Purpose and Approach. Introduction
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1 City of Ann Arbor Sanitary Sewer Wet Weather Evaluation Project Best Practices Sub- Group of the Citizens Advisory Committee Examples of Wet Weather Improvements from Other Communities December 5, 2013 Purpose and Approach The Best Practices sub- group of the Citizens Advisory Committee requested some examples of the type of improvements that communities have made to address wet weather flows. We are not aware of a source that provides the information requested off the shelf. Therefore, OHM created this compendium based on personal knowledge of their staff. OHM tried to be factual and objective in compiling this summary, but individual perspectives are still likely to be imbedded. In a few places, we have provided some observations from our project team on the projects, and have identified them as such in the descriptions. Everything else provided is from information obtained from the community. If the sub- group would like to also get a direct perspective on the projects from the communities or consultants, we would do our best to provide names and contact information. Introduction When comparing wet weather improvements constructed by various municipalities, it is important to keep in mind the different types of sewer systems and the different improvement strategies that are effective for each type. The City of Ann Arbor has a separate sanitary sewer system in which separate pipes convey sanitary sewage and stormwater. The inflow and infiltration of stormwater into separate sanitary systems can have a significant detrimental impact because these systems are not designed to convey large stormwater flows, which can lead to sanitary sewer overflows (SSOs). The term source removal in separate systems refers to the removal of stormwater or groundwater connections to the sanitary sewer system. Several examples of projects that address sanitary sewer overflows are provided below. Many older communities were constructed as combined systems in which a single pipe conveys both sanitary sewage and stormwater. Examples include Detroit, Grand Rapids and Lansing. These systems are designed to convey both sanitary flows and stormwater flows. Because of the high stormwater flows involved, often these systems address combined sewer overflows (CSOs) via storage tanks or sewer separation (the process of separating the combined system into a two pipe separate system, one carrying stormwater, the other carrying sanitary sewer flow). The term source removal in combined systems usually refers to sewer separation or best management practices for stormwater that reduce the flow rate and volume of stormwater runoff, such as stormwater detention, rain gardens, or bio- infiltration
2 areas. We have not provided examples of projects that address combined sewer overflow, because those are not applicable to Ann Arbor. System Evaluation It is important to keep in mind that the types of upgrades that are built for each system are highly dependent on the characteristics of that specific system. Each system has its own properties that are critical to understand when evaluating alternatives. Some of the factors that may affect alternative evaluation include project feasibility, constructability, routing, anticipated costs, quality of life impacts, construction impacts, and compatibility with regulatory requirements. Factors similar to those listed above must be developed, understood, and considered when evaluating the alternatives. This is the next major aspect of the Sanitary Sewer Wet Weather Evaluation project after the FDD flow evaluation is complete. The next step will consist of hydraulic capacity evaluation of the system, followed by the evaluation of alternatives. We must perform flow evaluations first, followed by hydraulic capacity evaluations, in order to understand the characteristics and potential hydraulic capacity limitations of the system. We can then perform the alternative evaluation once the characteristics of the system are understood. Project Team Roles During this process, the OHM team will bring fourth technical information regarding the City s sanitary sewer system and alternatives, including hydraulic capacities, projected peak flows, risks and costs. The role of the Citizens Advisory Committee is to review the technical information and then evaluate the alternatives relative to community values, in order to make a recommendation to the City. Organization of Examples We have outlined several examples below of how other communities have addressed wet weather flow issues. Because the City of Ann Arbor is a separate sanitary sewer system, we have confined the examples primarily to other separate sanitary sewer systems. Several examples are provided and are grouped by the following categories: 1. Transport and Treat Construction of additional sewer capacity to transport flows to a wastewater treatment plant (WWTP). Sometimes these projects are paired with expansion of the treatment capacity of the WWTP if needed. 2. Storage Construction of a storage tank to retain peak flows during wet weather events. Sewage is then discharged back to the sanitary sewer after the flows have subsided.
