4. Infrastructure Element

Goal Statement

The Town shall ensure that adequate sanitary sewer, potable water, drainage and solid waste facilities and services are available and correlated to future population, land use requirements and environmental sensitivities.

Objective 4.1: Sanitary Sewer Protection of Resources

The Town shall ensure the provision, operation and maintenance of a sanitary sewer system which protects public health and environmental resources.

Policy 4.1.1: If applicable, all sanitary sewer facilities shall be operated and maintained within the Town consistent with all applicable Local, State and Federal standards.

Policy 4.1.2: Untreated wastewater effluent shall not be discharged into drainage ditches, surface waters or aquifers.

Policy 4.1.3: Package plants shall be prohibited within the Town.

Objective 4.2: Sanitary Sewer Service Concurrent with Development

Sanitary sewer facilities and capacity shall be available for all future development within the Town .

Policy 4.2.1: Existing on-site sewage disposal systems have been replaced with sanitary sewer facilities, and the Town requires that connections be made to sanitary sewer facilities when available. For the purposes of this policy, available shall mean service is within the limits of the Town and there is adequate capacity to serve the structure.

Policy 4.2.2: All applicable impact fees or other fees shall be paid prior to connection to the sanitary sewer system.

Policy 4.2.3: The future sewer service area within the Town shall be all areas designated for development on the Future Land Use Map.

Policy 4.2.4: The Town’s sanitary sewer levels-of-service shall be consistent with the County, as applicable to the Town and as may be amended from time to time. When the County amends its LOS, the standards herein shall be deemed amended. For reference, the County’s (and thereby the Town’s) current levels-of-service are as follows:

• 250 gallons per day per equivalent residential unit with a peak monthly flow factor of 1.25. That standard shall be utilized for determining the availability of facility capacity and the demand generated by a development.

Policy 4.2.5: All building permits shall be reviewed, and neither a building permit nor a Certificate of Occupancy shall be issued unless adequate sanitary sewer facility capacity is available to meet the adopted level-of-service standards or will be available prior to issuance of a Certificate of Occupancy.

Policy 4.2.6: The Town shall continue to coordinate with the County to maintain the adopted level-of-service for sanitary sewer.

Policy 4.2.7: In conjunction with the County, the Town will develop procedures to update facility demand and capacity information as development orders are issued by the Town.

Objective 4.3: Potable Water and Wastewater Service Supplier and Interlocal Agreement

The Town is authorized to enter into an interlocal agreement, as appropriate, with the County to provide potable water and sanitary sewer (wastewater) service within the Town's municipal limits. The Town will timely seek renewal of the interlocal agreement with the County to ensure that such service to the Town’s residents and businesses is maintained and uninterrupted.

Policy 4.3.1: The Town will maintain and update, as necessary, its interlocal agreement with the County.

Policy 4.3.2: The Town will provide information, as may be requested, by the County to ensure current and future service needs of the Town are met and that adopted Level of Service Standards are maintained. 

Objective 4.4: Potable Water Services Concurrent with Development

The Town shall ensure that adequate potable water services are available for future development within the Town.

Policy 4.4.1: The Town shall coordinate with the County in the provision of potable water.

Policy 4.4.2: The future potable water service area within the Town shall be all areas designated for development on the Future Land Use Map.

Policy 4.4.3: All new and existing structures shall be required to connect to public or municipal water systems when such systems become available. For purposes of implementing this policy, become available shall mean service is within the Town limits and there is adequate capacity to serve the structure.

Policy 4.4.4: The Town’s levels-of-service for potable water shall be consistent with the County, as applicable to the Town and as may be amended from time to time. When the County amends its LOS, the standards herein shall be deemed amended. For reference, the County’s (and thereby the Town’s) current levels-of-service are as follows:

GPD/DU: gallons per day/dwelling unit

GPD/AC: gallons per day/gross acre

Policy 4.4.5: The Town shall not issue a development order or development permit until an applicant demonstrates that adequate potable water supplies and potable water facilities will be in place and available to serve the proposed development, no later than the anticipated issuance date of a certificate of occupancy or its functional equivalent.

Policy 4.4.6: All building permits shall be reviewed, and neither a building permit nor a Certificate of Occupancy shall be issued unless potable water capacity is available or will be available to meet the adopted level-of-service standards at the time they are needed by the development.

