alternative 2 Schematic Map
Appendix 6A-34: CS R8 Conveyance Project Conceptual Costs
Appendix 6A- : CS R9 Ad Hoc Modeling Request 211: Evaluation of I/I Influences
Appendix 6A-36: CS R9 Combat I/I Details
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15
20
25
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Appendix 6A-37: CS R10 Conveyance Physical Mortality Maps
Appendix 6A-38: CS R10 Conveyance Pipe and Pump Station Workbooks
Appendix 6B – Water Reclamation Facilities (WRFs) and Biosolids Alternative Analyses ................................ 6B-1
Appendix 6B-1: WRF R1 Effluent Pump Capacity with Rising Lake Levels Evaluation Cost
Appendix 6B-2: WRF R2 JIWRF Primary, Secondary Capacity Mass Balance Analysis
Appendix 6B-3: WRF R2 JIWRF Primary, Secondary Capacity Project Conceptual Costs
Appendix 6B-4: WRF R3 SSWRF Primary, Secondary Capacity Mass Balance Analysis
Appendix 6B- : WRF R3 SSWRF Primary, Secondary Capacity Project Conceptual Costs
Appendix 6B-6: WRF R3 Alt not Incorporated, Diversion from SS to JI
Appendix 6B-7: WRF R4 JIWRF and SSWRF Future E. coli Limits Conceptual Costs
Appendix 6B-8: WRF R5 D&D Shutdown Solids Capacity Project Conceptual Costs
Appendix 6B-9: WRF R6 JIWRF TMDL Limits Analysis Details
Appendix 6B- : WRF R7 Physical Mortality AssetView Evaluation
Appendix 6B-11: WRF R8 Milorganite Process System Physical Mortality Project Conceptual Costs
Appendix 6B-12: WRF R9 JIWRF Substation Upgrades Cost Estimate and Inventory
Appendix 6B-13: WRF R9 JIWRF Substation Inventory Figures
Appendix 6B-14: WRF R9 MMSD Dewey Substation Testing and Inspection Reports
Appendix 6B- : WRF R10 Dryer Emissions Summary Information
Appendix 6B-16: WRF R10 Dryer Emission Control Project Conceptual Costs
Appendix 6B-17: WRF R11 Summary of Odor Complaints SSWER-JIWRF_2012-2016
Appendix 6B-18: WRF R11 Project Conceptual Costs
Appendix 6B-19: WRF FG1 Milorganite Quantity and Quality Project Conceptual Costs
Appendix 6B- : WRF FG2 Alternative Biosolids Systems Project Conceptual Costs
Appendix 6B-21: WRF FG2 Alternative Biosolids Systems Support Documentation
Appendix 6B-22: WRF FG2 Alternative Biosolids Systems Site Figures
Appendix 6B-23: WRF FG2 Biosolids and Energy Model for Alternative Biosolids Systems
Appendix 6B-24: WRF FG3 Milorganite Bagging August 27, 2015 Meeting Notes
Appendix 6B- : WRF FG3 Milorganite Bagging March 16, 2018 Meeting Notes
Appendix 6B-26: WRF FG4 SSWRF Renewable Energy Project Conceptual Costs
Appendix 6B-27: WRF FG5 JIWRF and SSWRF Interplant Energy Connection Project Conceptual Costs
Appendix 6B-28: WRF FG6 Reduction of SSWRF Energy Use Conceptual Costs and Energy Balance
Appendix 6B-29: WRF FG7 SSWRF Backup Power Project Conceptual Costs
Appendix 6B- : WRF FG8 JIWRF Wet Weather Capacity Project Conceptual Costs
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Appendix 6B-31: WRF FG9 SSWRF Wet Weather Capacity Project Conceptual Costs
Appendix 6C – Watercourse and Flood Management (WCFM) Alternative Analyses ...................................... 6C-1
Appendix 6C-1: WCFM R2 SEWRPC Floodplain Analyses – 2017
Appendix 6D – Green Infrastructure (GI) Alternative Analyses ....................................................................... 6D-1
Appendix 6D-1: Green Infrastructure Analysis Cost Estimates File
Appendix 6D-2: TM Summarizing GI Impacts on TMDL Pollutant Loads
Appendix 6D-3: TM Evaluation of Impact of GI on I/I
Appendix 6D-4: TM Summary of MMSD GI Modeling
Appendix 6D-5: TM GI Modeling within the CSSA
Appendix 6D-6: TM GI Modeling within the SSSA
Appendix 6D-7: Using Green Infrastructure in County Parks to Manage Stormwater from Adjacent Hardscapes
Appendix 6E – Systemwide Alternative Analyses ..............................................................................................6E-1
Appendix 6E-1: SW FG1 Conveyance System Flow Transfer Locations
Appendix 6E-2: SW FG1 Tomorrow Water Vendor Proposal
Appendix 6E-3: SW FG1 JIWRF/SSWRF Reutilization Cost Estimate Details
Appendix 6E-4: SW FG2 Tunnel-Related Overflows Cost Estimates
Appendix 6E-5: SW FG2 Conveyance-Related Overflow Elimination Project Details
Appendix 6E-6: SW FG3 JIWRF Channel Mixing
Appendix 6E-7: SW FG3 Effluent Heat Recovery Backup
Appendix 6E-8: SW FG3 SSWRF Influent Power Generation Backup
Appendix 6E-9: SW FG4 Energy Balance Calculations, Years 2017 and 2035
Appendix 6E-10: SW FG4 Milwaukee GHG Analysis
Appendix 6E-11: SW FG4 Project Conceptual Costs
Appendix 6F – Paired Comparison Analysis Process ..........................................................................................6F-1
Chapter 7: Recommended Plan to Meet Regulatory Guidelines and Permit Requirements ......................................................................................................... 7-1
7.1 Introduction and Plan Summary ............................................................................................................... 7-1
Existing Projects that Support the 2050 FP ......................................................................................... 7-3
Municipal Costs that Support the 2050 FP .......................................................................................... 7-4
Additional Information ........................................................................................................................ 7-4
7.2 Recommended New Projects and Programs to Meet Baseline Conditions ............................................. 7-5
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7.3 Recommended New Projects and Programs to Meet Future and Buildout Conditions......................... 7-12
7.4 Existing Capital Projects and Programs that Help to Meet Regulatory Guidelines and
Permit Requirements ........................................................................................................................ 7-16
7.5 Recommended Local Municipality Projects............................................................................................ 7-21
7.6 Summary of Recommended Projects ..................................................................................................... 7-22
Chapter 7 – Figures
Figure 7-1: Organizational Flow Chart from Chapter 6 through Chapter 9 ........................................................ 7-2
Chapter 7 – Tables
Table 7-1: Recommended New Projects and Programs to Meet Regulatory Guidelines/Permit
Requirements under Baseline Conditions ................................................................................................ 7-8
Table 7-2: Recommended New Projects and Programs to Meet Regulatory Guidelines/Permit
Table 7-3: Existing Capital Projects or Programs that Help to Meet Regulatory Guidelines and
Table 7-4: Estimated Costs for Local Municipalities to Implement Recommended Projects or
Table 7-5: Summary of Recommended Plan Costs to Meet Regulatory Guidelines and/or
Requirements under Future/Buildout Conditions ................................................................................. 7-14
Permit Requirements ........................................................................................................................ 7-19
Programs................................................................................................................................................. 7-21
Permit Requirements.............................................................................................................................. 7-23
Chapter 8: Recommended Plan to Meet 2050 FP Foundational Goals ..................... 8-1
8.1 Introduction and Plan Summary ............................................................................................................... 8-1
8.2 Recommended New Projects and Programs to Meet Baseline Conditions ............................................. 8-5
8.3 Recommended New Projects and Programs to Meet Future and Buildout Conditions......................... 8-10
8.4 Existing Capital Projects and Programs that help to Meet Regulatory 2050 Foundational Goals ......... 8-15
8.5 Summary of Recommended Projects ..................................................................................................... 8-18
8.6 Additional Opportunities to help Meet 2050 Foundational Goals ......................................................... 8-19
Chapter 8 – Figures
Figure 8-1: Organizational Flow Chart from Chapter 6 through Chapter 9 ........................................................ 8-3
Figure 8-2: Biogas Upgrading and CO2 Recovery Process ................................................................................. 8-45
Chapter 8 – Tables
Table 8-1: Recommended New Projects to Meet 2050 Foundational Goals under Baseline Conditions .......... 8-8
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Table 8-2: Recommended New Projects to Meet 2050 Foundational Goals under Future/Buildout
Conditions ............................................................................................................................................... 8-12
Table 8-3: Existing Capital Projects and Programs that help to Meet 2050 Foundational Goals ..................... 8-17
Table 8-4: Summary of Recommended Plan Costs to Meet 2050 Foundational Goals .................................... 8-19
Table 8-5: Foundational Goals Review – Information Technology Integration ................................................ 8-22
Table 8-6: Foundational Goals Review – Climate Change Impacts ................................................................... 8-27
Table 8-7: Foundational Goals Review – Emerging Technologies..................................................................... 8-29
Table 8-8: Foundational Goals Review – Tree Replacement ............................................................................ 8-32
Table 8-9: Foundational Goals Review – Resilience Plan Regional Integration ................................................ 8-36
Table 8-10: Foundational Goals Review – Green all County Parks and Public Spaces...................................... 8-38
Table 8-11: Foundational Goals Review – Support TMDL Implementation...................................................... 8-40
Table 8-12: Foundational Goals Review – Watershed-Based Permitting Program Considerations ................. 8-42
Table 8-13: Foundational Goals Review – Carbon Sequestration ..................................................................... 8-45
Table 8-14: Foundational Goals Review – Emerging Contaminants ................................................................. 8-50
Chapter 9: Implementation Plan............................................................................. 9-1
9.1 Introduction .............................................................................................................................................. 9-1
9.2 2050 FP Implementation Plan .................................................................................................................. 9-4
Annual O&M Costs ............................................................................................................................ 9-11
9.3 Implementation Plan for Regulatory Guidelines/Permit Requirements ................................................ 9-11
Conveyance and Storage Asset System ............................................................................................. 9-17
WRFs and Biosolids Asset System ..................................................................................................... 9-18
Green Infrastructure Asset System ................................................................................................... 9-18
9.4 Implementation Plan for 2050 Foundational Goals ............................................................................... 9-19
WRFs and Biosolids Asset System ..................................................................................................... 9-24
Green Infrastructure Asset System ................................................................................................... 9-24
Systemwide ....................................................................................................................................... 9-25
Additional Opportunities to Help Meet 2050 Foundational Goals ................................................... 9-25
9.5 Existing MMSD Programs and Committed Projects ............................................................................... 9-26
Recommendations............................................................................................................................. 9-26
