BEVERLY HILLS STAFF REPORT. Meeting Date: December 5, 2017 To: From:

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1 BEVERLY HILLS 9 STAFF REPORT Meeting Date: December 5, 2017 To: From: Honorable Mayor & City Council Trish Rhay, Assistant Director of Public Works Josette Descalzo, Environmental Compliance and Sustainability Programs Manager Subject: Acceptance of the Updated Sewer System Management Plan (SSMP) in Compliance with the Statewide General Waste Discharge Requirements for Sanitary Sewer Systems Attachments: SSMP Summary Report INTRODUCTION Staff will be presenting to City Council an updated Sewer System Management Plan (2017 SSMP) for approval. The SSMP is a document required by the State Water Resources Control Board to all sanitary sewer systems with the intent to report and reduces sanitary sewer overflows (SSOs). The summary report will provide City Council a detailed summary of the changes in the SSMP and the next steps the City will be taking to improve the management of the sanitary sewer system. Staff presented the 2017 SSMP to the Public Works Commission on November 9, 2017, meeting seeking the recommendation for City Council approval. The Commission recommended, (4-0) with Commissioner Felsenthal abstaining to vote on the item, to accept the 2017 SSMP. BACKGROUND On May 2, 2006, the State Water Resources Control Board (SWRCB) adopted Water Quality Order No that established Statewide General Waste Discharge Requirements (WDR) for all publicly owned or operated sanitary sewer system within the State of California. The WDR requires all federal, state, municipalities, counties, districts and other public entities that own or operate sanitary sewer systems greater than one mile in length that collect and/or convey untreated or partially treated wastewater to a publicly owned treatment facility in California to report Sanitary Sewer Overflows (SSOs)

2 Meeting Date: December 5, 2017 to SWRCB and to develop, adopt and implement a system-specific Sewer System Management Plan (SSMP). The City of Beverly Hills owns the sewer collection system and is directly responsible for the operation, maintenance and capacity needs of the collection system. Therefore, the City is required to implement a system specific Sewer System Management Plan (SSMP). Several City programs required for compliance with the WDR were already in place prior to the regulation and only needed to be documented or adapted in the SSMP format. The City of Beverly Hills adopted its first SSMP by resolution on December 12, 2012, which included the implementation of additional programs such as expanded documentation, auditing and reporting on each element and, more frequent and comprehensive system analyses. five years that includes significant changes in the SSMP. By regulation, the SSMP needs to be updated every DISCUSSION State regulations have required the City to formally and systemically re-evaluate the dayto-day (short-term) and lifecycle (long-term) operation and maintenance of the sanitary sewer system pipelines. State regulations also require the owners of collection systems to be directly responsible for the implementation and operational integrity of their systems by way of formally adopting the SSMP in a public meeting and then ensuring implementation (including funding), and periodic updating, of all elements of the (adopted) SSMP. As stated above, the City of Beverly Hills adopted its first SSMP in December 2012 with the eleven required elements. These elements are described below. 1. Goals. The City s SSMP includes ten goals in order to reduce and prevent sanitary sewer overflows and mitigate any overflows that may occur. 2. Organization. This section identifies the responsible City representatives for implementing specific measures in the SSMP including the chain of communication for reporting sanitary sewer overflows. 3. Legal Authority. This section describes the authority the City has to implement the provisions of the SSMP from the Municipal Code. 4. Operation and Maintenance. This section summarizes the City s preventive and area maintenance programs, CCW inspections, lift station maintenance, the computerized maintenance management system, collection system mapping and ongoing training required for the Wastewater Collection staff to comply with State Regulations in order to minimize and prevent sanitary sewer overflows and maintenance equipment and replacement part inventories. 5. Design and Performance Provisions. This section describes the City s standards for installation, rehabilitation and repair of the collection system and inspection and testing requirements for new and rehabilitated facilities. 6. Overflow Emergency Response Plan. This section details the history of stoppages and overflow events in the City and how Wastewater Collection staff responds to overflow emergencies. Page 2 of 4 11/30/2017

