Final_Chapter_10CHAPTER TEN
PRIVATE UTILITIES
10.0 INTRODUCTION ___________________________________________ 1
10.1 POLICY BACKGROUND ____________________________________ 1
The Growth Management Act ____________________________________ 2
VISION 2040 ___________________________________________________ 2
Countywide Planning Policies ___________________________________ 2
10.2 REGULATORY AND LEGAL CONTEXT _______________________ 3
10.3 PUGET SOUND ENERGY ___________________________________ 3
General Location _______________________________________________ 3
Electric Plan ____________________________________________________ 3
Gas Plan _______________________________________________________ 5
10.4 TELECOMMUNICATIONS PLAN ____________________________ 5
Telephone System ______________________________________________ 6
Wireless Networks ______________________________________________ 6
Internet Service ________________________________________________ 7
Cable TV ______________________________________________________ 7
Proposed Improvements _________________________________________ 7
10.5 FIBER OPTIC NETWORK ___________________________________ 7
10.6 SOLID WASTE MANAGEMENT ______________________________ 8
10.7 MODERATE RISK WASTE MANAGEMENT ___________________ 9
10.8 GOALS AND POLICIES FOR CITY ACTION ___________________ 9
Map
Map X-1, Existing & Proposed Improvements to the Sub-
Transmission System
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10.0 INTRODUCTION
This chapter satisfies a Growth Management Act (GMA) requirement that cities prepare a
Private Utilities chapter (RCW 36.70A.070). The GMA requires the Federal Way
Comprehensive Plan (FWCP) to have internal consistency. This means that the Private
Utilities chapter must be fully coordinated with other chapters of the FWCP. This is
particularly important for Federal Way’s City Center and in the I-5/99 corridor where
new development and other land use change is anticipated in the near future.
WAC 365-195-320(1) requires a Private
Utilities chapter to include the general
location, proposed location, and capacity for
all existing and proposed utilities, including,
but not limited to, electrical lines,
telecommunication lines, and natural gas lines.
Each utility plan describes and analyzes
existing and proposed utility systems within
Federal Way and improvements necessary to
meet growing consumer demand. Information
used to develop the plan was provided by
private utilities. Private utility companies are
continually upgrading and expanding their
systems, therefore, maps quickly become
obsolete. However, Puget Sound Energy (PSE)
provided a map of their existing and proposed
electrical facilities as of 2012 (Map X-1). Plans
for water supply and sewer are found in the
Capital Facilities chapter of the FWCP.
The City sees the GMA requirement to prepare a Private Utilities chapter as an
opportunity to identify ways of improving the quality of services provided within the
City. The City will use this Private Utilities chapter to identify goals and develop policies
to ensure that: provision of utilities is properly coordinated with land use; utility
provision minimizes impacts upon public facilities such as roads; sustainable sources of
power generation are encouraged; and technological innovation is facilitated.
10.1 POLICY BACKGROUND
The GMA, VISION 2040, and the King County Countywide Planning Policies (CWPPs)
call for a full range of urban services in the Urban Growth Area (UGA) to support the
Regional Growth Strategy. They also state that facilities should be sited in ways to avoid
adverse social, environmental, and economic impacts. This Private Utilities chapter is
consistent with these goals and policies.
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The Growth Management Act
Goal No. 12 of The GMA refers to public facilities and services as follows:
Public facilities and services. Ensure that those public facilities and services
necessary to support development shall be adequate to serve the development
at the time the development is available for occupancy and use without
decreasing current service levels below locally established minimum standards.
VISION 2040
Key private utilities addressed in VISION 2040 include solid waste, energy, and
telecommunications. As the region plans for growth, conservation and improved
efficiencies in providing services are essential.
An overarching goal of VISION 2040 is to provide sufficient and efficient public services
and facilities in a manner that is healthy, safe, and economically viable. Multicounty
planning policies address conservation measures to increase recycling and reduce waste.
They also encourage more efficient use of renewable and alternative energy.
VISION 2040 also encourages improving infrastructure to support development and
maintain healthy and livable communities. Having reliable power and
telecommunications, along with other services and infrastructure, contributes to quality of
life and the region’s economic well-being. The following are VISION 2040 policies most
relevant to Federal Way:
MPP-PS-12: Promote the use of renewable energy resources to meet the
region’s energy needs.