3 3. Non- FDD Source Removal Rehabilitation of the sanitary sewer system to remove extraneous sources of stormwater and groundwater flow such as sewer lining, manhole repair, downspout disconnection and other techniques. 4. FDD Source Removal Footing Drain Disconnections 5. Hybrid Improvements The use of multiple approaches were implemented. These tend to be projects on large regional systems comprised of multiple communities. These projects are preferred in large, regional systems because of the multitude of challenges in dealing with regional, cross- jurisdictional issues. 6. Innovative Approaches Some innovative approaches have been implemented for addressing wet weather flow issues in sanitary sewer systems. Transport and Treat Please note that not many examples of communities who have constructed purely a transport and treat alternative are available, as these types of upgrades are commonly paired with other upgrades like storage, or occur over time as the system expands. Some examples of communities who expanded their plant and constructed additional transport capacity are also contained in the hybrid improvements section. 1. Oakland County, Michigan, Clinton- Oakland Sewage Disposal System (COSDS) Approximately 300,000 people are served by the COSDS. The COSDS collects sewage from 11 communities in northeast Oakland County including Rochester Hills, Auburn Hills, Waterford, West Bloomfield, Oakland and Orion. The system ultimately outlets to Detroit Water and Sewerage Department (DWSD) for treatment and disposal. The system has inadequate capacity to handle peak wet weather flows and experiences SSOs during large rain events. To address capacity constraints and existing peak flows, the COSDS is currently constructing a 35 million gallon per day pump station and a 2- mile long, 36- inch sewer to divert 30% of their total flow to the City of Pontiac sanitary sewer system (project cost of approximately $25 million). The Pontiac WWTP has excess capacity as a result of a loss of population and industrial base, but upgrades are required at the Pontiac WWTP based on the age and condition of the plant. Plant upgrades are not included in above cost. 2. Defiance, Ohio Population 16,500. Defiance has a mixture of combined sewers in the older portion of the City and separate sewers in the newer, outlying areas. Due to growth, the City desired to route a section of their separated sewer system around the older combined system to disconnect it from the combined sewer overflows and discharge it directly to the WWTP. The project consisted of a new 7 million gallon per day pumping station, and more than 12,000 feet of 10-
4 inch and 20- inch sanitary force mains. The project was located in jurisdictions of both the City of Defiance and Defiance County and involved land acquisition and permits from CSX for a rail crossing and from Ohio Department of Transportation for a state highway crossing. Storage 1. The Village of Dexter Population 4,100. The Village constructed a 400,000 gallon equalization basin at their WWTP to manage peak flows in The peak flows from their sanitary sewer system exceeded the capacity of the WWTP and storage was required by MDEQ to continue issuing sewer construction permits. 2. Rockford, Illinois Population 151,000. The Rock River Water Reclamation District (RRWRD) was required by the Compliance Commitment Agreement (CCA) with the Illinois Environmental Protection Agency (IEPA) to verify that the wastewater treatment plant (WWTP) can handle wet weather flows generated by a 10- year storm event. Peak flows from the system exceeded the capacity of the WWTP and the City constructed a 25 million gallon equalization basin and a 66 million gallon per day influent pump station to handle peak flows. The equalization basin was an open- top earthen basin with bio- engineered side slopes. 3. City of Wayne, Michigan Population 17,300. The City of Wayne constructed a 2.3 million gallon equalization basin in the 1990 s to capture peak sanitary sewer wet weather flows to reduce the sanitary sewer overflows. Historically, the tank has not been utilized very frequently to its full capacity. 4. City of Allen Park Population 27,700. The City constructed a transport storage tunnel to address their peak wet weather flows, address SSOs and meet the requirements of their Administrative Consent Order (ACO) with the MDEQ. The $21 million dollar tunnel is an 11-5 foot tunnel bore with an inside diameter of 8- feet providing 1.34 million gallons of storage and transport of peak flows. More information can be found at this web link: 5. Galesburg, Illinois Population 31,700. The Galesburg Sanitary District is a separate sanitary sewer system with extensive footing drains connected to the system resulting in high flows from the system. The district has an existing 2.9 million gallon open- top equalization basin at the WWTP, which they upgraded to 8.9 MG and upgraded their influent pump station to 53 million gallons per day to address peak flow capacity at the WWTP. 6. City of Farmington, Michigan Population 10,300. The majority of the City of Farmington discharges to DWSD for treatment and disposal and was originally constructed as a combined sewer system. The City performed sewer separation and constructed a 3 million gallon sanitary equalization tank in 1993 on the separate sewer system to address peak wet weather flow induced capacity issues and avoid sanitary sewer overflows.
