City Council Packet - 11/14/2011 City of Tigard
Tigard Special Meeting - Agenda
TIGARD
TIGARD AND LAKE OSWEGO CITY COUNCIL MEETING
SPECIAL MEETING DATE AND TIME: November 14, 2011 - 7 p.m.
MEETING LOCATION: Tigard Town Hall - 13125 SW Hall Blvd.
PUBLIC NOTICE:
Times noted are estimated.
Assistive Listening Devices are available for persons with impaired hearing and should be scheduled for Council
meetings by noon on the Friday prior to the Council meeting. Please call 503- 639 -4171, ext. 2410 (voice) or
503- 684 -2772 (TDD - Telecommunications Devices for the Deaf).
Upon request, the City will also endeavor to arrange for the following services:
• Qualified sign language interpreters for persons with speech or hearing impairments; and
• Qualified bilingual interpreters.
Since these services must be scheduled with outside service providers, it is important to allow as much lead time as
possible. Please notify the City of your need by 5:00 p.m. on the Thursday preceding the meeting by calling:
503- 639 -4171, ext. 2410 (voice) or 503- 684 -2772 (TDD - Telecommunications Devices for the Deaf).
This meeting will be cablecast on Tualatin Valley Community TV as follows:
Tuesday .November 15, 2011 2:30 p.m. f'Channel 28
Wednesday November 16, 2011 [Channe1 21
Wednesday November 16, 2011 4:00 p.m. ! Channel28
Thursday November 17, 2011 9 :00 a.m. Channel 30
Thursday November 17, 2011 9 :00 p.m. 1 Channel 28
Friday I November 18, 2011 7 :00 a.m. I Channel 21
Friday November 18, 2011 12 :00 p.m. 'Channel 28
[Sunday (November 20, 2011 9 :00 p.m. 'Channel 30
SEE ATTACHED AGENDA
City of Tigard
` Ti d Special Meeting - Agenda
F P g g
TIGARD AND LAKE OSWEGO CITY COUNCIL MEETING
SPECIAL MEETING DATE AND TIME: November 14, 2011 - 7 p.m.
MEETING LOCATION: Tigard Town Hall - 13125 SW Hall Blvd.
1. SPECIAL MEETING
Call to Order- Mayor Dirksen
Roll Call
Pledge of Allegiance
2. INTRODUCTIONS
Council Members
Program Staff
3. IMPLEMENTATION UPDATE
4. WATER RIGHTS UPDATE
5. FACILITIES UPDATE
A. River Intake Pump Station (RIPS)
B. Raw Water Pipeline (RWP)
C. Water Treatment Plant (WTP)
D. Finished Water Pipeline (FWP)
E. Waluga Reservoir #2 (WR2)
F. Bonita Pump Station (BPS)
6. KEY EVENTS/ISSUES NEXT SIX MONTHS
7. SCHEDULE UPDATE/ISSUES
8. PUBLIC OUTREACH
9. QUESTIONS
10. ADJOURNMENT
SUPPLEMENTAL PACKET
FOR c 0 1 1 CITY OF LAKE OSWEGO
LAKE os o (DATE OF MEETING)
Centennial 1910-2010
380 A Avenue
PO Box 369
Lake Oswego, OR 97034
COUNCIL REPORT 503- 675 -3984
www.ci.oswego.or.us
TO: Jack Hoffman, Mayor and Craig Dirksen, Mayor
Members of the Lake Oswego and Tigard City Councils
Alex D. McIntyre, City Manager and Liz Newton, Interim City Manager
FROM: Joel B. Komarek, Project Director — Lake Oswego- Tigard Water Partnership
SUBJECT: Lake Oswego/Tigard Water Supply Expansion Project — Implementation Update
DATE: November 9, 2011
ACTION
This study session provides the Technical Committee (TC) of the partner cities an opportunity to present to
the Joint Councils:
1. A brief review of the objectives of the partnership;
2. A review of milestone accomplishments;
3. An update on program design and permitting activities as they relate to each facility;
4. A preview of key milestones for the next six months; and
5. A brief summary of public outreach activities completed and pending.
In addition, this study session provides an opportunity for the partner cities to engage their fellow
Councilors in discussion of the overall program progress.