MPP-PS-13: Reduce the rate of energy consumption through conservation and
alternative energy forms to extend the life of existing facilities and infrastructure.
MPP-PS-14: Plan for the provision of telecommunication infrastructure to serve
growth and development in a manner that is consistent with the regional vision
and is friendly to the environment.
Countywide Planning Policies
The 2012 King County Countywide Planning Policies (CWPPs) includes the following
overarching goal for private utilities:
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County residents in both Urban and Rural Areas have access to the public
services needed in order to advance public health and safety, protect the
environment, and carry out the out the Regional Growth Strategy.
The following CWPPs are most relevant to Federal Way:
PF‐13: Reduce the solid waste stream and encourage reuse and recycling.
PF‐14: Reduce the rate of energy consumption through efficiency and
conservation as a means to lower energy costs and mitigate environmental
impacts associated with traditional energy supplies.
PF‐15: Promote the use of renewable and alternative energy resources to help
meet the county’s long‐term energy needs, reduce environmental impacts
associated with traditional energy supplies, and increase community sustainability.
PF‐16: Plan for the provision of telecommunication infrastructure to serve growth
and development in a manner consistent with the regional and countywide vision.
10.2 REGULATORY AND LEGAL CONTEXT
Privately owned electrical, natural gas, and line telephone utilities are regulated by the
Washington Utilities and Transportation Commission (WUTC). Cellular telephone
communication companies are licensed by the Federal Communications Commission
(FCC). Cable television companies are regulated by the FCC and the Communications
Act of 1934, as amended. Private utilities must have a franchise agreement to place
utilities in the public right-of-way. Franchise agreements give each utility the non-
exclusive right to provide its category of service within the City.
10.3 PUGET SOUND ENERGY
General Location
PSE supplies electric and natural gas service within the entire limits of the City and
Potential Annexation Area (PAA). Existing facilities are depicted on Map X-1
Electric Plan
Federal Way is served mostly by Puget Sound Energy (PSE), a private electric utility
whose operation and rates are governed by the Washington Utilities and Transportation
Commission, the National Electric Reliability Corporation (NERC) and the Federal
Energy Regulatory Commission (FERC). PSE is part of a Western-states regional
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coordination system and provides electric service to over 1.1 million customers in nine
Washington State counties. Electricity is produced elsewhere and transported to
switching stations in Kent and Renton through high-voltage transmission lines. As
electricity nears its destination, the voltage is reduced and redistributed through lower-
voltage transmission lines, distribution substations, and smaller transformers. PSE
provides electrical service to approximately 39,700 electric customers in Federal Way.
Also within the city are several 115 kV transmission lines and a number of neighborhood
distribution substations. The 115 kV lines also deliver electrical energy to other
neighborhood substations in communities adjacent to Federal Way.
PSE imports electrical energy from generation sources in Canada, the Columbia River
basin and other regions outside of PSE’s service territory. Additionally, PSE has its own
hydro, thermal, wind and solar power-generating facilities. There are also about 1,500
small, customer-owned generation facilities that are interconnected with PSE’s system
and can export surplus energy into the grid. The vast majority of these are solar panel
installations. Although this provides a very small portion of PSE’s electrical supply
portfolio, the number of customer-owned installations increases more every year.
PSE’s Integrated Resource Plan (IRP) is updated and filed with the Washington Utilities
and Transportation Commission every two years. The current plan, which was submitted
in May of 2013, details the energy resources needed to reliably meet customers’
wintertime, peak-hour electric demand over the next 20 years. The plan, which will be
updated in the fall of 2015, forecasted that PSE would have to acquire approximately
4,900 megawatts of new power-supply capacity by 2033. This resource need is driven
mainly by expiring purchased-power contracts and expected population and economic
growth in the Puget Sound region. The IRP suggests that roughly half of the utility’s
long-term electric resource need can be met by energy efficiency and the renewal of
transmission contracts. The IPR stated that the rest of PSE’s gap in long-term power
resources is likely to be met most economically with added natural gas-fired resources.