9.6 2050 FP Financing Plan ........................................................................................................................... 9-26
Funding .............................................................................................................................................. 9-27
2050 FP Financing Plan and Impact to Ratepayers ........................................................................... 9-27
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9.7 Proposed Design Criteria Updates .......................................................................................................... 9-30
9.8 Tracking and Evaluating Performance and Project Implementation...................................................... 9-47
Tracking Key Performance Indicators and Performance Indicators .................................................. 9-47
Determining when to Implement Recommended Future Projects ................................................... 9-48
Tracking and Evaluating Risks ............................................................................................................ 9-53
9.9 Integrating Innovation and Applied Research ........................................................................................ 9-53
9.10 Public Involvement and Revisions to the Recommended Plans ............................................................. 9-56
Public Involvement ............................................................................................................................ 9-56
Revisions to the Recommended Plans .............................................................................................. 9-56
9.11 Summary ................................................................................................................................................. 9-57
Chapter 9 – Figures
Figure 9-1: Organizational Flow Chart from Chapter 6 through Chapter 9 ........................................................ 9-3
Figure 9-2: Relationship between 2050 FP Recommended Plans and 2050 FP Implementation Plan ............... 9-4
Figure 9-3: 2050 FP Implementation Plan........................................................................................................... 9-6
Chapter 9 – Tables
Table 9-1: 2050 FP Implementation Plan: Capital Costs for New Projects and Programs .................................. 9-7
Table 9-2: Change in Annual O&M Costs Due to New Projects in Implementation Plan ................................... 9-8
Table 9-3: Estimated Costs for New Projects to Meet Regulatory Guidelines/Permit Requirements.............. 9-13
Table 9-4: Change in Annual O&M Costs from New Projects to Meet Regulatory Guidelines/Permit
Requirements ......................................................................................................................................... 9-15
Table 9-5: Estimated Costs for New Projects to Meet 2050 Foundational Goals ............................................. 9-20
Table 9-6: Change in Annual O&M Costs from New Projects to Meet Foundational Goals ............................. 9-22
Table 9-7: New Project Capital Costs in 2050 FP Financing Plan Compared to 2050 FP
Implementation Plan .............................................................................................................................. 9-29
Table 9-8: Recommended Projects and Impacts to Design Criteria.................................................................. 9-31
Table 9-9: Projected Design Criteria Influent Flows and Wasteloads ............................................................... 9-32
Table 9-10: Proposed Updates to JIWRF Design Criteria .................................................................................. 9-34
Table 9-11: Proposed Updates to SSWRF Design Criteria ................................................................................. 9-41
Table 9-12: Performance Indicators that will Trigger Initiation of Recommended Future Projects................. 9-49
Table 9-13: Research Areas that could apply to Multiple Projects ................................................................... 9-55
Table 9-14: Breakdown of New Project Capital Costs....................................................................................... 9-58
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Chapter 9 – Appendices
Appendix 9A – 2050 FP Implementation Plan Summary – Cash Flow and Debt Tables ................................... 9A-1
Appendix 9B – Updated WRF Future Condition Mass Balances Incorporating Implementation of
Recommended Projects.......................................................................................................................... 9B-1
Appendix 9C – Summary of Public Participation............................................................................................... 9C-1
Appendix 9C-1: SWWT Committee Membership
Appendix 9C-2: TAT Membership
Appendix 9C-3: Public Hearing Notes
Appendix 9C-4: 2050 FP Water Quality Survey Report
Appendix 9C-5: 2050 FP Flyers
Appendix 9C-6: 2050 FP Documentation
Appendix 9D – Public Review Comments ......................................................................................................... 9D-1
Appendix 9E – SEWRPC/WDNR Review Documentation ...................................................................................9E-1
Appendix 9E-1: SEWRPC Review Letter
Appendix 9E-2: January 8, 2021 Response Letter to WDNR Review Comments
Appendix 9E-3: Updated Responses to WDNR Comments
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ACRONYMS AND GLOSSARY LIST
Acronyms
2050 FP 2050 Facilities Plan
A
AACE Association for the Advancement of Cost Engineering
AI Artificial intelligence
ALC Aquatic life criteria
AMP Asset management plan
ANN Artificial neuro networking
AV Area velocity
B
B&C Brown and Caldwell
BAF Biologically active filtration
BI Business intelligence
BIM Building information modeling
Bio-P Biological phosphorus
BMP Best management practice
BOD biochemical oxygen demand
BPA Bis-phenol-A
BS Bypass structure
BSF Base sanitary flow
C
CBOD Carbonaceous biochemical oxygen demand
CCO Contract Compliance Office
CCVA Climate Change Vulnerability Analysis
CE Critical elevation
CEC Contaminants of emerging concern
CEPT Chemically enhanced primary treatment
cfs Cubic feet per second
CMOM Capacity, management, operations, and maintenance
CNG Compressed natural gas
CO Carbon monoxide
CO2 Carbon dioxide
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COF Consequence of failure
CS Combined sewer
CSM Comprehensive system model
CSM Conveyance system model
CSO Combined sewer overflow
CSSA Combined sanitary sewer area
CSTP Combined sewer treatment plants
CT Contact time
CWA Clean Water Act
D
D&D Dewatering and drying
DAF Dissolved air flotation
DAF Dissolved air flotation
DC Diversion chamber
DG Digester gas
DOA Department of Administration
DOE Department of Energy
DPB Disinfection byproducts
DSD Digested sludge
E
E. coli Escherichia coli
EDC Endocrine-disrupting chemicals
EIA Energy Information Administration
ENR Engineering-News Record
ENR-CCI Engineering-News Record Construction Cost Index
EPDM Ethylene propylene diene monomer
F
FEMA Federal Emergency Management Agency
FFS Flow Forecasting System
FG Foundational Goal
FG Foundational Goals
FOG Fats, oils, and grease
FPOP Facilities, programs, operational improvements, and policies
fps Feet per second
G
GAS Granular activated sludge
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GBT Gravity belt thickener
GHG Greenhouse gas
GI Green infrastructure
GIS Geographic information system
GMIA Greater Milwaukee International Airport
GMW Greater Milwaukee watersheds
gpad Gallons per acre per day
gpd Gallons per day
gpd Gallons per day
H
H2S Hydrogen sulfide
H2S Hydrogen sulfide
HGL Hydraulic gradeline
HL High-level
hr Hour
HRT High rate treatment
HSW High-strength waste
I
I/I Infiltration and inflow
ICA Intergovernmental cooperation agreement
IFAS Integrated fixed film system
IGCC Integrated gasification combined cycle
IGLD International Great Lakes Datum
IIOT Industrial internet of things
IoT Internet of things
IPS Inline pump station
IS Intercepting structure
ISP Interplant solids pumping
ISS PS Inline storage system pump station
ISS Inline storage system
IWM Integrated watershed management
J
JIWRF Jones Island Water Reclamation Facility
K
KK Kinnickinnic
KPI Key performance indicator
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L
lb Pound
LCUS Local control unit substation
LFG Landfill gas
LL Low-level
LM Linear motion
LM-S Lake Michigan South
LOF Likelihood of failure
LOP Level of protection
LOS Level of service
M
MBR Membrane bioreactor
MCRR Major capital repair and replacement
MCRT Mean cell residence time
MFV Multiple-fixed venturi
MGD Million gallons per day
MH Manhole
MIS Metropolitan interceptor sewer
ML Machine learning
MLSS Mixed liquor suspended solids
MMBTU British thermal units
MMSD Milwaukee Metropolitan Sewerage District
MP Major process
MRB Milwaukee River basin
MRWCP Milwaukee River Watershed Conservation Partnership
MS Monitoring station
MS4 Municipal separate storm sewer system
N
n Manning’s roughness coefficient
N Nitrogen
NASSCO National Association of Sewer Service Companies
NCCW Non-contact cooling water
NEMO Northland Nonpoint Education for Municipal Officials
NG Natural gas
NP Non-process
NPDES National Pollutant Discharge Elimination System
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NRCS Natural Resources Conservation Service
NSC Near surface collector
NWSRS Northwest side relief sewer
O
O&M Operating and maintenance / operations and maintenance
OIG Office of Inspector General
OKI Ohio Kentucky Indiana Regional Council of Governments
P
P Phosphorus
P3 Public-private partnership
PAA Peracetic acid
PAC Process air compressor
PAC Process air compressor
PACP Pipeline Assessment Certification Program
PCB Polychlorinated biphenyl
PD Passive diversion
PE Primary effluent
PFAS Perfluoroalkyl substances
PFOA Perfluorooctanoic acid
PI Performance indicator
PLC Programmable logic controller
POP Persistent organic pollutants
POR Period of record
POTW Publicly-owned treatment works
PPCP Pharmaceuticals and personal care products
PPI/I Private property infiltration and inflow
ppt Parts per trillion
PSD Primary sludge
PSD Primary sludge-dry tons
PWRS Port Washington relief sewer
R
RAS Return activated sludge
RCPP Regional Conservation Partnership Program
RNG Renewable natural gas
RTO Regenerative thermal oxidizers
RWQMPU Regional Water Quality Management Plan Update
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S
SCADA Supervisory control and data acquisition
scfm Standard cubic feet per minute
SEWRPC Southeastern Wisconsin Regional Planning Commission
SF Square feet
SOR Surface overflow rate
SSM Simplified system model
SSO Separate sewer overflow
SSO Separate sewer overflow
SSSA Separate sewer service area
SSWRF South Shore Water Reclamation Facility
SVI Sludge volume index
SWWT Southeastern Wisconsin Watersheds Trust, Inc., also known as Sweet Water
T
TAT Technical Advisory Team
TBL Triple bottom line
TBOD Total biochemical oxygen demand
TKN Total Kjeldahl nitrogen
TM Technical memorandum
TMDL Total maximum daily load
TP Total phosphorus
TPC Total project cost
TSS Total suspended solids
TSS Total suspended solids
U
U.S. EPA United States Environmental Protection Agency
UP Unit process
USDA US Department of Agriculture
USGS United States Geological Survey
UV Ultraviolet
VFD Variable frequency drive
VRSSI Volume reserved for separate sewer inflow
W
WAS Waste activated sludge
WCFM Watercourse and flood management
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V
WDNR Wisconsin Department of Natural Resources
WESP Wet electrostatic precipitator
WET Whole effluent toxicity
WIB Water in basement
WLA Wasteload allocation
WLR Weir loading rate
WPAP Water Pollution Abatement Program
WPDES Wisconsin Pollutant Discharge Elimination System
WQIP Water Quality Improvement Program
WQT Water quality trading
WRFs Water reclamation facilities
WRP Watershed Restoration Plan
WWPFMP Wet Weather Peak Flow Management Program
Glossary
2050 Facilities Plan (2050 FP): A plan that identifies system capital improvements necessary to address regulatory guidelines and permit requirements needs through 2040 and 2050 Foundational Goals needs through 2050 for four main asset systems: Conveyance and Storage, Water Reclamation Facilities and Biosolids, Watercourse and Flood Management, and Green Infrastructure. The 2050 FP meets the requirements of Section 201 of the federal Clean Water Act.