3 Meeting Date: December 5, Fats, Oils and Grease (FOG) Control Program. This section describes the City s FOG program including requirements for grease removal devices and efforts to educate facilities on the disposal of fats, oils and grease. 8. System Evaluation and Capacity Assurance. This section summarizes past and planned efforts related to capacity assessment and enhancement, identifies future wastewater collection system capital projects 9. Monitoring, Measurement and Program Modifications. This section describes how the City will monitor and measure its performance through the implementation of the Plan and make necessary modifications to improve the management of the City s collection system in the future. Indicators are identified that will be used to measure the performance of its wastewater collections system and the effectiveness of its SSMP. 10. Program Audits. This section outlines the process that the City will follow to evaluate the effectiveness of the SSMP to identify updates that may be needed for a more effective program. Audits are proposed to be conducted on a biennial basis. 11. Communication Program. This section describes how the City will communicate with the public and regulatory agencies on the performance of the SSMP. By State regulations, the City is required to update the SSMP every five years to include significant changes from the 2012 version. Staff used the Audit Checklist in Section 10 of the SSMP to perform an audit. Depending on the results of the audit and system performance, the SSMP can be updated without the approval from City Council for minor changes such as changes in the organization. Significant changes, such as hydraulic capacity improvements, sewer system standards or mapping, require a formal approval by the City Council. Staff, with the assistance of Canon Corporation, performed an audit of the collection system and determined there were significant changes in management, operations and maintenance that required updating the 2012 SSMP and needed the City Council to formally accept these changes. As a result of the audit, six elements of the SSMP were updated to reflect the current management and operations of the City s sewer collection system. These sections are: 1. Organization (Section 2) 2. Operations and Maintenance Program (Section 4) 3. Overflow Emergency Response Plan (Section 6) 4. Fats, Oil and Grease (FOG) Control Program (Section 7) 5. System Evaluation and Capacity Assurance Plan (Section 8) 6. Monitoring Measurement and Plan Modification (Section 9) The Summary Report will provide a detailed narrative for each of the updated sections of the SSMP and the next steps needed to reduce the number of sewer overflows in the system. Page3of4 11/30/2017

4 Meeting Date: December 5, 2017 CONCLUSION The 2017 SSMP provides a detailed assessment of the City s sewer system and operations. The update identifies the current state of the City s sanitary sewer system in its existing policies, procedures and activities that are included in planning, management, operation and maintenance. The update also demonstrates several changes that have been completed or will be completed to meet the goal of the SSMP, which is to reduce the sanitary sewer overflows. In order to track the system improvements, the City will conduct periodic internal SSMP audits led by the Environmental Compliance and Sustainability Programs Manager to maintain an effective program and update the plan every five years. COPY OF THE 2017 SSMP UPDATE A copy of the 2017 SSMP can be viewed in the City s wastewater website at: er/sewers ;sterimastermanaem ans/ A hard copy is also available at the City Clerk s Office or at the Public Works Department. FISCAL IMPACT No fiscal impact at this time. However, as part of implementing the different updated elements of the SSMP, the City will incur annual operating, maintenance and capital improvement costs that are included in the current wastewater budget. If additional costs are to be incurred, planning and implementation costs will be reviewed as part of the City s annual budget adoption process. RECOMMENDATION Staff recommends that City Council approve the Resolution entitled Resolution of the City Council of the City of Beverly Hills Approving the Sewer System Management Plan (SSMP) in Compliance with the Statewide General Waste Discharge Requirements for Sanitary Sewer Systems. Page 4 of 4 11/30/2017