5 7. City of Farmington Hills, Michigan Population 80,800. The City constructed the Kendallwood sanitary equalization tank to address peak wet weather flows and address sanitary sewer overflows downstream. The tank is 2 million gallons. Non- FDD Source Removal 1. West Bloomfield Township, Michigan Population 65,000. The Township spent approximately $20 million performing sewer rehabilitation, primarily in the form of sewer lining and manhole rehabilitation. The work was performed between 2008 and Flow evaluation was performed using pre- and post- rehabilitation flow data. There were no discernable impacts on the flows from the sewer rehabilitation. A technical memorandum is available that details the flow evaluation. It is believed that the flow removal effectiveness was limited because the lining projects were not effective at addressing the inflow of surface stormwater runoff into the sanitary sewer, and the ground water infiltration migrated to the service lead cut- outs/taps in the liner, the service laterals themselves, and other sewer defects. Despite the limited impact on flows, the lining program repaired structure defects present in the sewer system, effectively extending the life of the pipes. 2. Waterford Township, Michigan Population 72,000. Waterford Township performed sewer rehabilitation and manhole rehabilitation on a widespread basis (not in focused districts). Multi- year sewer and manhole rehabilitation program, spanning from included 75,000 lineal feet of sanitary sewer rehabilitated through lining (55,000 LF) or grouting (20,000 LF), 592 private sanitary sewer laterals lined, 140 manholes rehabilitated (various measures, including internal seals, frame adjustments, chimney liners), and system repairs to inflows identified during smoke testing of the collection system. There were no discernable impacts on the flows from the sewer rehabilitation. A technical memorandum is available that details the flow evaluation. It is believed that the flow removal effectiveness was limited because the lining projects were not effective at addressing the inflow of surface stormwater runoff into the sanitary sewer, and the ground water infiltration migrated to the service lead cut- outs/taps in the liner, the service laterals themselves, and other sewer defects. Despite the limited impact on flows, the lining program repaired structure defects present in the sewer system, effectively extending the life of the pipes. 3. Scio Township, Michigan Population 20,000. Scio Township performed a pilot manhole rehabilitation program in 2006 that involved 48 manholes. The manholes were located in a low- lying wetland area in which the manholes would regularly become inundated with stormwater and the manhole rims would become submerged by several feet. The manholes were rehabilitated by raising the rim of the manhole by several feet to be above the water level during storms and water proofing the manholes. Flow evaluations were performed using pre-
6 and post- rehabilitation flow data. The evaluation showed that approximately 75% of the peak flows were removed. This high rate of peak flow removal was considered unusual for manhole rehabilitation, and it was suspected that it was the result of the condition and location of the manholes in a wetland area. A paper on the rehabilitation and flow evaluation was published in 2008 and is available. 4. Naperville, Illinois - Population 144,000. I/I reduction consists of total sewer system rehabilitation in selected districts, where all sewers, manholes, and service leads are lined. The City spends $2.2M per year on the program. This covers 15,000 lineal feet of sewers, 150 service leads, and 35 manholes per year. Annual flows to the WWTP have been reduced by just over 10%, when adjusting for the impacts of population increase. Project Team Observation: Flow reduction data provided is inconclusive (pre- rehab and post- rehab storm comparisons were under varying antecedent moisture conditions). Footing Drain Disconnection (FDD) 1. Duluth, Minnesota Population 86,000. Program began in 1994 in response to consent decree from EPA. 8,400 homes disconnected to date. Homes inspected thru manhole access in basements in which foundation drain can be inspected. City has a list of 30 contractors to perform work. Construction involves installation of sump pump with discharge to grade in most cases. In some cases, discharge is routed to storm sewer if storm sewer is available. Paper published in 2003 by Lucas and Lipinski evaluated flow data from pre- and post- FDD. Results showed 46-49% of peak flows removed and peak flow removals of 4-6 gpm per FDD for design storms. The paper was previously distributed to the Best Practices sub group at the October 29, 2013 Citizens Advisory Committee meeting. 2. Johnson County, KS (Overland Park- largest City) - Population 560,000. In the 1980s and 1990s the County identified 16,000 sources that were disconnected, including sump pits, roof drains and area drains. 9,500 sump pits were disconnected. Basement backups drove the project. Work was finished in mid- 1990s. Post rehabilitation monitoring was performed. Removed 40-60% of I/I volume from work performed. Now looking at private service laterals. 3. Auburn Hill, Michigan Population 21,400. The City removed 532 FDDs from the Bloomfield- Orchards subdivision between 2001 and 2005, comprising 99% of the homes in the district. Flow removals were evaluated using pre- and post- FDD flow data. The program significantly reduced inflow, infiltration, and base flow volumes. Based on the unit rainfall and 25- year recurrence interval rainfall events used in the pre- rehab vs. post- rehab analysis, total flow volumes and peaks flows were reduced by 50%- 60%. Design peak flow removal rate was 2.4 gpm per FDD. Oakland County s technical memorandum on the flow evaluation was previously distributed to the Best Practices sub group at the October 29, 2013 Citizens Advisory Committee meeting.