2050 FP Financing Plan: An analysis of what adjustments (if any) need to be made to the 2020 to 2025 long-range finance plan to incorporate the recommended projects to address Baseline Conditions for 2021 to 2025 time period.
2050 FP Implementation Plan: The 2050 FP implementation plan represents the implementation schedule, capital costs, and incremental increase in annual costs for the recommended new programs and projects that are over and above the costs already included in the 2020 Annual Budgets and the 2020 to 2025 long-range finance plan.
Alternative: One possible mechanism that could be implemented to achieve an objective or intended to result in the achievement of an objective.
Alternative Analysis: The comparison of multiple alternatives to identify the recommendation to address risk(s) identified in assessment of existing facilities.
Annual Budgets: The term used in the 2050 FP to refer to the operations and maintenance and capital budgets report published annually by the MMSD. The information used in the 2050 FP is from the 2020 Operations and Maintenance and Capital Budgets, referred to as the 2020 Annual Budgets.
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Annual Operations and Maintenance and Capital Budgets: On an annual basis, MMSD publishes a report documenting the capital and annual operation and maintenance budgets for existing MMSD programs and projects. The information used in the 2050 FP is from the 2020 Operations and Maintenance and Capital Budgets, referred to as the 2020 Annual Budgets. The Capital Budget documents costs for projects that acquire or improve land, waters, property or facilities to enhance sewerage services in MMSD’s service area.
Average Flow: Average quantity of wastewater entering the conveyance or treatment system over a given period of time, including inflow and infiltration. Asset: Physical structure or piece of equipment, the basic component in the hierarchy of an asset system being managed.
Asset Management: The management of assets, using tools such as establishing level of service, assessment of risk of failure, performance indicators and targets for good performance.
Asset System: The highest level in the classification of similar of assets. The 2050 FP identified the four major asset system managed by MMSD: Conveyance and Storage, Water Reclamation Facilities and Biosolids, Watercourse and Flood Management, and Green Infrastructure.
Baseline Conditions: Established from the most recent available data set for each asset system. Used as a reference point when calculating future demand.
Biochemical Oxygen Demand (BOD): A measure of the amount of oxygen used up in the anaerobic decomposition of organic matter. The BOD test utilizes the oxygen from air dissolved in water and reflects treatability or stage of decomposition. It gives a direct measurement of the strength of wastewater, usually expressed in mg/l (milligrams per liter).
Biosolids: The particulates contained in, or removed from wastewater (debris, sand and grit, sludge). Also, a synonym for sludge in cases where it can be reused in some beneficial way, i.e., Milorganite®, land application.
Biosolids Processing: After secondary treatment, the biosolids (sludge) are processed prior to being recycled. At the Jones Island Water Reclamation Facility, the processing involves vacuum filtering (dewatering) and heat drying into Milorganite. At the South Shore Water Reclamation Facility, the biosolids (sludge) are anaerobically digested, either to be processed as a part of Milorganite at the Jones Island Water Reclamation Facility or dewatered and land applied.
Biosolids Reuse: Biosolids that can be recycled. At the Jones Island Water Reclamation Facility, biosolids are converted into Milorganite; at the South Shore Water Reclamation Facility, biosolids are converted into digested sludge, either to be processed as a part of Milorganite at the Jones Island Water Reclamation Facility or dewatered and land applied.
Budget: An estimate of income and expenditure for an organization for a set period of time.
Buildout Conditions: Forecasted demand conditions when the MMSD planning area is built out. Based on population and land use data from the Southeastern Wisconsin Regional Planning Commission.
Bypass: A means to convey a fluid around a part and back to the main stream, typically through use of bypass structure(s) and bypass piping and channels.
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Capacity Failure Mode: An analysis to determine whether an asset or asset system is failing to provide the required capacity under current or projected conditions. One of the four failure modes that is assessed in the 2050 FP.
Capacity Assurance, Maintenance, Operation and Management (CMOM): A program where MMSD works with the 28 communities in its service area to control the degradation of the sewer systems and curtail infiltration and inflow.
Capital Budget: A planned schedule of projects that acquire or improve land, waters, property or facilities to enhance sewerage services in the MMSD’s service area;
Clean Water Act: The primary Federal law governing water pollution. Passed in 1972 and amended in 1977 and 1987; was originally known as the Federal Water Pollution Control Act.
Clean Water Fund Loans: This program provides low-interest loans for the construction of wastewater treatment facilities, nonpoint source pollution projects and estuary projects.
Conveyance and Storage Asset System: A series of sewers, manholes, pumping facilities, and force mains, which carry wastewater from residences, commercial establishments, public buildings, institutions, and industrial plants. It terminates at a treatment plant. Overflow sites are considered a part of this system.
Combined Sewer (CS): Sewers that carry both sewage and stormwater runoff.
Combined Sewer Overflow (CSO): An event in which flow in the Conveyance and Storage Asset System serving the combined sewer service area passes from an intercepting structure to a diversion structure, and then through an overflow site to a receiving water (stream, river or lake).
Combined Sewer Service Area (CSSA): Area of the region served by combined sanitary water and stormwater municipal sewers.
Comprehensive System Model (CSM): A hydraulic model that routes sewer flows through a detailed pipe network to account for metropolitan interceptor sewer capacity as well as flow attenuation and timing. Used to determine sanitary sewer overflow volumes and frequency.
Commission: MMSD commissioners’ primary duties are to establish and enforce MMSD policies in compliance with statutory responsibility. Of the 11 members, seven are appointed by the mayor of the City of Milwaukee, (subject to Common Council confirmation), and four are appointed by the Intergovernmental Cooperation Council, which includes elected officers of the municipalities within the MMSD service area other than the City of Milwaukee.
Consequence of Failure (COF): The impact/significance of the failure of an asset. Evaluated as part of risk assessment. The 2050 FP uses COF ratings of very low, low, medium, high, or very high. The COF is combined with the likelihood of failure rating to calculate the overall risk level (high, moderate, low, or minimal).
Conveyance and Storage Asset System: The system of assets, such as sewers, structures, pump stations and other facilities, designed and operated to intercept and carry sewage from local government collection systems to the water reclamation facilities.
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Critical Elevation (CE): An elevation, if exceed, at which free flow could be inhibited from the metropolitan interceptor system or local conveyance systems, possibly resulting in water in basement. The 2050 FP uses predefined critical elevations established by MMSD in conjunction with municipalities within its planning area.
Demand: The required use of an asset or asset system.
Design Flow: The average quantity of wastewater that a conveyance system or treatment facility is designed to handle, expressed in millions of gallons per day.
Driver: Critical social, economic, and environmental factors considered during the development of the 2050 FP.
Economic Efficiency Failure Mode: An analysis to determine whether an asset is producing the most economic benefit. One of the four failure modes that is assessed in the 2050 FP.
Effluent: (1) A liquid that flows out of a containing space; (2) Sewage, water or other liquid, partially or completely treated, or in its natural state, flowing out of a reservoir, basin or treatment plant, or part thereof.
Effluent Limitations: The maximum amount of a pollutant that a point source may discharge into a water body. They may allow some or no discharge at all, depending on the specific pollutant to be controlled and the water quality standards established for the receiving waters.
Failure Mode: The way in which an asset might fail. The following failure modes are analyzed in the 2050 FP: capacity, physical mortality, level of service, and economic efficiency.
Fecal Coliforms: Enteric bacteria, primarily Escherichia coli (E. coli), found in fecal matter and used as indicators of the presence of pathogenic bacteria.
Force Mains: Pipes downstream from a pumping station used to convey wastewater under pressure against the force of gravity.
Foundational Goal (FG): Overarching goal of an organization or utility, that typically go above and beyond regulatory guidelines and permit requirements.
Future Conditions: Used when establishing future demand; Established as the year 2035 to align with MMSD’s 2035 Vision and Strategic Objectives. The 2050 FP assumes that conditions in 2040 (the end of the regulatory planning period) will be substantially equivalent to conditions in 2035 because growth projections in the region historically have been more optimistic than actual growth; additionally, the assumption that 2040 conditions will be equal to 2035 conditions adds some justifiable conservatism to the projections.
Goal: A desired condition, usually defined in broad terms interpreted differently from a variety of perspectives.
Green Infrastructure (GI): An adaptable term used to describe an array of products, technologies, and practices, referred to as green infrastructure assets, that use natural systems – or engineered systems that mimic natural processes – to enhance overall environmental quality and provide utility services. As a general principal, Green Infrastructure techniques use soils and vegetation to infiltrate, evapotranspirate, and recycle stormwater runoff.
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Green Infrastructure (GI) Asset System: The collection of green infrastructure assets.
Hydraulic Grade Line (HGL): The profile of water streaming in an open channel or a pipe streaming in part full. When a pipe is under pressure, the pressure-driven review line is the level to which the water would ascend to in a little, vertical tube associated with the pipe.
