LAKEWOOD CLEAN WATER ACT COMPLIANCE OVERVIEW...2015 New plan submitted, Clean Water Lakewood key in plan creation 2016 Improvements worth $277 million estimated inplan;submitted& reviewed

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


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




1933 Forest Cliff‐ Filter Bed ‐ End of Street before direct discharge




Complicated – CSO 052Riverside & Madison


Lakewood’s Progress

Current System Mapping/ModelingSystem Investigation – flows, metered volume, overflows versus rain volume


Inflow & Infiltration (I/I) removal from sources on 103 private properties as well as public sewers. The project area is tributary to CSO 052.


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


Baked into development: Green Infrastructure

Madison Avenue Green Infrastructure Project ‐$200,000

Municipal Parking Lots (3) BMPs ‐$470,000


McDonald’s Redevelopment


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


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


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


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

LAKEWOOD CLEAN WATER ACT COMPLIANCE OVERVIEW...2015 New plan submitted, Clean Water Lakewood key in plan creation 2016 Improvements worth $277 million estimated inplan;submitted& reviewed

Documents