5 Attachment 1

6 2017 SSMP Summary Report The 2017 SSMP Summary Report provides a detailed narrative for each of the updated sections of the SSMP and the next steps to reduce the number of sewer overflows in the system. Organization: Since 2012, the City of Beverly Hills and the Public Works Department, who manages the sanitary sewer system and implement the elements of the SSMP, had changes in its organization, which affects the following the following requirements: 1. Name of the legally responsible or authorized representative (Legally Responsible Official (LRO)). 2. Names and telephone numbers of management, administrative and maintenance positions responsible for implementing specific measures in the SSMP program. 3. The chain of communication for reporting the SSOs, from receipt of a complaint or other information, including the person responsible for reporting SSOs to the State and Regional Water Quality Control Board and other agencies if applicable (such as County Health Officer, County Environmental Health Agency and/or California Office of Emergency Services (CAL OES).) In the 2017 SSMP Update, the LRO has been designated to the Environmental Compliance and Sustainability Programs Manager who is responsible for leading the implementation and administration of the City s SSMP and the Assistant Director of Public Works serves as the alternate LRO. In day-to-day operations, the LRO s are responsible for certifying SSOs to the State and Regional Water Quality Control Board and are responsible for contacting the following agencies in an event of a Category 1 SSO: Los Angeles County Department of Public Health (LACDPH), Los Angeles County Flood Control District (LACFCD) and CAL QES. One of the most critical elements of the SSMP is managing SSOs. Managing SSOs starts with reporting instances to responsible agencies. The City of Beverly Hills has a very effective calling system in place. The public has a 24-hour SSO phone line to report SSOs. During business hours, SSOs are reported directly to the Public Works Customer Service line and during after-hours and weekends, these can be reported directly to Police & Fire Dispatch. The wastewater division responds to all SSOs reported in the City and administrators are always on call to report these to regulatory agencies as needed. Figure 1: Summarizes the SSO Response Chain of Communication. Page 1 of 11

7 Page 2 of 11 Figure 1. SSO Response Chain of Communications

8 Operations and Maintenance Program: Operations and maintenance (O&M) activities and programs are critical to ensuring the effectiveness and longevity of a healthy sanitary sewer collection system. The City of Beverly Hills has an effective O&M Program that consists of the following: 1. Collection System Maps 2. Preventive Operation and Maintenance 3. Closed-Circuit Television (CCTV) inspection 4. Rehabilitation and replacement of sewers that are in poor condition These four elements allow the City to operate and maintain the system in the most efficient and effective manner. In the 2017 SSMP Update, these four elements were updated or are in progress to be updated. Collection System Maps The City s entire collection system is broken down into 21 Districts. In 2017, the City of Beverly Hills switched over from using its 1959 hard copy sewer atlas system to the City s Geographical Information System (GIS) Program to manage the sewer system. Staff has access to the GIS maps using the City s computer network system. Hard copies of these maps are located in the Wastewater division offices and in the operator s vehicles. From time to time, staff still uses the 1959 sewer atlas to verify the information in the GIS maps and reference changes in the sewer system. The GIS system maps and hard copy maps display pipe length, size, material type, date built, flow direction, rim elevation, invert locations, manhole/cleanout locations, lateral locations, unique identification (ID) numbers, and approximate locations of property lines so that limits of the City-owned facilities can be identified. A complete electronic and hard copy inventory of existing sewer drawings and information is recorded and backed up to ensure the safe storage of this valuable information for future generations. By the Fall of 2017, staff will be working to implement the wastewater operations into a Computerize Maintenance Management System (CMMS) or in the program known as Infor for Public Sector (IPS). The work will include incorporating a maintenance schedule based on historical data and GIS maps into CMMS. The City expects to complete the implementation between two to three years. The implementation of the CMMS will improve the division s ability to thoroughly evaluate the collection system, enhance the maintenance schedule and thoroughly plan for improvements. At the end of the implementation, the CMMS will be the record keeping system for operations. Preventive Operation and Maintenance This is section of the SSMP that describes the routine preventive operations and maintenance activities by staff and contractors, including system for scheduling regular maintenance and cleaning of the sanitary sewer system with more frequent cleaning and maintenance targeted at known problem areas. The Preventative Maintenance (PM) program should have a system to document scheduled and conducted activities such as work orders. The City s regular maintenance schedule goal is to complete the maintenance of the 21 Districts on an annual basis. There are three crews assigned to maintain seven (7) districts, each on an Page3ofll