Impervious Surface: Any pavement or structural element including, but not limited to, roofs and paved roads, driveways, and parking lots that prevents rain, surface water runoff, or melting snow from infiltrating into the ground below. Lack of infiltration can increase surface runoff and contribute to flood risk and pollutant transport.
Infiltration and Inflow (I/I): A combination of infiltration and inflow wastewater volumes in sewer lines, without distinguishing the source.
Infiltration: The groundwater that enters a sewer system through leaks in the pipes. Infiltration does not include, and is distinguished from, inflow.
Inflow: The water, typically during a wet weather event, that enters a sewer system through improper connections, such as downspouts and groundwater sump pumps.
Influent: The wastewater entering the treatment plants.
Inline Storage System (ISS): The ISS provides relief to the Metropolitan Interceptor Sewer MIS system during extreme wet weather periods by allowing excess flows from the MIS to be diverted to the ISS in both the separate sewer service and the combined sewer service areas. The excess flow is stored in the ISS until water reclamation facility capacity is available.
Interceptor: Large sewers that collect wastewater from local sewer systems and convey it to a water reclamation facility.
Jones Island Water Reclamation Facility (JIWRF): One of MMSD’s two wastewater treatment plants that, along with South Shore Water Reclamation Facility, treat the wastewater in the Conveyance and Storage Asset System before discharging the effluent into Lake Michigan. JIWRF is located just south of downtown Milwaukee.
Key Performance Indicator: Performance indicators identified by MMSD that demonstrate how effectively the organization is achieving key business objectives.
Lateral: The part of the horizontal piping of a drainage system that extends from the end of a building drain and which receives the building discharge and conveys it to the sewer system.
Landfill: Engineered burial of refuse or sludge.
Level of Protection (LOP): Also referred to as a recurrence interval. The average time or estimated average time between events. For the 2050 FP, a 5-year level of protection (20 percent probability of occurrence per year) against the occurrence of a separate sewer overflow was calculated.
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Level of Service: The quality of a given service. Organizations evaluate level of service by defining level of service targets, which are the level of service goals for defined performance indicators. One of the four failure modes assessed in the 2050 FP. For the 2050 FP, MMSD identified the following level of service categories: permit requirements, energy, environmental improvements, fiscal responsibility, management effectiveness, safety, and customer service/communication/employee development.
Level of Service Failure Mode: An analysis to determine whether an asset fails to meet a defined level of service. One of the four failure modes that is assessed in the 2050 FP.
Likelihood of Failure (LOF): The probability that a failure will occur. Evaluated as part of the risk assessments. For the 2050 FP, LOF ratings were established based on the expected timeframe in which a risk is likely to occur. The LOF is combined with the consequence of failure rating to calculate the overall risk level (high, moderate, low, or minimal).
Long-Range Finance Plan: A 6-year plan that MMSD updates annually that includes the capital costs and implementation schedules for capital projects. Used to update the annual Operations and Maintenance and Capital Budgets.
Material Capital Repair or Replacement (MCRR): Term used by Veolia Water Milwaukee for the projects that they implement.
Metropolitan Interceptor Sewers (MIS): Portion of the collection and transportation system, which receives wastewater from municipal sewer systems and conveys the wastewater to the point of treatment and are owned and maintained by the MMSD. An MIS is designed to have a limited number of connections for receiving wastewater from the municipal sewer systems.
Milorganite®: An organic nitrogen fertilizer produced from heat-dried waste-activated sludge that is an excellent lawn and turf, non-burning, slow release fertilizer.
Municipality: A primarily urban political unit having corporate status and usually powers of self-government.
Operations and Maintenance Budget: Annual budget for activities related to controlling, operating, managing, and maintaining the assets owned by MMSD.
Operations and Maintenance and Capital Budgets: On an annual basis, MMSD publishes a report documenting the capital and annual operation and maintenance budgets for existing MMSD programs and projects. The information used in the 2050 FP is from the 2020 Operations and Maintenance and Capital Budgets, referred to as the 2020 Annual Budgets.
Operation and Maintenance (O&M) Manuals: Procedures for operation and maintenance of equipment and processes.
Outfall: The point or location where an overflow occurs; sometimes referred to as overflow site.
Overflow: An event during which sanitary sewers, intercepting sewers or main sewers can discharge a portion or all of their flow by gravity into a receiving body of surface water to alleviate surcharging of intercepting or main sewers.
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Overflow Site: The point or location where an overflow occurs; sometimes referred to as overflow location or outfall.
Peak Flow: The maximum volume of effluent expected to enter a conveyance or treatment system over a given time period. Treatment systems are designed based on an estimate of the rate of peak flow to average flow for different segments of the system.
Performance Indicator: An asset management tool that is used to evaluate asset performance to determine if an organization’s desired level of service is being met;
Physical Mortality Failure Mode: An analysis to determine whether assets have physically failed or become obsolete due to lack of repairability. One of the four failure modes that is assessed in the 2050 FP.
Planning Area: Additional sewered areas outside of the MMSD service area that could be serviced by the MMSD in the future.
Policies: A condition established by authority. Unlike a restraint, the condition can be changed if the authority is convinced to change it.
Preliminary Treatment: The first stage of wastewater treatment that removes debris, sand, grit and fine particles through use of bar screens, grit changes and sedimentation tanks.
Primary Treatment: The process following preliminary treatment at the water reclamation facilities that allows solids to settle, thicken, and be removed. Primary effluent goes on to secondary treatment. The sludge is removed for processing by anaerobic digestion.
Private Property Infiltration and Inflow (PPI/I): Inflow and Infiltration from laterals on private property.
Public: Individuals or representatives from organizations or interest groups that have a strong interest in the MMSD’s work and policies (derived from U.S. EPA).
Pumping Station: An installation designed to lift sewage to a higher elevation and convey it through force mains to gravity flow points located relatively long distances from the pumping station.
Recurrence Interval: Also known as level of protection. The average time or estimated average time between events.
Ratepayer: The user of the MMSD’s water reclamation and flood management services, who pays fees (property tax levy, non-member billings, and user charge billings) that, along with issued bonds, federal and state aid and state loans, fund the Operations and Maintenance and Capital Budgets.
Regulatory Guideline: The legal or statutory guideline that the assessments were compared against to identify a risk.
Relief Sewer: A sewer added to bypass projected flow in excess of the flow that the existing sewer can effectively carry.
Risk: A situation that exposes an organization to danger, harm, or loss.
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Risk Level: Calculated based on the likelihood of failure and consequence of failure. The 2050 FP uses the following risk level categories: high, moderate, low, minimal.
Risk Matrix: A matrix used during risk assessments that provides a visual of the level of risk by considering the likelihood of failure against the consequence of failure.
Risk Register: A tool in asset management, a risk register is the documentation of the identified risks of failure identified during a risk assessment. Using consequence of failure and likelihood of failure ratings, each identified risk in a risk register is assigned a risk score of high, moderate, low or minimal. Each asset system has its own risk register.
Rules and Regulations: Relating to definitions, construction, maintenance of sewers; user charges; and disposal of wastes.
Separate Sewer Overflow (SSO): Wastewater that flows out of a sanitary sewer (or lift station) as a result of flows exceeding the hydraulic capacity of the sewer or stoppages in the sewer. SSOs exceeding hydraulic capacity usually occur during periods of heavy precipitation or high levels of runoff from snow melt or other runoff sources. Is an unintentional release of sewage from a collection/sewer system of untreated or partially treated sewage before it reaches the treatment plant.
Sanitary Sewer: A pipe or conduit (sewer) intended to carry wastewater or water-borne wastes from homes, businesses, and industries to the water reclamation facility.
Secondary Treatment: Biologically removes dissolved solids and pollutants from the water by means of the activated sludge process.
Separate Sewer (SS): A sewer system in which sanitary sewers carry domestic, commercial and industrial sewerage, and stormwater is carried in a separate sewer.
Separate Sewer Overflow (SSO): An event in which flow in the Conveyance and Storage Asset System serving the separate sewer service area passes from an intercepting structure to a diversion structure, and then through an overflow site to a receiving water (stream, river or lake).
Separate Sewer Service Area (SSSA): Area of the region served by separate municipal sewers.
Service Area: The area served by MMSD’s water reclamation facilities.
Sewage: Wastewater flow from residential, commercial, and industrial establishments, which flows through pipes to a treatment facility.
Sewer or Sanitary District: A sewer district is either a semiautonomous governmental unit whose purpose is the provision of sewerage, or a special assessment district within which sewerage facilities are provided to residents.
Sewerage: The system of sewers and physical facilities employed to transport, treat, and discharge sewage.
Simplified System Model (SSM): A hydraulic model used to determine levels of protection of the inline storage system and water reclamation facilities under various conditions (e.g., flow, population, land use, precipitation,
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etc.). SSM used to determine combined sewer overflow probability of recurrence, combined sewer overflow volume, and overall wastewater volumes.
Sludge: The accumulated settled solids deposited from sewage or industrial wastes, raw or treated, in tanks and basins, and containing more or less water forming a semi-liquid mass.
South Shore Water Reclamation Facility (SSWRF): One of MMSD’s two wastewater treatment plants that, along with Jones Island Water Reclamation Facility, treat the wastewater in the Conveyance and Storage Asset System before discharging the effluent into Lake Michigan. SSWRF is located in Oak Creek.
Southeastern Wisconsin Regional Planning Commission (SEWRPC): The official areawide planning agency for the southeastern region of Wisconsin, serving Milwaukee, Ozaukee, Racine, Kenosha, Washington, Walworth and Waukesha counties. The commission is made up of 21 Commissioners, three from each of the seven counties. SEWRPC provides regional approaches for addressing environmental issues such as flooding, air and water pollution, natural resources deterioration and changing land use.
Southeastern Wisconsin Watersheds Trust, Inc. (SWWT): A voluntary, non‐taxing partnership of independent government units, special purpose districts, other organizations, and individuals to achieve cooperation and collaboration within Greater Milwaukee Watersheds, also known as “Sweet Water;”
Standard: A degree of quality regarded as desirable and necessary.
Storm Sewer: A conduit that collects and transports rain and snow runoff back to the surface water. In a separate sewerage system, storm sewers are entirely separate from those carrying domestic, commercial and industrial wastewater.
Technical Memorandum (TM): A document that is specifically targeted to technically capable persons, such as practicing engineers or engineering managers, who are interested in the technical details of a project or task. Technical memoranda usually are brief and cover only a single topic.