INTRODUCTION /BACKGROUND
Exploration of a possible partnership between Lake Oswego and Tigard and the benefits and costs of
partnering on an expansion and upgrade of Lake Oswego's water supply system to supply both
communities began in 2005. The interest in a partnership was driven by the following conditions:
• Water demand — Lake Oswego's water demands were regularly exceeding its reliable supply
capacity during peak use periods.
• Infrastructure age and condition — Pumps, pipes, electrical and mechanical equipment comprising
the backbone of the City's supply system are over 40 -years old. Even with regular maintenance and
refurbishment, these key components must eventually be replaced. Combined with the need to
"Reliable capacity" is defined as that rate of flow that can be diverted, treated and conveyed to customers while the largest
pump at either the river intake pump station or water treatment plant is inoperable due to mechanical or electrical failure.
Page 2
increase reliable capacity, would dictate that obsolete equipment be replaced with new, larger
pumps. This would in turn require larger mechanical and electrical equipment, which in turn would
require larger buildings within which to house the larger equipment.
• Structural defects in River Intake Pump Station — During installation of new fish screens in 2002 at
this facility, defective concrete in the foundation was discovered. Options to remediate these
defects would reduce pumping capacity or would be prohibitively expensive. This condition is
monitored annually to assess the rate and severity of continuing decay.
• Water Quality /Water Treatment — Between 2005 and 2007, the USGS conducted a comprehensive
analysis of raw water quality in the Clackamas River basin. This study revealed persistent,
detectable levels of pesticides and herbicides in the water. Samples of treated water effluent from
an upstream drinking water plant detected these same contaminants, albeit at concentrations
below regulatory limits. Modern treatment technologies have been shown to remove many of
these contaminants. Agricultural sources of such contaminants are not expected to abate any time
soon, and so adequate treatment is the primary barrier for public health protection.
• Regulatory — Pharmaceuticals and personal care products not removed in wastewater treatment
plants and passing into raw water supplies through effluent streams are receiving national attention
and of concern to EPA and drinking water providers alike. Modern treatment technologies like
conventional treatment with ozone are effective at removing many of these contaminants from
treated drinking water.
• Timing — Tigard's contract with Portland expires in 2016. Tigard has long desired to acquire
ownership in a water supply system as a means to eliminate the burden of increasingly higher costs
to purchase water from Portland. Ownership in a water system would also allow Tigard to charge
for the cost to provide water to new development.
• Opportunity — Addressing Lake Oswego's immediate and long term water supply needs cannot be
delayed indefinitely and the costs to correct the above noted deficiencies on its own will be
untenable — today and tomorrow. Tigard wants ownership in a water system to control costs and
create additional revenue streams. The opportunity for each community to meet their water supply
needs is now.
The engineering and financial analysis, completed in 2007, concluded that relative to all other supply
options considered, a partnership between Lake Oswego and Tigard would best meet each community's
water supply objectives and save each tens of millions of dollars.
On August 6, 2008, the Mayors of Tigard and Lake Oswego executed an Intergovernmental Agreement
(IGA), committing the cities to undertake, in good faith and with due diligence, upgrades and expansions of
their respective water supply systems and complete the Initial Expansion by 2016. The IGA established
Lake Oswego as the Managing Partner, responsible to secure all necessary engineering and construction
services and to acquire all necessary environmental permits and land use approvals to assure project
completion no later than July 1, 2016.
Since that August 6, 2008, date the partner cities have met in joint council sessions several times and
2 The IGA defines Initial Expansion as "The design, permitting and construction of new and expanded Supply Facilities...to
provide 32 million gallons per day capacity by 2016 with the capability to further expand up to 38 million gallons per day...when
it appears the water demands of the parties will exceed 32 mgd."