9 annual basis. In addition, these crews are also assigned a Maintenance Schedule, which are the problematic areas using historical maintenance records and operator experience. In the 2017 SSMP Update, the report identified that the City purchased the Combination Truck (Hydrojet and Vacuum) to help improve the quality and efficiency for maintenance and 550 response. The Combination Truck is equipped with a 4000-gallon vacuum tank that will be able to recover sewer overflows from the storm drain system, thus preventing it from entering the waters of the United States. In addition, the City purchased a 200-gallon vacuum truck to assist the Combination Truck in an SSO event, if needed. In addition to equipment, the 2017 SSMP Update demonstrates that the City provided sufficient staff training and equipment replacement that supports the O&M program. As for maintenance record keeping, staff is currently using a custom-made Line Maintenance Database. The database was completed in 2016 and all operators are required to enter details of their daily work in a central system. The database allowed the Wastewater division to easily search for maintenance records and evaluate work. Prior to 2016, Wastewater staff managed their own record keeping by using an excel spreadsheet. It was found there were inconsistencies and difficulties in searching maintenance records with that method. By Fall of 2017, the Line Maintenance Database will be replaced by the CMMS system, which will enhance the City s sewer system and maintenance and schedule evaluation system. To support the preventive operation and maintenance, the City purchased ten (10) SmartCover systems for manholes to help improve operation and monitoring of the sewer system. The SmartCover system provides real-time monitoring of sewage levels in manholes and notifies staff of potential sewer overflows. An alarm is transmitted to staff and allows staff to respond to these areas and perform maintenance before a sewer overflow occurs. The SmartCover units are placed strategically under manholes in areas which staff, through experience, has identified to be susceptible to overflow based on land use (i.e. commercial, multifamily, mixed-use) or engineering/design issues (i.e. dropped lines). The City has been using these Smart Covers since July 1, 2016, and has prevented potential sewer overflows in these areas. The SmartCover systems have proven to be a valuable and beneficial asset to the City by reducing SSOs, improving response times and enhancing service to customers. Closed Circuit TV Inspection (CCTV) Another critical element of the Operations and Management Program is the CCTV inspection. Currently, the City has inspected approximately 84 miles (84%) of the sewer system as part of the 2010 Sewer System Master Plan and part of the pre and post rehabilitation work under the CIP program. The City has a goal to complete the assessment of the system in a five-year cycle focusing on the following: 1. Lines that have not been assessed in the past CIP projects. 2. Lines that have not been assessed in the past five years. 3. Lines that are newly installed or rehabilitated within ten years. Issues that are identified during CCW will be added to future CIP projects to be repaired, rehabilitated or replaced. Page4ofll

10 As for existing staff, the City has two certified CCTV operators that are qualified to rate the systems using the industry standard Pipeline Assessment and Certification Program (PACP). In addition to assessing the system, the CCTV program provides the quality control and quality assurance for maintenance work. This program allows the City to evaluate the effectiveness of the maintenance equipment and methods. Rehabilitation and Replacement of Sewers that are in Poor Condition Regulations require agencies to develop a rehabilitation and replacement program that would identify and prioritize system deficiencies and implement short-term and long-term rehabilitation actions to address each deficiency. This program is initiated by the results of the CCW and preventive maintenance programs. As previously mentioned the results are compiled and addressed as necessary or with existing CIP projects. For larger issues, the City develops a CIP project to resolve system deficiencies. Funding is a critical part of this program. The City allocated sufficient funds in the CIP program to make repairs as necessary and as planned. Table 1 summarizes the CIP through Fiscal Year 2021/22. Table 1. Capital Improvement Program, Sanitary Sewer, FY 2016/2017 through 2021/ /18 18/ /21 Proposed Proposed Proposed Proposed Year Total Proposed Sewer System $ $1,807,900 $1,807,900 $1,807,900 $1,807,900 0 $7,231,600 Repairs Hyperion Plant - Capital $5,022,610 $3,118,800 $1,363,100 $1,363,100 $1,363,100 0 $7,208,100 Component Public Works Asset Management System $89,642 $53,000 $53,000 $53,000 $53,000 0 $212,000 Total $19,760,353 $4,979,700 $3,224,000 $3,224,000 $3,224,000 0 $14,651,700 Page5ofll