Policy 4.4.7: The Town shall continue to coordinate with the County to maintain the adopted level-of-service for potable water and, prior to approval of a building permit or its functional equivalent, the Town shall consult with the County to determine whether adequate water supplies to serve the new development will be available no later than the anticipated date of issuance by the Town of a Certificate of Occupancy or its functional equivalent.

Policy 4.4.8: All applicable impact fees or other fees shall be paid prior to connection to the public water system.

Objective 4.5: Water Conservation

The Town supports water conservation and reuse, including Indian River County’s and the Water Management District’s program to increase public awareness regarding water conservation and the use of potable water conservation strategies and techniques to reduce potable water usage.

Policy 4.5.1: The Town supports the conservation of potable water resources by utilizing the lowest quality of water required for the use intended.

Policy 4.5.2: The Town supports the utilization of treated wastewater effluent for golf course irrigation as soon as such effluent becomes available.

Policy 4.5.3: The Town supports the utilization of treated wastewater effluent for golf course, common areas, and residential irrigation when adequately treated stormwater is not available.v

Policy 4.5.4: The Town shall cooperate with the Water Management District during declared water shortage emergencies by conserving water resources and assisting with the enforcement of water shortage emergency declarations, orders, and plans.

Policy 4.5.5: The Town shall adopt and enforce the Florida Building Code, which requires low flow plumbing fixtures.

Policy 4.5.6: Activity that would result in the degradation or over utilization of potable water resources shall be prohibited.

Policy 4.5.7: The Town shall require reuse lines to supply treated wastewater effluent for golf course irrigation.

Policy 4.5.8: The Town will coordinate with the Water Management District to locate any free-flowing deep wells in the Town. As development occurs, all flow wells shall be plugged or regulatory devices will be installed to control the discharge of water from the deep water aquifer.

Policy 4.5.9: Potable water supplies should not be used for irrigation purposes when non-potable sources of irrigation water are available.

Policy 4.5.10: The Town will require all new development to connect to and utilize a master non-potable irrigation system.

Policy 4.5.11: In coordination with the County and the Water Management District, the Town will make available public information on water conservation techniques.

Objective 4.6: Flood Protection

Drainage facilities shall be adequate for future development.

Policy 4.6.1: All storm drainage facilities for new development within the Town shall be designed in accordance with requirements of the St. Johns Water Management District or the Florida Department of Environmental Protection, as appropriate.

Policy 4.6.2: Prior to construction approval, all new development plans shall be reviewed. Approval of a development order may be given if the development is consistent with the master drainage plan, and the adopted level-of- service.

Policy 4.6.3: All drainage facilities shall be operated and maintained consistent with their approved design.

Policy 4.6.4: The Town may consider a stormwater utility, user fees or other mechanisms, as deemed necessary and appropriate, for the design, operation and maintenance of drainage facilities.

Policy 4.6.5: All developed areas within the Town shall be included within the master drainage plan.

Objective 4.7: Preservation of Natural Drainage Features

The Town has adopted the municipal Master Drainage Map that incorporates and protects the functions of the Town’s natural drainage features.

Policy 4.7.1: Treated stormwater shall be discharged to impounded wetlands and other transitional vegetative communities prior to eventual release to the Indian River Lagoon.

Policy 4.7.2: The land development regulations shall contain regulations which do not allow any activity which results in the alteration, degradation, or destruction of wetlands except where such an activity: is necessary to prevent or eliminate a public hazard; would provide public benefits which would exceed those lost as a result of the wetland’s alteration, degradation or destruction; or is water dependent; or due to the unique configuration of the site, is the unavoidable consequence of development for water-dependent uses.

Policy 4.7.3: Wetlands shall not be utilized for the purpose of obtaining fill.

Policy 4.7.4: Stormwater shall go through a “treatment train” prior to release in order to allow sediments to settle out prior to discharge to the Indian River Lagoon.

Objective 4.8: No Net Loss of Flood Storage Capacity Within the Town

Policy 4.8.1: Impounded wetlands shall be maintained in their current state or returned to their natural state, as appropriate, in order to provide flood storage capacity.

Policy 4.8.2: The Town shall continue to participate in the National Flood Insurance Program and should consider participation in that program’s Community Rating System.

Policy 4.8.3: All development shall be consistent with the requirements of the National Flood Insurance Program and the adopted floodplain management regulations in the Code of Ordinances.