Technology: Potential tools or actions that could be implemented to address a risk of failure. The science and means of specific processes that pertain to fields of knowledge.
Total Suspended Solids (TSS): A water quality measurement of the dry-weight of suspended solids particles trapped by a filter. Suspended solids are small solid particles which remain in suspension in sewage that contribute to turbidity and that resist separation by conventional means. The examination of TSS and the biochemical oxygen demand test constitute the two main determinations for water quality, performed as wastewater treatment.
Technical Advisory Team (TAT): A cooperative effort with MMSD staff and members of the 28 municipalities served by MMSD. The group also includes representatives of the realtors and builders associations, the Wisconsin Department of Natural Resources, Milwaukee County, and the Southeastern Wisconsin Regional Planning Commission. Provides advisory level input for the development of MMSD projects, programs and initiatives.
Triple Bottom Line (TBL): The economic, social, and environmental drivers that impact MMSD’s asset systems; A framework allows organizations to evaluate performance in a broader perspective to create greater business value.
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United States Environmental Protection Agency (U.S. EPA): The federal agency responsible for regulating water quality and the Federal Clean Water Act.
Utility: An organization supplying the community with electricity, gas, water, or sewerage.
Veolia Water Milwaukee, LLC (Veolia): The contract operator of the MMSD’s Conveyance and Storage !sset System and the Water Reclamation Facilities and Biosolids Asset System, beginning in 2008.
Waste Activated Sludge (WAS): Settled, activated sludge that is not returned to the process to “seed” incoming wastewater but is drawn off “wasted;” !ll W!S at the Jones Island Water Reclamation Facility and as much WAS as possible at the South Shore Water Reclamation Facility is heat dried to produce Milorganite®. At the South Shore Water Reclamation Facility, WAS can also be anaerobically digested.
Waste Load Allocations: Distribution of total “pollutant load” permitted on a particular water body among the various dischargers to that water body.
Wastewater: Wastewater entering a collector sewer and containing contaminants resulting from human activity, primarily those generated by biological functions.
Water in Basement: Water that enters into a building’s basement through either backing up of the building lateral; sump pump overflowing, window wells, or cracks in the walls or floors.
Water Quality Initiative: A term, developed by MMSD, most often to describe the combined planning effort that produced MMSD’s 2020 Facilities Plan and the Southeastern Wisconsin Regional Planning Commission’s Regional Water Quality Management Plan Update.
Water Quality Standards: Water quality standards are provisions of state, territorial, authorized tribal, or federal law approved by the U.S. EPA that include designated uses, criteria, and antidegradation standards. They provide numeric and narrative criteria that can be used to evaluate conditions, determine progress, and assess compliance with state requirements.
Water Reclamation Facility: A facility that treats wastewater to meet water quality standards before discharge to a local water body.
Water Reclamation Facilities and Biosolids Asset System: A system of assets, such as equipment and structures, that treat wastewater and process the resulting biosolids that are removed from wastewater.
Watercourse and Flood Management Asset System: A system of assets, such as open channels, culverts, trash racks, and flood management structures, on all streams for which MMSD has jurisdictional flood management authority.
Watercourse System Maintenance Plan: System-wide plan that will monitor all watercourses within MMSD jurisdiction.
Watershed: (1) The area of land where all of the water that drains off of it goes to the same place; watersheds come in all shapes and sizes. They cross county, state, and national boundaries. (U.S. EPA) (2) The contributing land area confined by topographic divides that drain into a lake or river. Also called catchment area, drainage area, or river basin and expressed in acres or square miles.
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Wet Weather Peak Flow Management Program (WWPFMP): A program managed by MMSD to limit peak wet weather flows from the municipal sewer systems served by MMSD into the MMSD conveyance system to levels at or below the performance standards listed in Chapter 3 of MMSD’s Rules;
Wisconsin Department of Natural Resources (WDNR): Regulates municipal and industrial operations that discharge wastewater to surface water or groundwater through the Wisconsin Pollutant Discharge Elimination System permit program. Is the regulating authority to which MMSD must submit its facilities plan.
Wisconsin Pollution Discharge Elimination System (WPDES): Used by the Wisconsin Department of Natural Resources to regulate sewers and wastewater treatment plants.
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2050 Facilities Plan – Executive Summary ES.1 OVERVIEW
The Milwaukee Metropolitan Sewerage District (MMSD) is a state-chartered governmental agency that provides water reclamation and flood management services for 28 municipalities with a population of about 1.1 million people in the greater Milwaukee area; this is referred to as the MMSD service area, as presented in Figure ES-1.
MMSD developed the 2050 Facilities Plan (2050 FP) to comply with its Wisconsin Department of Natural Resources wastewater discharge permit and with Wisconsin Administrative Code, including Chapter NR 110. [1] Additionally, the 2050 FP provides an outline to help MMSD meet its 2050 Foundational Goals, which cover other goals and requirements and include projects that address Commission policy and rules established by MMSD, projects that help to improve regional water quality and reduce energy usage, and projects that are designed to save MMSD money in the long term.
The regulatory planning period has been established as 2020 to 2040, with extended planning to 2050 to meet the 2050 Foundational Goals. The recommended projects and plans outlined in the 2050 FP address identified potential risks for the MMSD service area as well as areas beyond the MMSD service area, referred to as the 2050 FP planning area (also shown in Figure ES-1).
The purpose of a facilities plan is to document an organization’s existing facilities. A facilities plan also identifies current and future needs and provides a recommended plan to implement projects and programs to address those needs. Recommended plans are based on the needs that are known as well as needs projected for the future based on historical trends. As a result, the recommended plan is a roadmap, but needs to be flexible.
The governing principles for the development of MMSD’s 2050 FP came from MMSD �ommission direction, including MMSD’s 2035 Vision [2], which reinforces MMSD’s commitment to continue its work as a utility of the future by transforming itself:
“MMSD protects public health and the environment through world-class, cost-effective water resource management, leadership, and partnership1”
The following overarching foundational goals (referred to as 2050 Foundational Goals) guided the development of the 2050 FP:
• Change MMSD from an organization that impacts the environment to an organization that benefits the environment
• Incorporate new technologies and operational improvements to minimize MMSD’s financial burden on ratepayers
• Integrate green infrastructure into all facets of development and redevelopment
• Support urban biodiversity activities within the region
• Provide adaptive leadership to climate change and the other drivers listed above
1 https://www.mmsd.com/application/files/6315/4654/9635/2019_Operations_Maintenance_and_Capital_Budgets.pdf
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FIGURE ES-1: 2050 FP PLANNING AND SERVICE AREAS
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The implementation plan presented in the 2050 FP will help to provide infrastructure stability, operational assurance, and impact the following key performance indicators:
• Increase green infrastructure from 40 million gallons (MG) to 740 MG by 2035
• Increase renewable energy use from 33 percent to 60 percent
• Maintain CSO frequency at 3.25 events per year with future projected increase in flows
• Add all new recommended projects to address Baseline Conditions during the short term (2021 to 2025) to the 2020 to 2025 long-range finance plan without any additional impacts to ratepayers over and above those presented in the 2020 Annual Budgets
The 2050 FP implementation plan to address immediate risks in the short term (2021 to 2025) is estimated to cost $79.6 million. 2 The cost to implement new projects and programs to address all potential risks through the year 2050 is $2,369.9 million3 if projected flow and wasteload growth is realized. These costs represent new projects and programs over and above the projects and programs already in the 2020 to 2025 long-range finance plan.
The following four major asset systems are assessed in the 2050 FP:
Conveyance and Storage Asset System: This system is comprised of interceptor sewers, near surface collector systems, inline storage, and remote storage that convey and store wastewater and combined wastewater and stormwater for the region.
Water Reclamation Facilities and Biosolids Asset System: Wastewater within MMSD’s service area is reclaimed at two facilities: The Jones Island Water Reclamation Facility (JIWRF) and the South Shore Water Reclamation Facility (SSWRF). MMSD processes biosolids at JIWRF into a fertilizer product called Milorganite® and into a gas used for energy at SSWRF.
Watercourse and Flood Management Asset System: The Watercourse and Flood Management Asset System includes MMSD flood risk reduction work on streams for which MMSD has jurisdictional flood management authority within these six watersheds: Kinnickinnic River, Lake Michigan, Menomonee River, Milwaukee River, Oak Creek, and Root River.
Green Infrastructure Asset System: Assets include rain gardens, wetlands, stormwater trees, green roofs, bioswales, porous pavement, native landscaping, rainwater catchments, and soil amendments. 4
Where a risk applies to more than one asset system, it is considered a ‘systemwide’ risk and is assessed
from a systemwide standpoint.
2 Details provided in 2050 FP Financing Plan and Impact to Ratepayers subsection of ES.6, Implementation Plan.
3 Details provided in 2050 FP Implementation Plan subsection of ES.6, Implementation Plan.
4 In general, MMSD does not outright own the green infrastructure assets included in the 2050 FP, but typically provides funding assistance to public and private entities for their construction and has maintenance oversight responsibility for a period of time after their construction. MMSD maintains an ownership interest in green infrastructure it funds via a conservation easement or covenant. MMSD has also identified other green infrastructure, such as greenways; green alleys, streets, and parking lots; and removal of structures/pavement. These assets are made up of other GI assets; therefore, they are not tracked separately.
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History of Facilities Planning at MMSD
MMSD has a long tradition of facilities planning guided by federal and state requirements. Section 201 of the federal Clean Water Act requires that all water reclamation facilities have a plan to determine the control and treatment requirements needed to meet federal water quality goals. Section 208 of the Clean Water Act identifies the items that a plan should, at a minimum, include to be approved as an areawide waste treatment management plan. [3] The requirements of Clean Water Act Section 208 have been approved by the state of Wisconsin and included in Wisconsin Administrative Code Chapter NR 110. [1]
Consistent with state regulations, to address MMSD planning area needs and provide responsible pollution abatement, MMSD historically has conducted facilities planning at 10-year intervals with a 20year planning horizon.
1. In response to the Clean Water Act amendments and two legal actions, the Milwaukee Water Pollution Abatement Program was initiated in 1977. The original Master Facilities Plan, which defined the goals of the Milwaukee Water Pollution Abatement Program, was adopted by the MMSD Commission in 1980 and approved in 1981. The construction work, which was completed in 1996, was designed to meet MMSD’s needs through 2005.