11 Funds that support the sanitary sewer portion of the Capital Improvement Program come from the City s Wastewater Enterprise Fund (Fund 84). The sewer fund is an enterprise fund by which reserves are generated from connection fees and monthly user fees based on the current rate structure. Overflow Emergency Response Plan This section of the SSMP is intended to provide an overview of the City s sanitary sewer system Overflow Emergency Response Plan. The City s sanitary sewer overflow response procedures have been developed to meet the requirements of state regulations and provide a standardized course of action for the Wastewater division to follow in the event of an SSO. The general courses of action during an SSO event are: 1. Notification 2. Secure the Area 3. Control the cause of the sewer overflow 4. Cleanup the sewer overflow spill 5. Spill documentation 6. Post spill investigation 7. Regulatory reporting In the 2017 SSMP Update, the SSO Response Plan was modified to reflect the staff changes and procedures that are essential to completing the seven course of actions mentioned above. In this section, the Environmental Compliance and Sustainability Programs Manager and the Environmental Services Manager (Managers) are responsible for reporting Category 1 and Category 2 SSOs to regulatory agencies and seek mutual aid assistance from public agencies if needed, If the Managers are not available to complete their responsibilities, the Assistant Director and Director of Public Works become the responsible persons to report an SSO to these agencies. In addition, the 2017 SSMP Update also includes the revision of the Wastewater Spill Control Procedures where it stressed that first SSO responders must do the following: 1. Confirm the SSO event. 2. Take photos of the SSO from the site to help estimate the flow rate. 3. Setup Best Management Practices (BMPs) equipment to divert flow away from the catch basin or contain the discharge in a catch basin by plugging the catch basins. Additional responders are then directed to break the stoppage and start setting up for sewer overflow recovery and cleanup. Changes in these procedures have increased the City s average SSO recovery volume in the last two years. Likewise, the procedures also require a post spill investigation where typically a CCW inspection is conducted to determine the cause of the SSO. The post spill investigation leads the City to corrective actions and accurate reporting. Page6of 11

12 Fats, Oil and Grease (FOG) Program This section of the SSMP describes the development and implementation of FOG source control measures for all known sources of FOG discharged to the City s sanitary sewer system. In the 2017 SSMP Update, the City s FOG program is considered to be effective due to the minimal amount of FOG related SSOs. The effectiveness starts with the FOG BMP requirements during project design and construction. The City further prevents FOG conditions by having an aggressive maintenance and inspection programs. These programs include having Food Service Establishment (FSE s) areas in the Days Maintenance Schedule to ensure that FOG does not build up in the system. In addition, the City s Environmental Programs and the County s Industrial Waste Program inspect FSEs more frequently. By providing an aggressive inspection program, the City ensures that FSE s maintains their FOG devices properly and frequently. System Evaluation and Capacity Assurance Plan This section of the 2017 SSMP Update outlines the City s programs and activities that evaluates the system integrity and provide adequate hydraulic capacity in the system. In this plan, the City completed a system integrity assessment of approximately 84% of the system by CCTV. The assessment thus far has not identified any sewer mains that warrant immediate or near future replacement or rehabilitation. The remaining 16% will be CCTV d by The data collected in this assessment will be evaluated and a CIP project will be initiated to address these system issues. In addition, the system assessment has been expanded to service lateral inspections. In recent years, it became clear to staff that unmaintained service laterals have caused SSOs and private property damage. The City has embarked on noticing private property owners who have partially and fully blocked service laterals. Thus far, the City has notified 18 residents and all have resolved their issues. To support the System Evaluation and Capacity Assurance Plan, the City has installed 10 SmartCover systems in key locations. The SmartCover System has enabled the City staff receive advance notification of arising capacity issues on a particular main lines and corrective action can be taken before an SSO occurs. Corrective actions can range from accelerated maintenance schedule up to pipe replacement. During the last five years, the City has demonstrated its commitment to having a reliable sewer system by completing approximately $6.2M of sewer system improvements. These improvements include the following: 1. Plastic lining of 164,736 linear feet of sewer pipes to prevent root intrusion and extend the life cycle of the system between years. 2. Repairing of 764 linear feet of sewer pipes to prevent sewer discharge infiltration. 3. Rehabilitation of 80 manhole and manhole related structures. Table 2 is a detailed summary of the completed projects from 2010 to Page 7of 11

13 Table 2: Completed Sewer System Projects Date Estimated Unit Description Total Amount Quantity Linear Ft Plastic lining of sewer main line 105,600 Linear Ft CCW inspection June 2010 to 284 Linear Ft Sewer line point repairs May Manhole Rehabilitation 5 Manhole Removal and replacement of manholes Manhole Removal and replacement of manhole frames and covers Linear Ft Plastic lining of sewer main line 563 Manhole Rehabilitation June 2012 to 480 Linear Ft Sewer line point repairs August ,560 Linear Ft Sewer cleaning and CCIV inspection $4,908, Manhole Adjusting manholes to grade with new rings and covers 9 Manhole New manhole installation 1 Clean-Out Installation of new clean out structure Page 8 of 11