Policy 4.8.4: The adopted floodplain management regulations in the Code of Ordinances shall be updated in a timely manner after changes are mandated by the Federal Emergency Management Agency (FEMA).

O​bjective 4.9: Solid Waste Service Concurrent with Development

The Town shall ensure that adequate solid waste collection services and disposal facilities are available for future development within the Town.

Policy 4.9.1: All building permits shall be reviewed, and neither building permit nor Certificate of Occupancy shall be issued unless adequate solid waste capacity is available or will be available to meet the adopted level-of-service standards at the time they are needed by the development.

Policy 4.9.2: The level-of-service standard for solid waste disposal shall be consistent with the County, as applicable to the Town and as may be amended from time to time. When the County amends its LOS, the standards herein shall be deemed amended. For reference, the County’s (and thereby the Town’s) current levels-of-service are as follows:

• 2.4 tons per capita for permanent population plus weighted seasonal population per year or 4 cubic yards per permanent population plus weighted seasonal population per year.

Policy 4.9.3: The Town shall continue to participate in the Solid Waste Disposal District to maintain the adopted level-of-service.

Policy 4.9.4: The Town shall coordinate with the Solid Waste Disposal District as to solid waste impact fees, or other fees necessary to maintain the level-of- service for solid waste disposal.

Policy 4.9.5: The future solid waste service area within the Town shall be all areas designated for development on the Future Land Use Map.

Objective 4.10: Protection of Resources

For protection of natural resources and public health, the Town shall prohibit the unauthorized dumping of solid wastes and the disposal of hazardous waste materials within the Town.

Policy 4.10.1: Hazardous waste transfer and disposal facilities shall be prohibited within the Town.

Objective 4.11: Future Needs

The Town will support the County to reduce the amount of municipal solid waste being disposed of at solid waste management facilities.

Policy 4.11.1: The Town shall coordinate with the County in reducing the waste stream and encouraging recycling, consistent with State regulations.

Policy 4.11.2: The Town shall support the County in Amnesty Days and other programs relating to hazardous materials.

Objective 4.12: Protection of Water Quality

The Town shall protect any natural groundwater recharge areas identified in the Water Management District’s Groundwater Basin Resource Availability Inventory from all sources of contamination.

Policy 4.12.1: The Town shall enforce stormwater management and flood protection criteria in conformance with Water Management District rules to preserve natural drainage features and promote drainage retention and detention to maximize any aquifer recharge.

Objective 4.13: Urban Sprawl

The Town will participate in a coordinated mechanism, created by the County, to ensure that development in the Town does not adversely affect the adequacy of infrastructure and services in other jurisdictions.

Policy 4.13.1: The Town will not issue a development order unless adequate infrastructure and facility capacity to support the development exists, is programmed or will be privately funded.

Objective 4.14: Water Supply Facilities Work Plan

The Town shall maintain a Water Supply Facilities Work Plan, as required by Florida Statutes.

Policy 4.14.1: The Town’s Water Supply Facilities Work Plan (2022-2040) is incorporated into the Comprehensive Plan as Appendix A of the Infrastructure Element.

Policy 4.14.2: The Town shall maintain a Water Supply Facilities Work Plan that is coordinated with the Water Management District’s Central Springs / East Coast Regional Water Supply Plan (CSEC RWSP). The Water Supply Facilities Work Plan and related Comprehensive Plan policies will be updated, as necessary, within 18 months of an update of the CSEC RWSP that affects the Town.

Policy 4.14.3: The Water Supply Facilities Work Plan shall identify the traditional and alternative water supply sources and projects, along with the water conservation and reuse practices, necessary to meet existing and future water demands.

Policy 4.14.5: The Town will participate in the development of updates to the Water Management District’s CSEC RWSP and other related initiatives facilitated by the Water Management District that affect the Town.

Infrastructure Element - Appendix A: Water Supply Facilities Work Plan 2022-2040

Section 1: Introduction

In February 2022, the St. Johns River Water Management District (District) governing board approved the Central Springs/East Coast Regional Water Supply Plan (CSEC RWSP). The CSEC RWSP identifies the planning area as including all or part of Volusia, Lake, Marion, Brevard, Indian River, and Okeechobee counties. For the first time, the District identified the Central Springs/East Coast region as a Water Resource Caution Area (WRCA).