Page 3
jointly toured the sites of each facility owned by Lake Oswego and which are scheduled for
upgrades /expansion or replacement. The most recent joint council meeting occurred November 8, 2010.
Since August 2008, the Managing Partner and partner cities have accomplished the following major
milestones:
• Retained a Program Management Team (PMT) comprised of consulting engineer firms whose staff
act as extensions of cities' staff and facilitate overall management of this multi -year program.
• Commissioned a blue- ribbon panel of national water treatment and public health experts and
convened a citizen's advisory panel to identify, evaluate and assist in the selection of a preferred
water treatment technology for implementation as part of the planned upgrades to Lake Oswego's
water treatment plant (WTP).
• Selected a preferred water treatment technology consisting of conventional treatment with Ozone.
• Completed a project definition phase which vetted and further refined preliminary facilities
concepts developed during a prior engineering feasibility study
• Completed a Value Planning study performed by an independent team of engineers and
construction professionals.
• Completed a Supply Facilities Capital Improvement Program (SFCIP) plan. As required by the IGA
the SFCIP was adopted by the councils' of the partner cities in late 2010 and was incorporated into
the IGA as an exhibit.
• Undertook and completed four, separate competitive qualifications -based selection processes to.
select engineering consulting firms to design each of four design packages for the program. These
packages are:
o Water treatment plant (WTP).
o Supervisory control and data acquisition (SCADA).
o Raw (untreated) and Finished (treated) water pipelines (RWP /FWP).
o River intake pump station, Waluga Reservoir #2 and Bonita pump station (RIPS /WR2/BPS).
• Completed utility financial analyses necessary to inform rate setting actions taken by the partner
cities to assure adequate funding for program activities.
• Conducted in excess of 100 meetings with neighborhood associations, property owners, city
councils and state legislators representing the communities of Gladstone, West Linn, Lake Oswego,
Tigard and un- incorporated Clackamas County.
• Received Conditional Use and Design Review approval for the planned new RIPS located in
Gladstone.
PROGRAM DESIGN AND PERMITTING ACTIVITIES UPDATE
Facilities Design Overview
The preliminary design phase for each of the four design packages is underway and at various stages of
development. As the WTP design contract was the first to be let, its level of development is further along
3 The "City of Lake Oswego and Tigard Water Service Area Joint Water Supply System Analysis" July, 2007 by Carollo Engineers
( "Carollo Report ").
Page 4
relative to, for example, the WR2/BPS design contract which was the last to be let. WTP design has
accelerated over the last two months in order to support development of the Conditional Use /Design
Review (CUP /DR) application scheduled to be submitted to West Linn in January of next year. Architectural
design of the RIPS was also accelerated to support the land use approval process undertaken and recently
completed in the City of Gladstone. Preliminary design of the raw and finished water pipelines through the
communities of Gladstone, West Linn, Lake Oswego and Clackamas County is underway and preferred
alignments have been selected for those pipelines. Two alignment alternatives for the RWP crossing of the
Willamette River continue being evaluated in an approach to mitigate risks that reflect the uncertainty of
how West Linn will interpret its development code and city charter as these regulations relate to the siting
and construction of water transmission pipelines. Apparently even when constructed using non - surface
disturbing methods.
Preliminary design for the WR2 and BPS facilities are underway and recently a design decision was made to
provide dual pumping capabilities at the proposed new BPS. This decision eliminates the need for a future
pump station and associated future land acquisition costs. Tigard is presently moving ahead with acquiring
a site necessary for construction of the new BPS.
All components of the pilot plant (i.e., ballasted flocculation, ozone and filters) are now on site at the WTP
and operational. Optimization of ballasted flocculation is underway and anticipated to be complete soon.
Once optimization is achieved, the clarified water will be passed through the four difference filter
configurations to assess the efficacy of various filter media and configurations.