The capacity of individual electric lines depends on
voltage, diameter of the wire, and the clearance to objects
below the line. To meet this demand, some new
transmission lines and substations will need to be
constructed, as well as existing ones rebuilt and/or
maintained. Utility work is sometimes needed to comply
with federal system reliability regulations. Specific
construction that is anticipated includes the following:
• Expand Marine View substation to accommodate a new 115kV line that will
improve reliability through an automatic switching scheme.
• As electric loads increase a new 115kV transmission line will be necessary from
the Christopher substation to the 115kV line that serves the Weyerhaeuser
substation. This line would continue to the intersection of Enchanted Parkway
South and Military Road South.
Increases in the electric demand on the Weyerhaeuser campus and surrounding area may
require additional substations in any combination of the Five Mile Lake, Enchanted
Parkway or Weyerhaeuser substation areas.
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Gas Plan
Puget Sound Energy provides natural gas service to more than 750,000 customers in six
Western Washington counties: Snohomish, King, Kittitas, Pierce, Thurston, and Lewis. It
is estimated that PSE currently serves over 18,880 gas customers within the City of
Federal Way.
Natural gas comes from gas wells in the Rocky Mountains and in Canada and is
transported through interstate pipelines by Williams Northwest Pipeline to Puget Sound
Energy’s gate stations. Supply mains then transport the gas from the gate stations to
district regulators where the pressure is reduced to less than 60 psig. The supply mains
are made of welded steel pipe that has been coated and is cathodically protected to
prevent corrosion. They range in size from 4 to 20 inches.
Distribution mains are fed from the district regulators. They
range in size from 1¼ to 8 inches and the pipe material
typically is polyethylene (PE) or wrapped steel (STW).
Individual residential service lines are fed by the distribution
mains and are typically ⅝ or 1-⅛ inches in diameter.
Individual commercial and industrial service lines are
typically 1¼, 2, or 4 inches in diameter.
PSE Gas System Integrity-Maintenance Planning has several DuPont manufactured main
and service piping and STW main replacements planned for 2015. There will be several
pipe investigations throughout the City to determine the exact location of the DuPont
manufactured pipe. Identified DuPont manufactured piping in PSE’s entire system will be
ranked and replaced accordingly.
PSE Gas System Integrity-System Planning does not have any major projects planned in
2015 at this time, but new projects can be developed in the future at any time due to:
1. New or replacement of existing facilities to increase capacity requirements
due to new building construction and conversion from alternate fuels.
2. Main replacement to facilitate improved maintenance of facilities.
3. Replacement or relocation of facilities due to municipal and state projects.
10.4 TELECOMMUNICATIONS PLAN
Telecommunications is not only important for voice transmission but also provides the
infrastructure for the transmission of images and electronic data. Telecommunications in
Federal Way include both wired (land based) and wireless telephone services, internet
service, and cable and satellite TV. CenturyLink and Comcast provide land-based
telephone, cable TV service, and internet service. There are also several wireless
telephone providers, and voice over internet providers (VoIP). Direct TV and Dish
Network provide satellite television services.
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Telephone System
Existing Facilities and Operations –CenturyLink and Comcast deliver land based telephone
service throughout the City. Comcast also provides digital phone service (VoIP) while
CenturyLink provides digital phone service only to its business customers. Their facilities
are constructed overhead and in some cases underground.
Proposed Improvements – The telephone industry tends to be secretive about their facilities
and plans. For this reason the City had difficulty obtaining information and mapped
facility plans. CenturyLink is required by law to provide adequate telecommunications
services on demand in compliance with RCW80.36.090 and WUTC regulations.
Accordingly, CenturyLink will provide facilities, upon reasonable notice, to accommodate
whatever growth pattern occurs within the City. Due to advances in technology, additional
capacity is easily and quickly added to the system.
Wireless Networks
Existing Systems – The City is currently served with a number of wireless service providers
including AT&T, T-Mobile, Sprint, and Verizon.
Wireless technologies use a line-of-sight radio signal transmitted and received by
antennas. Therefore, it is not possible to underground the antennas or structures on which
the antennas are mounted. Antennas and ancillary equipment are located on freestanding
poles and towers and on existing structures and buildings. City code regulates their siting.