To promote consistency among local government Comprehensive Plans and the CSEC RWSP, each local government within the planning area must amend its Comprehensive Plan to adopt a Water Supply Facilities Work Plan (Work Plan). The Town of Orchid (Town), as a municipality in Indian River County, is within the WRCA. Therefore, the Town is required to adopt and maintain a Work Plan, and update the Comprehensive Plan, as necessary, to implement the Work Plan and address water supply related legislative requirements. Policy 4.14.1 incorporates the Work Plan into the Comprehensive Plan as Appendix A of the Infrastructure Element.

Because the CSEC RWSP contains an assessment of projected water demands and potential sources of water to meet these demands through 2040, the Town’s Work Plan addresses the planning period of 2022-2040. At a minimum, it will be necessary to update the Work Plan prior to the end of that planning period. In addition, the Town must ensure coordination of its Comprehensive Plan with the plans of the District. Therefore, if the District updates its CSEC RWSP in a manner that affects the Town, it may be necessary to update the Work Plan during the planning period. Policy 4.14.2 ensures maintenance of the Work Plan and coordination of the Town's Comprehensive Plan with the District’s plans.

Section 2: Potable Water and Wastewater Service Supplier and Interlocal Agreement

The Town does not own or maintain a potable water or wastewater system. The Town's municipal limit is located within Indian River County's (County) potable water and wastewater service area.

The Town has an interlocal agreement with the County to provide potable water and wastewater service within the Town's municipal limit. The agreement was approved September 12, 1989 and remains in effect for 40 years (September 11, 2029). The agreement grants County the sole and exclusive right, privilege, or franchise to maintain and operate a public water and sewer system throughout the entire incorporated area of the Town in accordance with generally accepted engineering standards for the maintenance of a water and sewer system. The Town is not financially responsible for the related facilities. The Town will maintain and update, as necessary, its potable and wastewater service agreement with the County.

The Town provides information as may be requested by the County to ensure current and future needs of the Town are able to be met and adopted Level of Service Standards are maintained for potable water and wastewater service. All new development in the Town shall connect to the County’s potable water and wastewater services facilities.

Pursuant to the Infrastructure Element Objective 4.3 of the Comprehensive Plan, the Town will timely seek renewal of the interlocal agreement with the County to ensure that potable water and wastewater service to the Town’s residents and businesses is maintained and uninterrupted.

Section 3: Potable Water Sources, Demand, and Supply

To manage consumptive use of water resources, the District has established a permitting system by which water resources are allocated among permitted consumers. Presently, the County Department of Utility Services has a Consumptive Use Permit (CUP) authorized by the District on April 22, 2022 and expiring on October 11, 2031(Permit No. 10524-10). The County has two principal potable water sources, which are the Upper Floridan and the surficial aquifers.

Presently, the County’s potable water system receives its water supply from wells that have been installed into the Upper Floridan aquifer. Future county wells for both the south county plant and the north county plant will also tap the Upper Floridan aquifer.

With proper management, the Upper Floridan aquifer should provide a long-term, reliable water source for the County, including the Town. Nevertheless, in 2007 the County developed a local Alternative Water Supply Master Plan. According to that plan, surface water may serve as an alternative to, or as a supplement to, the Upper Floridan aquifer as the County’s future potable water supply source.

To meet current and future demand, the County has in the past implemented all potable water capital improvements identified in the County’s potable water sub-element to its Comprehensive Plan.

Water demand associated with the Town's existing and projected populations were accounted for in the County’s adopted Water Supply Facilities Work Plan and CUP. According to the US Census, the Town's population stood at 516 in 2020 and this is not projected to exceed 550 by 2040, as the Town is almost entirely built out as of 2022. The Town does not anticipate any annexations within the next 15 years that would significantly increase population or water demand. Therefore, the Town's population and water demand is anticipated to remain constant during the Work Plan's planning period.

The table below contains the CSEC RWSP’s projected population and water demand for Indian River County Utilities’ service area, which includes the Town.

Section 4: Potable Water Treatment and Distribution Facilities

Potable water facilities consist of a water supply, treatment plants, storage facilities, and a distribution system. Before being used for public consumption, most water must undergo treatment, and this is true of the County’s water supply. Within the Town, potable water is provided by the County Department of Utility Services. Its treatment through a process of nano filtration removes impurities from raw water in order to improve its quality.