Environmental Permitting
Environmental permitting for each facility varies in complexity relative to the presence or absence of
sensitive resources, unique geographic or geologic features and jurisdictional setting. A Joint Permit
Application (JPA) is being developed for all facilities to the extent such facilities cross or occupy lands that
fall within the regulatory purview of federal and state agencies. Facilities crossing or occupying 'non-
federal' jurisdictional lands fall under the regulatory purview of state or local authorities. Some facilities
require review by multiple agencies. For example, while the 'use' relating to the RIPS facility has received
land use approval in the City of Gladstone, the construction impacts and water withdrawals must be
reviewed against federal and state environmental standards. In contrast, the RWP, whose construction
currently may not trigger land use review in Gladstone or Clackamas County for upland locations, does
trigger review by federal and state agencies for the river crossing. Currently, some environmental permit
related work and detailed geotechnical /survey work is on hold pending further discussions with West Linn
concerning their development code as it relates to the Hull to Mapleton RWP alignment. Except for this
facility, all environmental permitting work is proceeding on schedule. A decision on a final RWP river
crossing option to advance for permitting and land use will need to be made soon to avoid delay to the
overall permitting schedule and to activities that extend therefrom. The JPA is scheduled for submittal in
May 2012.
Land Use
4 The crossings of the Willamette River and Oswego lake are proposed to be accomplished using Horizontal Directional Drilling
(HDD) techniques. Except at the entry and exit points, pipeline depths below the surface will range from 0 feet to more than
140 feet.
Page 5
The required neighborhood meeting relating to the WTP CUP /DR will occur on November 10, 2011. As
noted previously, the land use approval process for the RIPS is complete. The City also recently received
approval to consolidate the six current lots comprising the WTP property into a single lot of record. This
will facilitate meeting the setback and lot coverage standards for the zone. Because only one single family
dwelling is allowed per lot of record, West Linn conditioned approval of the lot consolidation on removal of
one of the two homes remaining on the City's property. To save costs, the City will move to deconstruct
both houses in the near future.
The CUP /DR application for the WTP is scheduled for submittal to West Linn in early January 2012, followed
by applications for the RWP /FWP in West Linn in February (pending alignment decision). The application
for the FWP located in Lake Oswego is scheduled for early December 2011. Applications for BPS and WR2
are scheduled for June and July, 2012, respectively.
Water Rights
The consolidated record resulting from the contested case hearings held in March 2010, have now been
entered into the Court of Appeals. Briefing schedules have been set with first briefs due November 28 A
request by Petitioner WaterWatch of Oregon for an extension to the briefing due date is anticipated and we
understand such requests are usually granted by the Court at least once. Extensions, if granted, usually
provide an additional 30 to GO days.
Property acquisition
Easements to accommodate construction of various facilities have been identified and work is underway to
survey those easements precedent to preparing legal descriptions and exhibits that will be used for
appraisal purposes. Efforts to secure the necessary number of waivers to restrictive covenants from WTP
proper are ongoing but a successful outcome appears unlikely.
Key Events /Issues (next six months)
Over the next six months a wide variety of key events /issues are scheduled to conclude and /or be
addressed. These include:
• Submittal of land use applications - WTP, RWP /FWP (West Linn, Lake Oswego, Gladstone /County).
• Completion of 30% design — WTP, RIPS, BPS, RWP /FWP.
• 30% cost estimate update — WTP, RIPS, FWP /RWP (pending alignment decision).
• Submittal ofJPA.
• Maple Grove CC &R's.
• Deconstruction of two homes on WTP properties.
• Public hearings on WTP, FWP (West Linn /Lake Oswego) and potentially RWP (West Linn /Gladstone).
• Water rights — Initial briefings submitted by petitioner /respondents and perhaps responses to
briefings made?
• Procurement approach to HDD contractors and long lead equipment determined.
• Specialized equipment selections made and early procurement underway.