The FCC regulates the cellular telephone industry to ensure that their operation does not
interfere with AM/FM radio and cable television transmissions.
System Capacity – Capacity is a function of frequency of use, the number of sites in a
geographic area, and the number of customers. Cellular facilities are located throughout
the City. Frequent changes in their siting are not conducive to mapping.
Improvements to the Cellular System – Like the non-cellular telephone companies, wireless
companies expand services in response to growth. For this reason, companies closely
analyze market demand to determine expansions into new service areas. Cellular
technology is constantly advancing so capacity is frequently expanded through
technological advances at existing sites.
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Internet Service
Various companies provide internet service by telephone, cable, wireless, and satellite.
As the City constructs or reconstructs streets, it is providing conduits to assist in the
installation of fiber optic communication systems.
Cable TV
Cable television service in the City is provided by Comcast, CenturyLink, Direct TV, and
Dish Network. Comcast and CenturyLink utilize cable and fiber optic technologies and
Direct TV and Dish Network utilize satellite technologies.
Proposed Improvements
Cable television installations are made to new subscribers (either to new dwelling units or,
to a much smaller degree, to residences who have not opted for cable before) at published
rates; provided they are less than 125 feet from a distribution or feeder line.
Connections requiring longer runs are charged on a time and material basis. Most public
work considerations, such as tree trimming, work in the right-of-way, restoration of
property, and so on, are covered in the City of Federal Way Master Cable Television
Ordinance and Franchise Agreements with Cable Television providers.
10.5 FIBER OPTIC NETWORK
The City has entered into franchise agreements with Comcast and Williams
Communications which have fiber optic networks in the City’s rights-of-way. Williams
Communication has upgraded the City’s conduits along Military road.
In 2013, the City of Federal Way granted the Zayo Group, LLC a franchise for
installation of fiber optic within certain empty and occupied conduit owned by the City.
The main section of conduit runs along Pacific Highway South from approximately South
272nd Street to 16th Avenue South and South 340th Street. Additional conduits are located
along South 320th Street, South 336th Street, South 348th Street, and Enchanted Parkway.
In exchange for leasing the conduit, Zayo Group, LLC is providing an extensive list of
in-kind services to the City. Zayo is in the process of providing fiber optics at several
intersections. This will enable the City to connect additional traffic signals via fiber optic
for enhanced signal synchronizations. Zayo will connect the east and west portions of
South 320th street over I-5 with fiber optics , which will greatly enhance the signal
coordination along South 320th Street, Federal Way’s busiest arterial.
Other in-kind services provided by Zayo include improving certain conduits to increase
capacity, allowing City Hall to connect to the Federal Way School District Educational
Service Center; the South Correctional Entity (SCORE) for enhanced video arraignments;
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the Sabey Datacenter in Tukwila for future use for disaster recovery services; as well as a
connection to the regional Community Connectivity Consortium.
The City is responsible for its portion of maintenance and repair fees, should a fiber break
occur. The in-kind services provided by Zayo are a huge benefit to the City both in the
present and long term.
AT&T and CenturyLink have fiber optic networks within the City but they have not
entered into franchises with the City. The City of Federal Way, City of Tacoma, King
County, the Washington State Department of Transportation (WSDOT), and the School
District also have fiber optic networks. Public agencies do not require franchises to
operate in the City.
10.6 SOLID WASTE MANAGEMENT
The City’s Solid Waste Management roles
include solid waste planning, public education
and outreach, plus support and promotion of
convenient and sustainable disposal and recycling
options. The City administers contracts with
service providers and monitors their performance
in collecting solid waste, recyclables,
compostable materials, yard waste, and public
area litter. In this regard, the City is an advocate
for ratepayers in obtaining the highest service
levels at the lowest cost. In addition, the City is
active in managing litter and materials illegally
dumped in public areas.
A variety of other service providers manage
specific waste types generated in the City,
including service providers for demolition and
land clearing debris, commercial bi-product
management, bio-medical wastes, and charitable reuse.