Operated by the County Department of Utility Services, the county water system is the largest provider of potable water in Indian River County. This system presently consists of two geographic service areas (North County and South County). Although each service area has its own water plant, the system is interconnected to allow either plant to serve the service area of the other plant.

Located on the north side of 77th Street, west of 58th Avenue, the North County Water Treatment Plant began operating in 1997. That plant serves the North County service area in which the Town is located along with the City of Sebastian, and the northern portion of the North Barrier Island, as well as the unincorporated areas of Gifford, Winter Beach, Wabasso, Vero Lake Estates, and Roseland, among other areas.

The County plants treat water drawn from the North Floridan Aquifer to produce a “stable product”. The County’s potable water quality is constantly monitored and meets or exceeds safe drinking water standards.

The County is financially responsible for the facilities pertaining their potable water treatment and distribution service. The Town does not anticipate any financial responsibility for capital improvement for potable water treatment or distribution facilities during the work plan's planning period.

Section 5. Non-potable Services and Facilities

The County provides wastewater (sewer) service within the municipal limits of the Town pursuant to the aforementioned interlocal agreement. All related facilities fall under the responsibility of the County Department of Utility Services. There are no septic tanks within the Town.

Level of Service Standards for wastewater (sewer) service are included in the Comprehensive Plan Infrastructure and Capital Improvements Elements and are consistent with the County’s (see Orchid Comprehensive Plan Policies 4.2.4 and 9.2.4).

Section 6: Water Supply Concurrency and level of Service Standards

Although the Town is responsible for authorizing development within its municipal limits, the Town is dependent upon the County for potable water service and supply. Therefore, the Town's water supply and facility concurrency system and potable water Level of Service standards are coordinated and consistent with the requirements of the County.

The current legislative requirements for concurrency require that the Town's Comprehensive Plan and Land Development Regulations ensure that adequate water supplies and facilities are available to serve new development no later than the date on which the Town anticipates issuing a Certificate of Occupancy. In addition, the Town must include consultation with the applicable water supplier during the permit review process and prior to the approval of a building permit, to determine if adequate water supplies will be available to serve the development by the anticipated issuance date of the Certificate of Occupancy. Comprehensive plan Policies 4.4.5, 4.4.6 and 4.4.7 contain enabling language for implementing these concurrency requirements.

Level of Service Standards for potable water are included in the Comprehensive Plan Infrastructure and Capital Improvements Elements and are consistent with the County’s (see Policies 4.4.4 and 9.2.5).

Section 7: Water Conservation and Reuse Practices

Water conservation and reuse efforts are of vital importance in the reduction of potable water demand. The Town currently encourages water conservation and reuse practices, as indicated by the Comprehensive Plan, including Objective 4.5 and its supporting policies.

Annually, the Town promotes, in coordination with the District, Water Conservation Month through the adoption of a proclamation and the distribution of relevant information on its website pertaining practical water conservation methods.

The Town promotes water conservation through the use of efficient, low-volume water irrigation systems, the incorporation of existing native vegetation into landscape designs, and the use of drought-tolerant plant materials.

Furthermore, the Town encourages the local Homeowner’s Association’s (which covers all residential zoning as well as conservation zoning within the Town’s boundaries) responsible practices pertaining irrigation practices of the community. Irrigation within the community is principally supplied by stormwater runoff that has undergone a treatment train and does not rely on the potable water supply. Additionally, Indian River County provides reuse water to the Town of Orchid.

In drought emergency situations, the Town cooperates with the District in its implementation of District Water Shortage Plans. In addition, the Town will coordinate with the District to identify and plug free-flowing wells, though the Town as of this time has not found any water-wells within its boundaries.

Section 8: Water Source Protection Practices

Protection of water sources is important to ensure the quality and quantity of the water supply. The Town's water source protection practices include regulating the location solid and hazardous waste materials and related facilities, regulating/requiring stormwater management of surface water discharges, requiring the use of silt screens around development project sites and regulating development in a manner that prevents overdevelopment. Also, industrial development is not permitted in the Town. The use of environmentally friendly golf carts is encouraged. In addition, the Town coordinates with the District to identify and plug free-flowing wells in an effort to prevent pollutants from entering the well and contaminating the local aquifer.