2. In 1998, MMSD completed the 2010 Facilities Plan to address MMSD’s wastewater conveyance, storage, and treatment needs through 2010.
3. The 2020 Facilities Plan, completed in 2007, used a watershed approach to address needed improvements through the year 2020.
ES.2 ALIGNMENT WITH REGIONAL AND OTHER MMSD ACTIVITIES
It is important that a facilities plan is integrated both across the region and internally within an organization. The 2050 FP supports integrated regional planning decisions across southeastern Wisconsin that will allow the planning area and broader region to thrive economically and environmentally. To achieve these goals, the 2050 FP has been developed in alignment with and support of several regional plans and activities as well as with MMSD’s organizational plans and activities, including asset management, ongoing planning, long-term financial planning and budgeting, as well as other projects, as outlined in Chapter 2.
Coordination with MMSD Asset Management Planning Process
The 2050 FP uses elements of an asset management approach to direct the efficient management of MMSD’s infrastructure. This aligns with MMSD’s ongoing !sset Management Program that began as a component of MMSD’s �apacity, Management, Operation, and Maintenance (�MOM) Program that was initiated in 2007. The asset management approach is based on effective planning, supported by sound data, and is reliant on an understanding of asset risk and service delivery.
The 2050 FP was developed based on evaluations and assessments to identify risks to meeting level of service targets as defined through MMSD’s asset management planning process. These risk assessments used a risk methodology that is based on the likelihood of an event happening and the consequences if the event does occur. This allows issues or risks to be compared on a consistent basis to identify significant risks that require further evaluation. The risk methodology evaluates risk against multiple service categories that MMSD strives to deliver: permit requirements, energy, environmental
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improvements, fiscal responsibility, management effectiveness, safety, and customer service / communication / employee development.
To support risk identification, the 2050 FP team conducted windshield surveys of equipment and infrastructure to document physical condition, developed a risk register to document identified risks, and created a business case evaluation tool to evaluate potential ways to reduce the risks.
The asset management planning process will be a significant input in the development of annual prioritized lists of capital, operations, and maintenance projects and provide recommendations on funding levels needed for various other programs that support asset management, such as the Private Property Infiltration and Inflow and Green Infrastructure Programs. MMSD’s intent is to assess risks and performance against identified performance indicator targets on a regular basis; targets also will be reviewed and updated as required. Concurrent with the 2050 FP process, MMSD is also developing a separate Asset Management Plan, the initial efforts of which are documented in the 2050 FP.
Although the risk assessments helped identify and inform decisions, the majority of the alternative analyses and the projects in the recommended plans were evaluated based on a more traditional triple bottom line assessment and did not use the asset management business case evaluation tool and risk optimization process.
Alignment with MMSD Long-term Financial Planning and Budgeting
MMSD budgets are driven by organizational financial goals and outside factors (political, social, and economic) that influence the financial resources available for both short-term asset needs and long-term planning purposes. To plan for long-term financial needs, MMSD annually develops a six-year long-range finance plan that includes capital costs for the current year, forecasted costs for the next five years, and future forecast costs for year seven and beyond. The long-term finance plan is used to prepared MMSD’s annual budgets.
The 2050 FP assumes that all committed activities (activities in construction, contracts in place, and other programs already funded) included in the December 2019 version of the 2020 to 2025 long-range finance plan will proceed. The 2050 FP implementation plan costs represent additional costs over and above those already in the 2020 to 2025 long-range finance plan. These new costs will be one input for the development of future long-range finance plans. In addition, the 2050 FP will allow for financial planning for the remainder of the regulatory planning period (2026 to 2040) as well as the long-range activities through 2050 to meet the 2050 Foundational Goals.
Other MMSD Efforts and Programs
The 2050 FP is aligned with MMSD’s organizational goals and 2035 Vision, which drive MMSD’s efforts and programs. The 2050 FP supports other MMSD organizational efforts and programs, such as the Strategic Plan, Regional Green Infrastructure Plan, Greenseams® and Working Soils®. Refer to Chapter 2 for details on these efforts and programs.
ES.3 OVERVIEW OF THE PLANNING PROCESS
The planning process for the 2050 FP had many steps and complexities. The approach to the 2050 FP, presented in Chapter 3, layered in triple bottom line goals and objectives to direct the efficient management of MMSD infrastructure. In the triple bottom line approach, an organization broadens its focus to consider not only its financial bottom line, but also the social and environmental aspects of any
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investment. Evaluating investments using this approach allows MMSD to identify and implement the overall highest value option (not solely based on the lowest cost).
Table ES-1 outlines the steps that were followed during the development of the 2050 FP.
TABLE ES-1: 2050 FP PLANNING PROCESS
Step Focus
Identify Level of Service Identify stakeholder needs and review expectations. Define level of service categories and align them with the triple bottom line measures. Identify performance indicators and key performance indicators.
Estimate Future Demand Establish demand for each asset system under the following conditions:
Baseline Conditions: most recent available data set used as a reference point to compare Future Conditions and Buildout Conditions projections.
Future Conditions: established as the year 2040, which is assumed to be substantially equivalent to conditions in 2035 to align with the 2035 Vision and Strategic Objectives document developed by MMSD.
Buildout Conditions: estimated future demand conditions when the 2050 FP planning area is built out.
Assess Existing Facilities and Risks !ssess existing facilities’ capacity, performance, and condition to identify risks that may impact MMSD’s ability to meet its future goals. Risks are grouped into one of four failure modes: capacity, physical mortality (useful life), level of service, and economic efficiency.
Conduct Alternative Analyses Analyze alternatives to address risks for each asset system. These analyses are grouped into risks to meeting regulatory/permit requirements within the 2020 to 2040 time period and risks to meeting the 2050 Foundational Goals. Each alternative analysis results in a recommended project.
Develop Recommended Plan to meet Regulatory/Permit Requirements
Identify recommended projects to meet regulatory and permit requirements within the 2020 to 2040 regulatory planning period established for the 2050 FP.
Identify Recommendations to Address 2050 Foundational Goals
Identify recommended projects that address 2050 Foundational Goals and discuss additional Foundational Goal issues.
Develop Implementation Plan Develop implementation plan for all recommended projects and programs, which includes the implementation schedule, associated capital and annual operation and maintenance costs, and an estimate of the financial impact on ratepayers (if any).
Figure ES-2 provides a high-level visualization of how the facilities planning process resulted in the development of the implementation plan.
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FIGURE ES-2: 2050 FP PLANNING PROCESS
ES.4 KEY FINDINGS
Future Demand
Future demand projections have a direct impact on asset system performance and provide a basis for the risk of failure as part of the assessment of existing facilities and risks. The identification of risks to existing facilities serves as an essential tool to help an organization prioritize its investments and identify the best practices to mitigate risk.
Key findings regarding future demand:
• The average dry weather flow in the Conveyance and Storage Asset System is projected to increase by 29.9 percent under Future Conditions, based in part on a projected 54 gallons per capita per day. Under Future Conditions, annual flow to JIWRF is projected to increase by 11 percent and to SSWRF by 32 percent. Projects identified to address projected increases in flow would only be implemented if projected growth is realized.
• The changes in the 2019 WDPES permit and anticipated changes in future WDPES permits that resulted in recommended new projects include the total suspended solids and phosphorus
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wasteload allocation effluent limits at JIWRF and anticipated future E. coli disinfection limits at both water reclamation facilities. 5
Risks
The assessment of existing facilities identified several key findings regarding risks, organized by failure
mode:
• Capacity: Future demand projections will result in the risk of exceeding capacity in over 21 miles
of pipe in the Conveyance and Storage Asset System under a 5-year level of protection (LOP)6
and in 17 unit processes in the Water Reclamation Facilities and Biosolids Asset System. There
were no capacity risks identified in the Watercourse and Flood Management and Green
Infrastructure Asset Systems.
• Physical Mortality: The risk of failure due to an asset reaching the end of its useful was
identified for a significant number of assets in the Conveyance and Storage Asset System (4,400
assets out of 9,900 assets reviewed) and the Water Reclamation Facilities and Biosolids Asset
System (9,900 assets out of almost 12,000 assets reviewed). Four high-level physical mortality
risks were identified in the Watercourse and Flood Management Asset System. Physical
mortality risks for the Green Infrastructure Asset Systems are projected to increase dramatically
in years 2035 to 2050 as the number of installed green infrastructure assets increases.
• Level of Service: The key risk identified for the Conveyance and Storage Asset System is the
failure to achieve goals for infiltration and inflow reduction. The key risks identified for the
Water Reclamation Facilities and Biosolids Asset System include meeting future WPDES E. coli
limits and meeting renewable energy goals. There are 65 risks identified for the Watercourse
and Flood Management Asset System, most of which are already being addressed through
operation and maintenance plans, inspections, and existing projects. Most of the risks identified
for the Green Infrastructure Asset System are associated with having an insufficient number of
assets to meet the goal of 740 MG of green infrastructure storage.
• Economic Efficiency: Limited data were available to calculate economic efficiency at the asset
level. The risks that were able to be identified based on institutional knowledge are presented in
Chapter 5.
The details of the future demand projections are presented in Chapter 4 and the details of the
assessment of existing facilities and risks are presented in Chapter 5.
5 There is an inherent uncertainty in WPDES permit effluent limit assumptions as they can change in the future. The 2050 FP does not include assumed limits for parameters, such as total nitrogen (TN), for which the WDNR did not have any specific information regarding potential future limits.
6 The 5-year LOP is defined as the probability of impacting a critical elevation and/or an occurrence of a separate sewer overflow (SSO) during the 5-year peak flow. MMSD intends to consider all viable opportunities to cost-effectively achieve a higher than 5-year LOP during design of the recommended projects to address identified risks.
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ES.5 RECOMMENDED PLANS
The 2050 FP presents two recommended plans: one for recommended projects to meet regulatory guidance and permit requirements, discussed in Chapter 7, and one for recommended projects to meet MMSD’s 2050 Foundational Goals, discussed in Chapter 8.
