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LAKEWOOD CLEAN WATER ACTCOMPLIANCE OVERVIEW
October 23, 2018Lakewood City Hall
Tonight’s ObjectivesYour role:
Become informed about the issues, plans and challenges
Be a critical listener and thinker tonight Provide communication feed back to improve future public meetings Prepare yourself to help facilitate small group discussion at future public meetings
Provide creative ideas to address conventional problems
Build a foundation for discussion of the Lakewood Clean Water road ahead November 15th work session Projects, engineering options, costs, other criteria to gauge options
Clean Water Lakewood Team Members
City of Lakewood‐AdministrationMark Papke, City EngineerJoe Beno, Director of Public WorksJennifer Pae, Finance DirectorKevin Butler, Law DirectorBrian Shields, Project ManagerKatelyn Milius, Planner & EngineerShannon Strachan, Exec Ass’t to MayorMike Summers, MayorJustin McCaulley, Gov’t Advocacy
CT Consultants, Inc.Bob GreytekJulia lazarMark DelisioCraig Juday
McMahon & DeGulis, LLPLou McMahon
Raftelis, Inc.Joe CreaMelissa Elliott
Brown & CaldwellAndy Lukas
Tonight’s Agenda• Introduction/ Overview
• Mike Summers, Mayor of Lakewood• Regulatory Landscape
• Lou McMahon, Attorney, Lakewood Resident• Clean Water Lakewood History
• Mike Summers, Mayor of Lakewood• More Must be Done
• Julia Lazar & Mark Delisio, CT Consultants, Inc.• Affordability Considerations
• Joe Crea, Raftelis• Wrap‐up, Questions, Next Steps
• Mike Summers, Mayor of Lakewood
Joining Us this Evening
• City Council Members• Clean Water Lakewood Task Force• Lakewood Resiliency Task Force• Other City Boards & Commission Members
• Audit, CAC BZA, ABR, Keep Lakewood Beautiful, Planning Commission
• Other City Administration• Alex Harnocz, City Planner, Liaison to Resiliency Task Force
• ReThinkAdvisors, Inc., Irwin M. Lowenstein• Lakewood Residents
Louis L. McMahon, Esq.McMahon DeGulis LLP
Photo Credit: Aerial Agents
Regulatory LandscapeLakewood Clean Water Act Compliance Overview
Clean Water Act Federal Water Pollution Control Act of 1972, 33 U.S.C. § 1251, et seq.
(discharge of a pollutant without an NPDES permit is prohibited)
Municipal sewer overflows are a “discharge of a pollutant”
Combined Sewer Overflows
Sanitary Sewer Overflows
But see – uncategorized “hybrid” sewers
Distinguish – stormwater discharges
Clean Water Act Regulation 1994 National CSO Policy
Available at: https://www.epa.gov/npdes/npdes‐cso‐control‐policy Presumption of compliance based on discharge volumes or activations Demonstration approach, not commonly used, focuses on pollutant loading and removal
1997 Financial Capability Guidance https://www.epa.gov/sites/production/files/2015‐10/documents/csofc_0.pdf
2012 Integrated Planning Framework https://www.epa.gov/sites/production/files/2015‐10/documents/integrated_planning_framework.pdf Prioritization based on “biggest bang for the buck” Opportunities to creatively marry infrastructure improvement with community priorities
Land use changes in redevelopment Recreation associated with green infrastructure
2014 Financial Capability Assessment Framework https://www.epa.gov/sites/production/files/2015‐10/documents/municipal_fca_framework.pdf
Clean Water Act Enforcement Consent Decree
Defined: Judicially enforceable agreement to bring regulated entity into compliance Factors: Level of control, schedule, financial capability, receiving waters
Examples NEORSD Cincinnati MSD Euclid Middletown Cleveland Heights
Practice Consent Decrees can be very constricting and difficult to modify Not all communities have a consent decree to implement Long Term Control Plan for CSO control
The Route Forward Lakewood must come up with it’s own plan to continue to sustain improvements
or a plan will be imposed upon Lakewood.