14 Monitoring Measurement and Plan Modification This section of the 2017 SSMP Update outlines the process that the City will follow to evaluate the effectiveness of the SSMP and to identify updates that may be needed for a more effective program. This program will help the City focus on attaining the goals and intent of the SSMP, which is to minimize SSOs. Evaluating maintenance records is one of the most difficult tasks in assessing the condition of the sewer system. Therefore, starting in Fiscal Year 2017/18, the City will be embarking on creating and using a CMMS system to collect all data and provide an evaluation report of the system. This will improve the City s ability to address the problematic areas by O&M or by CIP. In this section, the City tabulated the SSO Records in the last five years; see Table 3. Table 3: Sanitary Sewer Overflows from Roots lateral 1 - Grease from Assess maintenance scheduling effectiveness 3 - Debris Roots ,050 Assess 1 - Grease maintenance scheduling effectiveness Roots Assess 2 Roots maintenance from scheduling lateral effectiveness 2 D b Improve spill - e ris recovery Roots 1, ,504 Lateral Inspection from 1 Roots lateral 3 - Lateral Maintenance Notification. Debris Page9of 11

15 Roots 1, ,206 Amend the Municipal 4 Roots from Code lateral Enforcing Lateral. I - Debris Maintenance Public Outreach Modify plumbing code policy to prevent overflows 1. SSO data from January to May From 2013 to 2017, with the exception of 2014, the City exceeded the industry standards of six (6) SSOs per 100 miles of sewer pipe. Data shows that toot blockages and root lateral blockages are the main causes of SSOs. Data also shows that during the height of the California Drought (2015-summer 2017) the number of root blockages and root lateral blockages increased due to the roots intruding in to the sewer system to get water. During this period, the City restricted watering to two days a week. Even though the number of SSOs increased during this time span, the number of Category 1 SSOs decreased and the numbers of Category 2 and Category 3 increased due to the emphasis of recovering sewer overflows the storm drain system. (See Table 4.) The reason for this trend is the division s emphasis on recovering SSO discharges to the best extent practicable. This was formalized when the Wastewater Spill Control Procedures was revised that directs first responders to first setup Best Management Practices (BMP5) to contain the sewer overflow and direct additional responders to relieve the blockage and begin recovering discharges. Page 10 of 11

16 Table 4: SSO by Category YEAR Total #SSO # CAT I # CAT 2 # CAT3 sso sso SSo k CAT 1: SSO of any volume resulting from a sanitary sewer failure or flow condition that: a. Reach surface water and/or reach a drainage channel tributary to a surface water; or b. Reach a MS4 and not fully captured and returned to the sanitary sewer system or not otherwise captured and disposed of properly. Any volume of wastewater not recovered from the MS4 is considered to have reached the surface water unless the storm drain system discharges to a dedicated storm or groundwater infiltration basin. 2. CAT 2: Discharges of untreated or partially treated wastewater greater than or equal to 1000 gallons resulting from a sanitary sewer failure or flow condition that do not reach surface water, a drainage channel or the MS4 unless the entire SSO volume discharged to the storm drain system is fully recovered and disposed of properly. 3. CAT 3: All other discharges of untreated or partially related wastewater resulting from a sanitary sewer system failure or flow condition. 4. SSO Data from January to May Likewise, the City benefited from the installation of full captured screens in 697 catch basins. These full capture screens are able to contain sewer discharges in the catch basin from entering the MS4. This BMP allowed staff to recover most of the sewer discharges and clean them afterwards. Because of these BMPs, the City improved on its sewer overflow recovery by recovering 23,589 gallons of sewer overflows out of the 38,711 gallons discharged from 2016 to July 31, This is a 61% recovery rate compared to the 20% recovery rate from NEXT STEPS The 2017 SSMP provides the next steps for the City to reduce the number of SSOs in the system. Staff has been implementing changes from its O&M such as assessing maintenance scheduling effectiveness which will be further enhanced with the implementation of the CMMS system and policy by amending the municipal code to enforce lateral maintenance and properly disconnecting (capping) lateral services from the main line prevent root intrusion. Additional updates are currently being completed to improve the outreach program to address debris and FOG blockages in the system. Page 11 of 11