The recommended plans also outline projects and programs that are already included in existing budgets that will support the 2050 FP by addressing some of the identified potential risks. These existing projects and programs, presented in Chapter 7 and Chapter 8, are all committed MMSD activities (activities in construction, contracts in place, and other programs already funded). Because these costs are already included in MMSD budgets, they do not represent new costs; therefore, the costs are not included in the recommended plans.
Recommendations to Meet Regulatory Guidelines and Permit Requirements
Recommended new projects and programs to meet regulatory guidelines and permit requirements are presented for the Conveyance and Storage, Water Reclamation Facilities and Biosolids, and Green Infrastructure Asset Systems, discussed in more detail in Chapter 7. No new projects were identified to meet regulatory guidelines and permit requirements at the systemwide level and all recommended Watercourse and Flood Management projects are already included in the 2020 to 2025 long-range finance plan.
The recommended plan to meet regulatory guidelines and permit requirements includes the following:
1. Recommended new MMSD projects and programs to meet Baseline Conditions. Table ES-2 shows the costs for new projects and programs that are recommended even if there is no growth in the MMSD planning area. These projects can be grouped into the following failure modes:
• $40.7 million in projects to address capacity risks, with an increase in annual operation and maintenance costs of $2.1 million after the projects are implemented.
• $4.7 million in projects to address physical mortality risks, with no anticipated increase in annual operation and maintenance costs. This cost includes $2.6 million to conduct physical mortality evaluations but does not include the costs to repair or replace any equipment. The actual amount needed to address physical mortality risks will be determined in the recommended physical mortality evaluations.
• $42.4 million in projects to address level of service risks, with an increase in annual operation and maintenance costs of $1.1 million after the projects are implemented.
2. Recommended new MMSD projects and programs to meet Future and Buildout Conditions. Table ES-2 also lists the new projects and programs that are recommended to address risks that are projected to occur in 2026 or later and those to address risks due to projected flow and wasteload growth. These recommendations have more flexible implementation dates as the projects will only be implemented if projected flow and wasteload growth is realized or if additional evaluations provide a change in assumptions.
• $247.2 million in projects to address capacity risk due to future growth, with an increase in annual operation and maintenance costs of $1.2 million after the projects are implemented.
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• No specific projects have been identified to address physical mortality risks under Future and Buildout Conditions. Recommended physical mortality evaluations under Baseline Conditions are anticipated to provide updated estimated physical mortality costs for years 2026 and beyond.
• $532.8 million in recommended projects to address level of service risks, with an increase in annual operation and maintenance costs of $0.4 million after the projects are implemented.
TABLE ES-2: COSTS FOR RECOMMENDED NEW PROJECTS AND PROGRAMS TO MEET REGULATORY GUIDELINES AND PERMIT REQUIREMENTS1
Asset System Capital Costs ($ millions)2
Incremental Change in Annual Costs ($ thousands)2,3
Present Worth ($ millions)2,4
Baseline Conditions
Conveyance and Storage $44.7 $13.9 $44.9
WRF and Biosolids $13.1 $3,150.0 $58.3
Green Infrastructure $30.0 $0.0 $30.0
Baseline Conditions TOTAL $87.8 $3,163.9 $133.2
Future/Buildout Conditions
Conveyance and Storage $387.7 $85.9 $388.5
WRF and Biosolids $79.7 $1,525.0 $108.1
Green Infrastructure $312.6 $0.0 $312.6
Future/Buildout Conditions TOTAL $780.0 $1,610.9 $809.2
TOTAL $867.8 $4,894.8 $944.1 1) Additional details for these projects are presented in Chapter 7. 2) These costs represent December 2019 dollars at a projected Milwaukee ENR of 14,700. Costs presented are
facilities planning-level estimates that have a range of accuracy from +50 percent to -30 percent, as established AACE International for Class 4 (study or feasibility) estimates.
3) Costs represent an incremental change in operation, maintenance, and other annual costs (such as labor) to be added to future annual budgets once a project is implemented.
4) Costs represent annual costs, equipment replacement costs, and salvage value as appropriate over 20 years, discounted by 3.375 percent, plus capital costs.
The recommended plan to meet regulatory guidelines and permit requirements also notes several committed projects and existing programs that will help to meet identified potential risks, as discussed in Chapter 7. Because the costs for these projects and programs are already included in existing budgets, the costs are not included in the recommended plan.
Recommendations to Meet 2050 Foundational Goals
Recommended new projects and programs to meet 2050 Foundational Goals address non-permit requirements and include projects that address Commission policy and rules established by MMSD, projects that help to improve regional water quality and reduce energy usage, and projects that are
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designed to save MMSD money in the long term, discussed in more detail in Chapter 8. Recommended new projects and programs are presented for the Water Reclamation Facilities and Biosolids Asset System and Green Infrastructure Asset System as well as those at the systemwide level. All recommended projects for the Conveyance Asset System are already included in the 2020 to 2025 long-range finance plan. There are no additional recommended Watercourse and Flood Management Asset System projects to meet 2050 FP Foundational Goals.
As with the recommended plan to meet regulatory guidelines and permit requirements, the recommended plan to meet 2050 Foundational Goals includes three types of recommendations, all of which are identified to address level of service risks:
1. Recommended new MMSD projects and programs to meet Baseline Conditions. Table ES-3 lists the new projects that are recommended even if there is no growth in the MMSD planning area, which are estimated to have a total capital cost of $235.8 million and a reduction in annual operation and maintenance costs of $9.1 million once projects are implemented.
The vast majority of the capital costs – $214.6 million – is to replace the dryers at JIWRF, which also addresses the permit requirement to “properly operate and maintain all facilities and systems” (2019 WPDES Permit Section 9.2.10). Implementing this project is estimated to reduce annual operation and maintenance costs by $8.2 million due to the significant annual repair and replacement costs associated with the existing drying system.
2. Recommended new MMSD projects and programs to meet Future and Buildout Conditions. Table ES-3 also lists the new projects that are recommended to meet 2050 Foundational Goals under Future/Buildout Conditions, which are estimated to have a total capital cost of $1,219.4 million and an increase in annual operation and maintenance costs of $4.6 million if all projects are implemented. These recommendations have more flexible implementation dates as the projects will only be implemented if projected flow and wasteload growth is realized or if additional evaluations provide a change in assumptions.
The majority of the capital costs - $992.4 million – is to reduce combined sewer overflows through the use of high rate treatment at the water reclamation facilities, which also helps to address the permit requirement to have a maximum of six combined sewer overflows per year.
The recommended plan to meet 2050 Foundational Goals also notes several committed projects and existing programs that will help to meet identified potential risks, as discussed in Chapter 8. Because the costs for these projects and programs are already included in existing budgets, the costs are not included in the recommended plan.
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TABLE ES-3: COSTS FOR RECOMMENDED NEW PROJECTS AND PROGRAMS NEEDED TO MEET 2050 FOUNDATIONAL GOALS1
Name of Analysis Capital Cost ($ millions) 2
Incremental Change in Annual
Cost ($ thousands) 2,3
Present Worth ($ millions) 2,4
Baseline Conditions
WRFs and Biosolids $234.1 ($9,050.0) $99.7
Systemwide $1.7 $0.0 $1.7
Baseline Conditions TOTAL $235.8 ($9,050) $101.4
Future/Buildout Conditions
WRFs and Biosolids $1.6 $10.0 $1.8
Green Infrastructure $225.4 $4,599.1 $288.5
Systemwide $992.4 $0.0 $992.4
Future/Buildout Conditions TOTAL $1,219.4 $4,609.1 $1,282.7
TOTAL $1,455.2 ($4,440.9) $1,384.1 1) Additional details for these projects are presented in Chapter 8. 2) These costs represent December 2019 dollars at a projected Milwaukee ENR of 14,700. Costs presented
are facilities planning-level estimates that have a range of accuracy from +50 percent to -30 percent, as established AACE International for Class 4 (study or feasibility) estimates.
3) Costs represent an incremental change in operation, maintenance and other annual costs (such as labor) recommended to be added to future Annual Budgets once a project is implemented.
4) Costs represent annual costs, equipment replacement costs, and salvage value as appropriate over 20 years, discounted by 3.375 percent, plus capital costs.
In addition to these recommended projects, MMSD has identified several priority areas to help meet its 2050 Foundational Goals. These priority areas include issues that MMSD may need to consider in future facilities plans. They also include regulatory guidelines, permit requirements, goal changes, and programs that MMSD may consider implementing in the future. While the 2050 FP does not include any recommended projects for these priority areas, these future issues are noted to document background information on each area and provide initial guidance for existing technologies and practices to address these areas. Priority areas of support include the following:
• Information Technology Integration • Further Green all County Parks and Public Spaces • Climate Change Impacts
• Support TMDL Implementation • Emerging Technologies • Watershed-based Permitting Program • Tree Replacement
Considerations • Integrating Energy and GI KPIs in Conveyance
• Carbon Sequestration and WCFM • Emerging Contaminants • Resilience Plan Regional Integration
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ES.6 IMPLEMENTATION PLAN
The 2050 FP implementation plan outlines the implementation schedule, capital costs, and incremental increase in annual costs for the recommended new projects and programs that are over and above the costs already included in the 2020 Annual Budgets and the 2020 to 2025 long-range finance plan. Existing programs and committed projects that will help to reduce identified potential risks, as noted in Chapter 7 and 8, are assumed to be implemented as previously planned.
2050 FP Implementation Plan
The 2050 FP implementation plan contains the recommended new projects from both recommended plans, as shown in Figure ES-4.
FIGURE ES-4: RELATIONSHIP BETWEEN 2050 FP RECOMMENDED PLANS AND 2050 IMPLEMENTATION PLAN
Figure ES-5 shows the schedule for the 2050 FP implementation plan. Notes about the projects presented in the 2050 FP implementation plan:
• The following timeframes have been established:
o 2021 to 2025 – aligns with the 2020 to 2025 long-range finance plan, with the understanding that none of the recommended new projects will have been implemented before the completion of the 2050 FP by December of 2020
o 2026 to 2030 – efforts that will occur near-term, but after 2025
o 2031 to 2040 – efforts that will occur during the rest of the regulatory period (2020 to 2040)
o 2041 to 2050 – efforts that will occur beyond the regulatory period
• As noted previously, regulatory/permit costs for recommended new projects include $2.6 million for evaluations to further refine the estimated physical mortality costs, but do not include the estimated physical mortality costs identified in Chapter 6. Allowances in the 2020 to 2025 long-range finance plan are assumed to be adequate in the short term to cover capital repair and replacement needs until the physical mortality evaluations are completed, which will update the estimated physical mortality costs for years 2026 and beyond. Increases in physical mortality costs may require reassessment of the implementation of other projects, including those to address MMSD’s 2050 Foundational Goals.