THERE IS NO ABILITY TO CHOOSE NOT TO ENGAGE
THERE IS NO ABILITY TO VOTE “PRESENT”
WE MUST CHOOSE A PLAN WE CAN AFFORD
Public input is critical to the process
Vital to the City to help develop a good plan
Persuasive to EPA and Courts
For More Information Lakewood Clean Water Lakewood: http://www.onelakewood.com/cleanwaterlakewood/
USEPA Wet Weather Page: https://www.epa.gov/npdes/municipal‐wastewater
Legal Questions re: CWA and Process:
Louis L. [email protected]‐367‐1407
Clean Water Lakewood History
Mike Summers, Mayor City of Lakewood
Photo Credit: Aerial Agents
Lakewood Clean Water Act Compliance Overview
Lakewood’s “Unique” Sewer System
• It was not built as one system • It’s an amalgamation of many subsystems over many years• Built in a pre‐World War II environment• Theory of “solution to pollution is dilution”• Public health was the primary objective when it was created;
environmentalism came later• Most Importantly: the system performs as designed
Sewered Areas by 1900Lakewood’s Background
1900 Plans for new Wastewater Treatment Facility
Sewer Areas by 1910Lakewood’s Background
1912 West End of Madison Avenue – Collector Pipe – Direct Discharge to the Rocky River
Lakewood’s Background
1915 Brown Road Over & Under Sewers –Directed to Madison/Riverside Discharge
Lakewood’s Background
Sewer Areas by 1920Lakewood’s Background
Sewer Areas by 1930Lakewood’s Background
1933 Forest Cliff‐ Filter Bed ‐ End of Street before direct discharge
Lakewood’s Background
Sewer Areas by 1940Lakewood’s Background
Sewer Areas by 1945Lakewood’s Background
Complicated – CSO 052Riverside & Madison
Lakewood’s Background
Lakewood’s Progress
Current System Mapping/ModelingSystem Investigation – flows, metered volume, overflows versus rain volume
Lakewood’s Background
Inflow & Infiltration (I/I) removal from sources on 103 private properties as well as public sewers. The project area is tributary to CSO 052.
Lakewood’s Progress
Pilot Study Project Area
Source Control ‐ Project Delivery Challenges Field Investigations
Confirmation of cross connections
Public Input Meetings
Financial Assistance
Property Owner Agreements
Contractor engagement : Design‐Build vs. Design‐Bid‐Build
Ownership of corrections
Liability
Bonding
Insurance
Performance Guaranties
Homeowner Coordination
Revisions to Ordinances re: bidding
Legislation
Lakewood’s Progress
Baked into development: Green Infrastructure
Madison Avenue Green Infrastructure Project ‐$200,000
Municipal Parking Lots (3) BMPs ‐$470,000
Lakewood’s Progress
McDonald’s Redevelopment
Lakewood’s Progress
2018 Sewer System Performance:
Collect & treat 10x our average daily dry weather volumes of approx. 4 million gallons per day (MGD)
Collect and treat 85 % of all dry and wet weather volume
Approved projects will take our total collect & treat all dry and wet weather volumes to 88% by 2023
$60 Million Investments in the Past 10 Years
Expanded the collection system
Expanded the waste water treatment system
Pilot Project: source controlWater moving off private property to public sewers Separate storm water from sanitary water Ensure proper connection at street side(storm to storm, sanitary to sanitary )
$23 Million High Rate Treatment
New High Rate Treatment Plant (HRT) has been designed, funded, and bid
The Plant is scheduled to go live in 2022
It will capture and treat an additional 3% of our combined water
This raises out total capture and treat to 88%
$19.5 Million –Additional Drinking Water Investments
$19.5 million over the past 12 years 120 miles of public water main lines maintained Replaced several 100 year old water mains repaired broken water mains
Lakewood’s investments and efforts are ongoingDate Milestone
2002 Began developing sewer plan according to permit requirement
2006 CSO Only Plan completed
2007‐2009 CSO Only Plan not officially approved; OEPA & USEPA asks for re‐characterization study on Lakewood’s sewers
2011‐2014 Hydraulic and hydrologic sewer model developed
2014 New permit issued, requiring updated plan and a high‐rate treatment facility at the treatment plant
2015 New plan submitted, Clean Water Lakewood key in plan creation
2016 Improvements worth $277 million estimated in plan; submitted & reviewed by OEPA & USEPA
2017‐2018 Refinement of plan options, evaluation of additional alternatives, affordability
2019 Updated plan due to OEPA & USEPA
2022 High‐rate treatment facility to be up and running
Next Up‐The Road Ahead
Engineering options
Costs
Factors to be considered
Julia Lazar & Mark DelisioCT Consultants
Photo Credit: Aerial Agents
More Must be DoneLakewood Clean Water Act Compliance Overview
More must be done Based on flow meter analysis we have refined all of our modeling for:
# of overflow occurrences
Water quality
Volume of overflow
Following are maps showing ways we can prioritize sewersheds
Overflow Volume
Pollutant Loading
Prioritization plan due in March 2019 will include: Evaluation of cost & effectiveness for various alternatives
Developed alternatives
Implementation schedule
Affordability analysis
City’s financial capability assessment
Sewer rate study
Alternatives were examined and recommended by Clean Water Lakewood & included in 2016 plan submitted to Ohio EPA
Since then alternatives were refined and additional alternatives analyzed
Project ranking methodology developed. City evaluated alternatives based on:
Inconvenience to public
Reasonable price compared to other alternatives
Useful life
Does not increase risk of basement flooding
Integration with other projects
Willingness to invest in administrative & maintenance duties
Technology categories used to solve overflow problems Green infrastructure—increasing the ability for the land to infiltrate the water, vs having it runoff the impervious surface
Gray infrastructure—building bigger pipes, storage basins, or treatment plants
Source control—working to decrease the leakiness between the sanitary and stormwater systems
Lakewood is utilizing all three approaches in our planning.