Page 6
• Mitigation requests from residents /businesses located adjacent to and along construction sites.
Schedule Update /Issues
The complexity of the various land use regulations and administrative procedures in each of the four
different jurisdictions, and the duration of activities supporting the land use submittal process have
extended beyond original timelines, thus causing compression to the overall schedule, particularly when
constrained by a completion date that cannot move and that provides adequate time for unanticipated
events and a 'proofing period' for the new system. This compression has consequences to resource
allocations of the PMT, sponsor staff and cash flow. Further discussion on this topic can occur during the
TC's presentation to the joint Councils.
Financial Update
To date program expenditures total $13.3M. Both cities anticipate entering the municipal bond market in
2012. Both cities are enacting rate adjustments to assure sufficient revenues for debt service related to the
partnership capital costs and non - partnership capital and operating needs.
Public Outreach
Public outreach activities will be presented and discussed during the TC's presentation to the Joint Councils.
Reviewed by:
Dep.," ent Director
(if there is a financial impact)
Finance Director
(if legal issues)
City Attorney
Alex D. McIntyre
City Manager
LakeOswego•Tigard •
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Considerations:
Environmental overlays — MSY Park & Meldrum Bar
Park
West Linn Charter
Transmission pipelines in WL require CUP review
Permitting and design on hold pending further
discussions with West Linn
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Water Treatment Plant
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LEGEND
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BUILDING FOOTPRINTS
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VIEW LOOKING SOUTH AT MAIN PUBLIC ENTRY VIEW LOOKING WEST AT MAIN PUBLIC ENTRY
• Northwest Contemporary Aesthetic • High quality, durable materials w/
• Occupied, non - process building as 'Front minimal maintenance.
Door' to the plant while Screening industrial • Horizontally expressive building forms
process structures from the street. (relates to general neighborhood
• Warm / rich color pallet (wood used to define building forms)
dilk■N entry, residential scale material, similar to
existing homes)
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Water Treatment Plant - High Service
Pump Station ._. . _ . .
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BIRDS EYE VIEW OF SOUTH EDGE OF SOUTH EDGE BUILDING WALL ARTICULATION STUDY
PLANT SHC441NG GARDEN ROOFS
Submit CUP /DR application Jan. 2012
30% design & cost update due Mar. 2012
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Water Treatment Plant
Preliminary Design Considerations:
Plant capacity
Seismic performance
— Geologic conditions / foundation design
Early procurement to support design
Backup power options
Schedule
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Finished Water Pipeline Alignments < x y � . , F �y t !. V r a + �, °, � . '
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Initial Alignment M o « x ?" * S `, 1 � � v x t`�d} Sb4 • ' ur t :
Alignment Updates / s h r ' ! s ue w ,`
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Finished Water Pipeline
Status:
LO land use submittal in December
Off -site mitigation in Iron Mtn property for
impacts in Hunt Club
Easement acquisition for affected private
properties, Hunt Club, Lake Grove Elementary
Preliminary 30 percent design completion
January 2012
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Waluga Reservoir 2 - Recommended
. - • Y • 145 Setback from south property
` fib^€ 4 . " � _ ~. p r t � y, . , " ,... line
- _ • 30 Setback from west property line Ai,
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• 125 Reservoir outside diameter
re. * r , _ r.: - .+ i. 50 Reservoir height
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Existing FWP
New FWP inlet to Waluga -, � ` ` ;i ,
— - -• — New FWP outlet from Waluga T Z i Y • D Pressure Reducing Valve � , ^ : � — - - { � e ! fA r r f ' � .• rt \ , _. .v
, rti rte :r ' ) 1 : ,,
Locations shown are approximate," ~ k a �, 4 a
transmission mains are shown for clarity. L - - . ,,,,-:4:::.,' - j + . r Y. • ;1.' em u. - 0.,,,.0. . t-'"''' �► �'K" ,.44. � ^�... _ - •'
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M "te
Waluga Reservoir 2
Submit land use application July 2012
30% design and cost update due July 2012
Construction Notice to Proceed moved to July
2014 to mitigate cash flow compression
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Bonita Pump Stat - Existing and
Proposed
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Bonita Pump Station
• Dual pumping capability
Avoids need for future pump station
Makes use of existing pipelines
Improves water quality
Maintains emergency supply connections
Property acquisition in progress
Land use application due June 2012
• 30% design and cost update due June 2012
Construction NTP moved to April 2014 to mitigate
cash flow compression
If*
Schedule Update
2010 2011 2012 2013 2014 2015 2016
Environmental Program o n
River Intake schedule
Raw Water
.�. 11-- pending...