7 4. Village of Morton, Illinois Population 16, ordinance allowed for inspection of homes for perimeter drains to see if connected to sanitary sewer. If connected, the ordinance provided $500 stipend to assist in disconnecting the perimeter drain. 2,000 homes inspected and 30% (600 homes) were found to have positive connections to the sanitary sewer. Of the 600 homes, about 550 have been completed since No pre- and post- metering was performed to assess effectiveness. The Village population has grown from 12,000 people to 17,000 people since 1994, yet the average flows at the WWTP have not changed. SSOs have been eliminated in some areas in the system where only perimeter drain disconnections were performed. 5. Superior, Wisconsin - Population 27,200. Project started in Program targets single- family, owner- occupied units with basement flooding issues. Removing clear water from sanitary/combined system is a mission for the program, but only for homes that are currently experiencing basement flooding issues. Foundation drain construction consists of installing a sump pump and piping to discharge foundation drainage to grade outside of home. Backwater valve installed on discharge line to prevent backflow. 80 homes completed since project inception. Limited data collected on effectiveness. A cursory evaluation was performed using a 40 home sample with run time meters on the sump pumps. They estimate that 25% of the average daily flow is attributable to foundation drain. 6. Marshfield, Wisconsin - Population 19,000. Program was started in 1998 and was quickly discontinued in favor of construction of new WWTP. Few if any homes were disconnected as part of the program. Superintendent couldn't recall the exact number of homes. City is considering re- starting the program with a point of sale ordinance in which the disconnection could be completed at that time. Cannot re- start a new program until the Levy freeze has been lifted in Wisconsin. 7. Montgomery County (Dayton), Ohio Dayton population 141,000. Program started in 1998 in response to sewer backups. 300 FDDs performed to date. No flow evaluations have been performed to date. 8. West Lafayette, Indiana - Population 30,400. Disconnect program was conducted in the 1990's and approximately 400 homes were disconnected out of 700 homes in the project area. CDM helped with implementation at the start and it transitioned to City staff only. Saw nearly a 20% flow reduction after the first year of the program with approximately a 40% during rain events. 9. Grand Rapids, Michigan Population 190,000. Program started in August of 2011 and the City has removed 286 homes. The City experienced backups in some areas during heavy rains. The City has conducted flow metering in the spring and its showed 65,000 gallons per house and 10,000,000 gallons removed out of the system. It is not clear what the time units are on these removal rates. Additional follow- up would be required.
8 Hybrid Improvements 1. Lathrup Village, Michigan Population 4,100. The Village constructed a 3.0 million gallon sanitary retention basin in the 1990 s to address peak wet weather flows and reduce sanitary sewer overflows. The Village has continued to experience high wet weather flows and occasionally fills their tank, causing sanitary sewer overflow, which has lead to an ACO with MDEQ and their participation in Oakland County s regional EFSDS system project (see description below). High wet weather flows are believe to be generated from private property including footing drains and service leads, and from infiltration into their sewer pipes, which were primarily constructed using short- sections of clay pipe without sealed joints. Many of their sewers are built beneath the ditch- line that conveys stormwater flow, and migration from the storm ditches to the sanitary pipe joints was suspected as a major flow source. In response to this, the Village performed extensive sewer lining of the majority of their system. However, this system rehabilitation does not appear to have had a significant impact on peak wet weather flows, and the Village still experiences high wet weather flows after the rehabilitation. It is suspected that the inflow sources have migrated from the joints to the holes in the liner for the service leads and the service leads themselves. As a result, the Village is planning on increasing their discharge capacity to the EFSDS system and participating in the County s regional project to address peak wet weather flow, which will likely consist of a regional storage tank. 2. Wayne County Downriver System Approximately 300,000 people served. The Downriver system is comprised of 15 communities in Wayne County ranging from Wyandotte to Belleville. An aggressive program of pipeline and manhole rehabilitation was undertaken from , and subsequent flow metering was performed to determine the I/I reductions. Post rehabilitation showed at most a 10% reduction in the I/I as a result of the work performed in the public sewer system. In most cases, the flow metering did not show any quantifiable reduction (<5%) in the I/I given the uncertainty of this type of metering endeavor. A conclusion was that private side I/I was the dominant source of I/I. A storage and conveyance solution was then constructed in the 1990 s which consisted of 18 miles of pipe and tunnel ranging in size from 54- inch to 90- inch (inside diameter), providing a total storage volume of 15 million gallons of storage and transportation capacity for the system s peak wet weather flows to the Wyandotte WWTP. The project was constructed in 11 different contracts with a total project cost of $94 million. The project also included major capacity upgrades at the WWTP to handle the peak flows. 