Thorough analysis produced this list of possible projects
Cost=100 year life cycle present worth valueRed X indicates not included in cost.
Oufall ID Approximate Outfall Location
Storage/ Tunnel
Source Control
Sewer Separation/ Green Infras.
Relief Sewer
Regulator Updates
HRTDiversion Sewer
Aerial Sewer
Pump Station
Cost
RRES 1160‐1165 Madison/Riverside X X X $67,400,000LEWS1040 Nicholson/Cliff X $39,200,000LEWS 1045 Wilbert/Cliff $1,100,000LEWS 1035 Carlyle/Gold Coast $47,200,000LEWS 1195 Edgewater/Summit $700,000CSO 002 Treatment Plant $24,000,000LEWS 1070 Homewood $500,000RRES 1145 W. Cli on/Riverside X $35,100,000LEWS 1180 Cli on/Lakeland $19,400,000LEWS 1150‐1155 Rosalie/Edgewater X $19,400,000LEWS 1130‐1135 Lakewood Park $23,400,000LEWS 1285‐1295 Btw Kenneth & Webb $2,500,000LEWS 1055‐1060 Btw Homewood & Wilbert X $9,300,000LEWS 1225 Btw Kenneth and Maple Cliff $4,200,000LEWS 1110 Btw Roy and Kirtland $1,500,000LEWS 1210 Forest Cliff $500,000LEWS 1215 Erie Cliff $1,200,000LEWS 1220 Maple Cliff $600,000
$297,200,000
Oufall ID Approximate Outfall Location
Storage/ Tunnel
Source Control
Sewer Separation/ Green Infras.
Relief Sewer
Regulator Updates
HRTDiversion Sewer
Aerial Sewer
Pump Station
Cost
RRES 1160‐1165 Madison/Riverside $67,400,000LEWS1040 Nicholson/Cliff $39,200,000LEWS 1045 Wilbert/Cliff $1,100,000LEWS 1035 Carlyle/Gold Coast $47,200,000LEWS 1195 Edgewater/Summit $700,000CSO 002 Treatment Plant $24,000,000LEWS 1070 Homewood $500,000RRES 1145 W. Cli on/Riverside $35,100,000LEWS 1180 Cli on/Lakeland $19,400,000LEWS 1150‐1155 Rosalie/Edgewater $19,400,000LEWS 1130‐1135 Lakewood Park $23,400,000LEWS 1285‐1295 Btw Kenneth & Webb $2,500,000LEWS 1055‐1060 Btw Homewood & Wilbert $9,300,000LEWS 1225 Btw Kenneth and Maple Cliff $4,200,000LEWS 1110 Btw Roy and Kirtland $1,500,000LEWS 1210 Forest Cliff $500,000LEWS 1215 Erie Cliff $1,200,000LEWS 1220 Maple Cliff $600,000
$297,200,000
Private property work may be part of the solution
Pilot study including 103 homes on Eldred, Atkins and Delaware Avenues
Aimed to significantly reduce rain water from entering sanitary sewer
Work done on sewers in the street as well as on private property
Manhole separation in pilot study
What have we learned from pilot study thus far?
The old pipes are often cracked and clogged
Cracked pipes cause interaction between the storm and sanitary laterals even after the clogs are flushed out
Water from roofs most often ends up in sanitary sewer
2155 Atkins
Old downspoutsOld downspouts
Lined sanitary lateralLined sanitary lateral
Old stormOld storm
Old soil pipe under floor slabOld soil pipe under floor slab
What are contractors doing to remove this excess water?