Pipeline • Resolution of
Water Treatment West Linn Ian d
Plant use permitting for
Finished Water I raw water pipeline
Pipeline a
1 1 • Environmental
Waluga Reservoir -1
#2 permit issuance
•
Conclusion of
Bonita Pump I ' =• water rights
Station ' g
2010 2011 2012 2013 2014 2015 2016 contested case
smi Environmental Land Use am Design Construction
Permitting — Baseline ® Plant Startup & Construction Close Out
4,5..
Financial Status Update
• Current program expenditures total $13.3M (5.8%
of the total current program budget)
100 Spent
El Budget
80
8
I
60
40
20
0 2010 2011 2012 2013 2014 2015 2016 207
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Key Events / Issues Next 6 Months
Selection of RWP alignment (critical path)
Easement and property rights acquisition
RWP alignment /WL land use may drive priority
acquisitions
30% design and cost updates due March and July 2012
Procurement of HDD contractor
JPA submittal
Water rights appeals process
Bond sales — Tigard and LO
M.-
4
Public Outreach 2011 Priorities
_____ __,..... __. __ _. ________ _
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Keep policymakers in four
communities oriented/ _ A R.
„we informed Aer i ,
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Build deeper understanding d''' ; -. a_
and broad community , .
ownership
Integrate public outreach -.. .
with land use permitting and ) O
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facility design work ,_ '
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Target Audiences and Methods
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Target audiences. i ,_
or-
4 Policymakers. z c I
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- Community leaders ' $ ' " '►" 4.,
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— Facility neighbors ;1' i a I t
khill
Water customers
• Keep policymakers informe '�"' '
3
Monthly Oversight Committee
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Wilsonville Plant tour earlier -� L - - 4 . . �� 4
........
this year
Pilot Plant tour this month_ ' .if
`ip:\ — w'-p Joint Councils meeting :=w
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Public Outreach and Communications
..,,
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Build deeper understanding and _
x
broad community support _ t ` - 1�
1
Community events (Farmers' :, � .
N. " " "�
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Markets, Balloon Festival, ' '-
Chautauqua in Gladstone)
-44.,... Topics: Ozone treatment, a �-
'1YaW hrbw� \p
Clackamas River watershed
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stewardship, facility condition 1 ' '
Neighborhoods, op leaders, i " '` ` ^ q "r -:
representatives, Metro
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senators, re - ::
councilors, county commissioners i .litii
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Public Outreach and Communications
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Integrate public outreach with
land use permitting and design } A " '' i t . ' ` ��. � yi
River Intake Pump Station s ! • , ' , L J ili - ` '
Raw Water Pipeline . i t
Water Treatment Plant k - ,
Finished Water P 7
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Lake Oswego • Tigard
4 Water Partnership 0 . ; f .
sharing water • connecting communmes
Water Treatment Plant Noise Testing 1'� ,
Begins Today „1 I toss
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Questions?
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Comments? • - - -i- 4,221.41„ 6 rw, rit i .. 1:___: r
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1.Oswega , .A _ i
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For more information
0 Lake Oswego • Tigard
Water Partnership
sharing water • connecting communities
Iotigardwater.org' 503 -697 -6502
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