3. The Western Townships Utilities Authority (WTUA) Approximately 132,000 people served. WTUA constructed both storage facilities, transportation facilities to the Ypsilanti Community Utilities Authority and upgrades at the YCUA WWTP to handle the flows from their system, while disconnecting the majority of their flows from the DWSD system. In 1986, WTUA was formed by the Charter Townships of Canton, Northville and Plymouth. It was established to
9 identify an alternate means of providing sanitary sewer services and wastewater treatment for the townships other than that provided by the Rouge Valley Sewage Disposal System and DWSD. During the first decade of operation, WTUA constructed and/or acquired a wastewater collection and transportation system to meet the growing needs of its three member communities. This system is primarily comprised of 27 miles of large diameter interceptor sewers; a 60 million gallon per day lift station and a 35 million gallon per day pump station both with underground retention basins (7.8 million gallons and 11.0 million gallons); and about 18 miles of force main sewers pipes. In October 2000, WTUA signed a long- term agreement with Ypsilanti Community Utilities Authority (YCUA) for the provision of wastewater treatment services for future flows. The project involved a 17 million gallon per day expansion of the existing 29 million gallon per day treatment plant. The expansion was completed in Oakland County, Michigan, Evergreen- Farmington Sewage Disposal System (EFSDS) - Approximately 350,000 people served. The EFSDS collects sewage from 15 communities in Southern Oakland County, including Southfield, Bloomfield Township, Troy, Farmington Hills and West Bloomfield. The system experiences sanitary sewer overflow and basement flooding at several locations. The County is currently in the process of evaluating alternatives. Although the upgrades are not yet constructed, the system provides a good example of the process and considerations that go into evaluating alternatives. The EDSDS entered into an ACO with MDEQ due to sanitary sewer overflows in The communities performed short- term corrective measures between 2004 and 2011, which largely consisted of system rehabilitation and source removal. The most extensive rehabilitation was performed in West Bloomfield and Lathrup Village (see project descriptions above). This rehabilitation appears to have had negligible or minor impacts on peak wet weather flows. The County s Long Term Corrective Action Plan consists of a hybrid approach of several options. The primary strategy is distributed storage tanks. The plan also includes several sections of relief sewer to transport the flows to the storage facilities, and linear storage to provide storage volume in locations where land is not available for a large tank. Components of the plan are still evolving and will continue to evolve during the remaining 10- year Implementation period. The current plan consists of 30 different projects (storage tanks, relief sewers, linear storage) and has preliminary cost estimates of approximately $100 million - $200 million. One of the first projects to be built is the Middlebelt Transport Storage Tunnel. This project has been designed and construction is expected to start next summer. The project will address the largest sanitary sewer overflow in the system and is comprised of 7,500 feet of 9- foot diameter tunnel (inside diameter), providing 3.5 million gallons of storage for an estimated cost of $46 million. Innovative Approaches 1. Northern Kentucky Sanitary District Number 1 The district is implementing a watershed approach to addressing combined and separate sanitary sewer
10 overflows. From their web site: In 2007, SD1 entered into a federal court order with the USEPA, the Kentucky Environmental Public Protection Cabinet and the US Department of Justice, requiring an estimated $1.2 billion investment over the next 20 years to address sewage overflows in Northern Kentucky. Included in the order was the requirement to construct two new regional wastewater treatment plants a four mgd plant in Campbell County and a 20 mgd plant in Boone County. The Eastern Regional Water Reclamation Facility in Campbell County, was completed in 2008 and the Western Regional Water Reclamation Facility in Boone County, became operational in spring SD1 is taking a watershed approach to future improvement plans that will holistically evaluate the cumulative impacts of pollution sources on receiving waters. The use of this watershed approach will lead to more rapid improvements in water quality in critical areas with more efficient and cost- effective solutions for the region. Additional information can be found at the following links: History: Detailed approach description: %20Executive%20Summary.pdf
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