Cleaning laterals, relining as needed
Replacing pipes along perimeter of house that receive stormwater only
Connecting driveway drains to storm sewer
Installing sump pump if needed
Installing pipes along perimeter of home
Questions we hope to answer with this study
Are flows reduced enough to reduce overflows?
If results show this as a success, how does the public perceive this work?
Learning from the pilot study, what works best?
Is this the least expensive way to solve some of our overflow problems?
Post‐construction view
Ongoing public engagement is key—our upcoming meetings include:
Nov 15 at 6pm taskforce workshop at the Women’s Pavilion
Dec 4 at 6pm public meeting at City Hall
Jan 16 at 6pm public meeting at City Hall
Joe CreaRaftelis
Photo Credit: Aerial Agents
Affordability ConsiderationsLakewood Clean Water Act Compliance Overview
Enterprise Fund Operations
The water and sewer utilities are enterprise funds
Funded through user rates and charges, not taxes
Must consider long‐term cost and revenue projections Operating Expenses increasing faster than inflation Healthcare Chemicals, power costs
Capital Reinvestment Taking care of the infrastructure we already have Regulatory compliance
Water & Sewer Bill History
$377 $382 $388 $394$436 $442 $437
$538$591 $591
$647$697 $714
$756 $789 $814$858
$910$978
2000 01 02 03 04 05 06 07 08 09 10 11 12 13 14 15 16 17 18
ANNUAL WATER AND SEWER COSTS72 CCF PER YEAR, 6 CCF PER MONTH
Water Sewer
5.4% average annual increase since 2000Industry average: approx. 6.5%
Water & Sewer Bill Comparison
$31.03 $26.90$40.57
$20.38 $25.95$48.96
$36.12$54.38
$38.00 $45.00$40.92
$67.70 $63.14
$47.74 $77.19
$88.48
$69.03 $71.90$81.49
$88.08 $89.09$96.70
$113.31
$142.86
ROCKY RIVER ELYR IA LAKEWOOD AKRON CLEVELAND/NEORSD
LORAIN PARMA CLEVELAND HEIGHTS
MONTHLY WATER AND SEWER COSTS6 CCF PER MONTH
Water Sewer
Affordability Considerations 1997 Financial Capability Guidance High Burden: Compliance costs per household over 2% of Median Household Income
Current level: approx. 1.3%
2012 Integrated Planning & 2014 Financial Capability Assessment Framework Unique local conditions Alternative affordability evaluation approaches Hours worked at minimum wage to pay water and sewer bill Affordability ratio using other local costs like housing
Affordability Today
Typical bill: $81.50 per month
~10 hours worked at minimum wage
Original 2006 CSO‐Only Plan Estimated Cost: $274 million
Escalates to approximately $385 million in today’s value
Potential Integrated Plan total estimated costs (next 15‐20 years)
Maintaining Existing Assets (R&R) $ 150 million
Currently In‐progress HRT Facility $ 25 million
Remaining System Improvements $200 ‐ $250 million
Total (Compliance Only) $225 ‐ $275 million
Affordability Tomorrow
High‐Rate Treatment & Existing Assets
In 15 years, bills could represent 3.7% of annual median household income (water & sewer) Bill above 4% of income for 20,000 households
Plus Other Compliance Costs
In 15 years, bills could represent 4.0% of annual median household income (water & sewer) Bill above 4% of income for 20,000 households
How Can We Fund This?
Federal and State grants are no longer a reliable option
City residents and businesses will ultimately bear the responsibility
Community economics provide a limit to what we can ask from our residents
Affordability threshold will need to be defined Typical bill as percent of household income
Estimated number of at‐risk residents
Mechanisms to Recover Revenue
Current Rate StructureEverything recovered through volumetric rates (unreliable)
Alternative Rate Structures
Fixed charges
Impervious Area Charges
Stormwater rate
Other (taxes, levies, etc.)
264,743
181,664
1998 2000 2002 2004 2006 2008 2010 2012 2014 2016
Billed Water Volume
31% Total Reduction2.1% Annual Average
Photo Credit: Aerial Agents
Wrap‐up, Questions & Next StepsLakewood Clean Water Act Compliance Overview
Mike Summers, Mayor City of Lakewood
LAKEWOOD CLEAN WATER ACTCOMPLIANCE OVERVIEW
October 23, 2018Lakewood City Hall