Regionally, Federal Way and King County have a long-term (through 2040) Solid Waste
Interlocal Agreement (SWIA) that is part of our solid waste planning foundation. The
SWIA references the King County Comprehensive Solid Waste Management Plan (KC-
CSWMP), a state-required plan that focuses on broader waste collection, processing,
transfer, recycling, and disposal elements. The KC-CSWMP also incorporates some
elements outside City purview (such as landfill operations and collection standards in
adjacent unincorporated areas) that are relevant to our City’s Waste Management system.
Cities participate in periodic plan updates, plan ratification, then carry out the plan’s
objectives at the local level. The FWCP incorporates the policies and initiatives that
originate in the KC-CSWMP by reference. However, the City will also tailor KC-
CSWMP elements to best meet Federal Way’s solid waste planning and service
administration objectives.
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To maximize efficiency and effectiveness, solid waste and recycling shall also be
considered along with the many other elements that go into building design and site
planning. If site access, tenant access, or space for adequate containers is overlooked, it
may mean long-term inefficiency and higher overall ratepayer costs. The City will
incorporate procedures into the plan review process and City code that promote adequate
infrastructure to achieve these solid waste policies.
10.7 MODERATE RISK WASTE MANAGEMENT
The Hazardous Waste Management Program in King County was established in 1990 in
response to RCW 70.105.220 which requires jurisdictions to develop a plan for managing
hazardous wastes generated by residents, businesses, and institutions. Jurisdictions within
King County collaborated to develop the Local Hazardous Waste Management Program
Plan (LHWMP) which was last updated in 2010.
The FWCP incorporates the more detailed policies and initiatives that originate in the
LHWMP by reference. However, the City will also tailor LHWMP elements to best meet
Federal Way’s solid waste planning and service administration objectives. Hazardous
wastes should be properly managed and disposed of according to procedures and
standards set by federal, state, or regional agencies, such as those set forth in the
LHWMP. The City intends to coordinate with South King Fire & Rescue, King County
Board of Health regulations, and Public Health – Seattle & King County in the ongoing
implementation of LHWMP objectives.
10.8 GOALS AND POLICIES FOR CITY ACTION
The Private Utilities chapter provides an opportunity for the City to assist utility
companies in delivering efficient service to customers and to seek to reduce potential
negative impacts on the natural and built environments. This section builds upon system
descriptions to identify issues and sets forth policies to coordinate the provision of
utilities with City planning.
The GMA requires that the utilities element include the general location, proposed
location, and capacity of all existing and proposed utilities. This has resulted in cities and
counties becoming more actively involved in the way in which utilities are sited and
provided. In order to protect both citizens and utility customers, the City will work in
accordance with the following goals and policies:
Goals
PUG1 Work with private utility companies to allow them to provide full and timely
service that meets the needs of the City’s residents and businesses, both present
and future.
PUG2 Work with private utility companies to allow them to provide service in a way
that balances cost-effectiveness with environmental protection, aesthetic
impact, public safety, and public health.
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PUG3 Increase opportunities to create and utilize sustainable energy sources such as
solar and wind power.
PUG4 The City actively ensures appropriate recycling and disposal options are in
place to protect the health and welfare of both residents and our environment.
PUG5 The City’s goal is to ensure that ratepayers receive high-quality and reliable
services at reasonable cost when contracting with collection service providers.
PUG6 The City actively engages and participates in KC-CSWMP updates and
implementation, working toward aligning the plan with Federal Way’s needs
and the needs of ratepayers.
Policies
PUP1 The City will, if possible, coordinate with other jurisdictions on proposed
utility improvements that impact a multi-jurisdictional area.
PUP2 The City should work to encourage, to the extent possible, the supply of all
utilities to existing and new homes, offices, industrial, and commercial buildings.
PUP3 The City encourages the joint use of trenches, conduits, or poles, so that utilities
may coordinate expansion, maintenance, and upgrading facilities with the least
amount of right-of-way disruption.
PUP4 The City encourages utilities to inform one another of plans to expand or
improve utility services.
PUP5 The City will endeavor to inform utilities of upcoming improvements or
expansions that may provide opportunities for joint use.
PUP6 The City will endeavor to notify utilities of proposed plans to make highway or
right-of-way improvements.
PUP7 To facilitate energy conservation the City shall, at minimum, ensure that its
buildings comply with state and federal standards for energy conservation.