• The incremental changes in annual O&M costs, presented in Section ES.5, would occur after the implementation of the new recommended projects and programs. The recommended timing of new projects presented in Figure ES-5 indicates that there would not be any changes to operation and maintenance budget forecast projections through 2025.
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FIGURE ES-5: 2050 FP IMPLEMENTATION PLAN
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Existing Projects that Support the 2050 Facilities Plan
In addition to the recommended new projects, a number of projects and programs included in existing budgets will support the 2050 FP by addressing some of the identified potential risks. These existing projects and programs, discussed in Chapter 7 and Chapter 8, are all committed MMSD activities (activities in construction, contracts in place, and other programs already funded). Because these costs are already included in MMSD budgets, they do not represent new costs. Therefore, those costs are not included in the recommended plans.
2050 FP Financing Plan and Impact to Ratepayers
The purpose of a financing plan is to help understand, in a general sense, the level of capital and annual O&M financing necessary to support a given capital improvement program. For the 2050 FP, a high-level analysis was conducted to evaluate the potential financial impact to ratepayers from capital and annual O&M costs as a result of implementing the recommended new projects. This section discusses the results of that analysis.
The expenditure for recommended new projects during 2021 to 2025 is estimated to be $79.6 million, which is recommended to be added to the 2020 to 2025 long-range finance plan. All other projects already in the 2020 to 2025 long-range finance plan are assumed to be implemented as planned.
To finance the 2050 FP implementation plan in the short term (2021 to 2025), capital costs for four existing allowance projects will be rescheduled from the years 2022 to 2023 to the years 2024 to 2025. This will allow the new recommended projects to address Baseline Conditions to be added to the 2020 to 2025 long-range finance plan without additional impacts to ratepayers over and above those published in MMSD’s approved 2020 Annual Budgets. Potential future increases will be determined when future annual budgets are developed. Impacts and financing for costs projected for the year 2026 and beyond were not determined due to inherent uncertainty in long-term projects.
Table ES-4 presents the following project capital costs:
• Costs to implement recommended new projects to Recommended new projects to meet Baseline Conditions through the year 2025. address Baseline Conditions during These costs are recommended to be added to the the short term (2021 to 2025) can be 2020 to 2025 long-range finance plan. added to the 2020 to 2025 long
• Full costs to implement recommended all new range finance plan without any projects to meet Baseline Conditions additional impact to ratepayers over (implementation is scheduled to extend past 2025 and above those presented in the for some projects). 2020 Annual Budgets.
• Costs for all new projects to meet Baseline and Future/Buildout Conditions, which will only be incurred if all projected flow and wasteload growth occurs.
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TABLE ES-4: ESTIMATED NEW PROJECT CAPITAL COSTS
Component
2050 FP Implementation Plan1,2
2020 to 2025 Long Range Finance Plan2,3
All New Projects
($ millions)
New Projects to Meet Baseline
Conditions ($ millions)
New Project Costs to be Added to Finance
Plan ($ millions)
Regulatory/Permit Requirements $867.8 $87.8 $61.2
2050 Foundational Goals $1,455.2 $235.8 $18.4
TOTAL CAPITAL COSTS $2,323.0 $323.6 $79.6
1) The capital costs presented for the 2050 FP implementation are the same as those presented in Figure ES-5, with additional details provided in Chapter 9.
2) These costs represent December 2019 dollars at a projected Milwaukee ENR of 14,700. Costs presented are facilities planning-level estimates that have a range of accuracy from +50 percent to -30 percent, as established AACE International for Class 4 (study or feasibility) estimates.
3) Capital costs to be added to the 2020 to 2025 long-range finance plan are for new projects to meet Baseline Conditions estimated to spent in the years 2021 to 2025.
Public Involvement and Revisions to the Recommended Plans
MMSD identified public involvement as a critical factor in meeting the Foundational Goals for the 2050 FP. External stakeholders were able to review the 2050 FP during the formal 30-day public review period held in June 2020.
Engagement of stakeholders is done for the purpose of improving the overall 2050 FP, reflecting the needs and expectations of municipalities, the general public, and regulators. Appendix 9C, Summary of Public Participation, documents the committees that were engaged, public events that were held, the public survey that was taken, and the written materials that were provided to engage external stakeholders in the development of the 2050 FP.
Based on public input during the formal review period, the following revisions were made to the recommended plans:
• Chapters 7, 8, 9, and the Executive Summary. Revisions made to be clear that although several committed projects and existing programs in MMSD’s 2020 !nnual �udgets and 2020 to 2025 long-range finance plan support the 2050 FP by addressing identified potential risks, they do not represent new costs because they are committed MMSD activities; therefore, those costs are not included in the recommended plans.
• Chapter 9 and Executive Summary. Text added to clarify that projects to address projected flow and wasteload growth will be implemented only if projected growth actually occurs.
Both WDNR and SEWRPC reviewed the draft 2050 FP. No revisions to the 2050 FP were required based on the SEWRPC comment letter dated December 10, 2020. Responses to WDNR comments were provided in a letter dated January 8, 2021. Responses to comments provided by WDNR during the regulatory review period did require revisions throughout the 2050 FP, summarized below:
• Future regulatory assumptions. Updates were made to note the inherent uncertainty in planning based on future regulatory assumptions.
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• User flows and wasteloads. User flows and wasteloads presented in Chapter 4 were reorganized and updated to include breakdowns for additional design parameters for use by designers in future projects when applying for Clean Water Fund Program financing.
• Future E. coli effluent limits. An additional review concluded that revisions were needed to the estimated costs associated with WRF R4, Meeting Future E. Coli Limits at JIWRF and SSWRF Analysis in Chapters 6, 7, and 9. This update results in an increase in the annual O&M costs projected for the recommended project (free chlorine disinfection).
• Wet weather capacity at JIWRF. An additional alternative was added to WRF FG8, JIWRF Wet Weather Capacity in Appendix 6B to evaluate full treatment. The re-evaluation of the capacity needed to meet the baseline CSO frequency determined that the recommended alternative (expand blending) does not appear to require additional effluent filtration and therefore capital and annual O&M costs under Future/Buildout Conditions were reduced accordingly.
ES.7 CONCLUSION
The 2050 FP identifies the projects and other actions required to meet regulatory and permit requirements through the 2020 to 2040 regulatory planning period and to addresses MMSD’s 2050 Foundational Goals through 2050. It outlines the critical social, economic, and environmental drivers that will influence MMSD’s future and provides a plan to protect the quality of the region’s water resources as well as to reliably and sustainably meet the needs of growth and redevelopment in a cost-effective manner without causing ratepayers to absorb unnecessary increases in fixed costs. Additionally, the 2050 FP supports integrated regional planning decisions across southeastern Wisconsin that allow the service area and broader region to thrive economically and environmentally.
The 2050 FP implementation plan will help MMSD to achieve these goals as it continues to work with regional partners to protect the region’s water resources. It is expected that the 2050 FP implementation plan will be amended over time as new information is developed and MMSD continues to implement its asset management program. For example, the asset management program is planning to refine the identified physical mortality costs for the Conveyance and Storage and the Water Reclamation Facilities and Biosolids Asset Systems. In addition, MMSD will monitor flows and wasteloads to the water reclamation facilities, regulations, facility conditions, wet weather peak flows, and other drivers to confirm the need for recommended projects (and the associated expenditures). When determining which projects will be selected for implementation and the schedule for implementation, MMSD will prioritize the projects using a risk management approach while balancing expenditures within the cash flow objectives of MMSD’s financing plan.
The 2050 FP implementation plan will need to be revised if the assumed projected changes do not occur. The schedule and financing plan may be revised each year as part of MMSD’s annual 6-year project capital cost long-range finance planning process during the period 2021 to 2040 as more precise project data and population and land use data become available. To ensure successful implementation of the recommendations in the 2050 FP, MMSD will continue to track and evaluate performance against operational goals as well as assess and manage risks by conducting risk assessments; tracking identified risks; and identifying proposed, planned, or ongoing actions to manage those risks.
As the recommendations in the 2050 FP are implemented, MMSD will continue to research emerging technologies and identify more cost-effective alternatives associated with recommended projects and additional opportunities to help meet 2050 Foundational Goals.
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The estimated short-term (2021 to 2025) financial impact is $79.6 million for recommended new projects to meet Baseline Conditions from 2021 to 2025. Rescheduling capital costs for four existing allowance projects from the years 2022 to 2023 to the years 2024 to 2025 will allow all new recommended projects to address Baseline Conditions during the short term to be added to the 2020 to 2025 long-range finance plan without any additional impact to ratepayers over and above those presented in the 2020 Annual Budgets. The remaining $244 million in capital costs for recommended new projects to meet Baseline Conditions will be incurred in years 2026 and beyond. The total estimated cost to implement all new recommended projects for Baseline, Future, and Buildout Conditions is $2,323.0 million. Projects for Future and Buildout Conditions will be implemented only if projected flow and wasteload growth and/or other assumptions about future conditions occur. Future long-range finance plan development will address year-to-year levels of recommended expenditures.
The 2050 FP gives MMSD a realistic implementation plan for serving both near-term and long-term growth, if/when it occurs. The actions outlined in the 2050 FP will help MMSD to continue to play a strong role in helping to improve the region’s water resources as it expands on its efforts to protect public health and the environment through world-class, cost-effective water resource management, leadership, and partnerships.
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ES.8 REFERENCES
[1] Legislative Reference Bureau, Wisconsin Administrative Code, Chapter NR 110, Sewerage Systems, Madison, WI: Legislative Reference Bureau, 2017.
[2] Milwaukee Metropolitan Sewerage District, "The Milwaukee Metropolitan Sewerage District's 2035 Vision and Strategic Objectives," MMSD, Milwaukee, WI, 2011.
[3] Senate and House of Representatives of the United States of America, "An Act to amend the Federal Water Pollution Control Act (Clean Water Act)," 92nd United States Congress, Washington D.C., 1972.
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Recommended