PUP8 The City will endeavor to work with utility companies to promote and educate
the public about strategies for conserving energy.
PUP9 The City should facilitate the use of solar power in residential, governmental
and commercial applications by implementing straight-forward review and
approval processes.
PUP10 The City should evaluate and if necessary revise zoning regulations to address
the siting of small-scale wind power generation facilities (for the use of
individual properties).
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PUP11 The City will encourage and work with telecommunication and cable companies
to develop fiber optic cable networks and other technologies and to increase
interconnectivity between different networks.
PUP12 The City will utilize existing and emerging communications technologies to
communicate with citizens and businesses.
PUP13 To the maximum extent possible and based upon applicable regulations, the
City should require the undergrounding of utility distribution lines in new
subdivisions, new construction, and significantly reconstructed facilities,
consistent with all applicable laws.
PUP14 To the maximum extent possible and based upon applicable regulations, the
City should work with the utilities in preparing a plan for undergrounding
utilities in areas where their visual impact is critical to improving the
appearance of the City, such as the City Center and along Highway 99.
PUP15 The City should, to the extent practical, work with utility providers in
preparing a right-of-way vegetation plan that ensures that the needs of
landscaping and screening are balanced with the need to prevent power
outages.
PUP16 The City should require that site-specific utility facilities such as antennas and
substations be reasonably and appropriately sited and screened to mitigate
adverse aesthetic impacts.
PUP17 Through its development regulations, the City shall continue to address the
siting, screening, and design standards for wireless/cellular facilities,
substations, and antenna facilities in such a manner as to allow for reasonable
and predictable review while minimizing potential land use and visual impacts
on adjacent property.
PUP18 The City should provide utility companies with plans, forecasts, and supporting
data to assist in the proper planning for utilities.
PUP19 The City should encourage utility providers to base extension and sizing of
systems on the Land Use Plan in order to adequately serve anticipated growth.
PUP20 Encourage utilities to provide the City with their utility service plans to allow
better integration with other utilities and City plans.
PUG21 The City recognizes the KC-CSWMP and its policies which will be referenced
by the City as appropriate.
PUG22 Promote the recycling of solid waste materials by providing opportunities for
convenient recycling and by developing educational materials on recycling,
composting, and other waste reduction methods. Waste reduction and source
separation are the City’s preferred strategies for managing solid waste.
Materials remaining after effective waste reduction and source separation
should be managed in accordance with the KC-CSWMP.
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PUG23 Encourage and actively seek an effective regional approach to solid waste
management, to leverage economies of scale and move toward similarities in
services and parallel educational messaging.
PUG24 Maintain a cost-effective and responsive solid waste collection system, with the
overarching objective of ratepayers receiving high-quality services at a
reasonable cost. In selecting elements of our solid waste collection system,
consider all costs (internal to the City’s ratepayers – both residents and
businesses, and external at the system level) as well as long-term factors such
as cost-effective and environmentally benign disposal option(s).
PUG25 Administer solid waste collection services in ways that minimize adverse
impacts such as noise, litter, environmental pollution, and disruption to
businesses and neighborhoods.
PUG26 Provide uniform collection service to areas annexed to the City as soon as
practicable, referencing RCW policies but also seeking uniformity via contract
or franchise elements.
PUG27 Develop and implement Preferred Building Code Elements, including space
allocation for several waste streams (garbage, compostables, recyclables,
hazardous materials, and other process wastes). Incorporate design elements
that enable access to services, both for tenants and collection service vehicle.
Consider development of a preference for covered solid waste enclosures or
facilities that are tied to sanitary sewer to help reduce potential surface water
management issues, and perform a comprehensive analysis to determine which
elements should be grandfathered versus required improvements.
PUG28 Cooperate with other private and public agencies in the region to manage and
control hazardous waste and moderate risk waste, including household
hazardous substances and moderate risk wastes generated by area businesses
and institutions.
PUG29 Educate the public in the proper handling and disposal of hazardous household
waste and on the use of alternative products or practices which result in
reducing the use and storage of hazardous materials in homes and businesses.
PUG30 Provide for the safe and convenient disposal of hazardous household waste
through permanent and conveniently located collection facilities for residents
and small businesses to access.