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Staff Report 6082
City of Palo Alto (ID # 6082) Finance Committee Staff Report Report Type: Action Items Meeting Date: 9/22/2015 City of Palo Alto Page 1 Council Priority: City Finances Summary Title: Storm Drainage Fee Renewal Title: Recommendation to Direct Staff to Develop and Plan for Election to Authorize New Storm Drain Fees to Continue Appropriate Storm Drain Funding After Current Fees Sunset in 2015, Including Appointment of a Citizen Advisory Committee and a Potential 2016 Property Owner All-Mail Election From: City Manager Lead Department: Public Works Recommendation Staff recommends that the Finance Committee recommend that Council: 1. Direct staff to work towards a Fall 2016 property owner vote-by-mail election to authorize imposition of property-related fees to fund the Storm Drainage Enterprise Fund beyond the funding term of the previous storm drain measure, which property owners approved in 2005 and which sunsets in June 2017; and 2. Direct the City Manager to appoint a citizen advisory committee to assist staff with the development of the 2016 funding measure, including a list of operational programs and capital improvement projects to be funded by the fees. Executive Summary The City’s storm drain capital improvement, maintenance and water quality protection programs are funded by Storm Drainage Fees imposed on all developed properties in the City and collected through monthly utility bills. Before 1996, cities had the authority to establish reasonable storm drainage fees City of Palo Alto Page 2 as part of the annual budget process. In November 1996, however, California voters passed Proposition 218, which dictates that property-related fees (except fees to fund sewer, water and refuse collection services) cannot be imposed or increased without the approval of a majority of property owners subject to the fee or two-thirds of voters. Palo Alto property owners approved a ballot measure in 2005 that increased the Storm Drainage Fee to cover the cost of seven high-priority storm drain capital improvement projects, enhanced storm drain system maintenance and storm water quality protection programs, baseline staffing, and debt service payments for revenue bonds used to fund past storm drain capital improvements. These property owner-authorized storm drainage fees are due to sunset in June 2017, which will create a funding shortage for the Storm Drainage Fund. Unless a new ballot measure is approved, storm drain maintenance operations will be curtailed and necessary capital improvements will not be made. Staff believes that it is critical to begin planning now for the development and placement before property owners of a new measure authorizing updated storm drainage fees. This report contains information supporting staff’s recommendation that Council direct staff to convene a citizen advisory committee to assist with the creation of a ballot measure, including needed storm drain projects and programs, to be presented to property owners for approval in Fall 2016. Background The City’s storm drain capital improvement, maintenance and water quality protection programs are funded through the Storm Drainage Fund, an enterprise fund established by Council in 1989. Prior to 1989, storm drain system maintenance and a very limited capital improvement program were funded by the General Fund. Revenue to fund the Storm Drainage Fund’s programs and projects is currently generated by a Storm Drainage Fee assessed to all developed properties in the City on monthly utility bills. The Storm Drainage fee schedule is based upon the premise that a property’s use of the municipal storm drain system is dependent upon the amount of storm water runoff that it generates during storm events, which in turn is related to the amount of impervious surface (hardscape such as buildings, driveways, patios, City of Palo Alto Page 3 parking lots, etc.) on the property. The Storm Drainage fee schedule has three flat rates for single-family residential parcels based on lot size and a multi- family/commercial/industrial rate based on actual measured impervious surface on each parcel (see Attachment A: Utility Rate Schedule D-1 - General Storm and Surface Water Drainage; and Attachment B: Utility Rule and Regulation 25 - General Storm and Surface Water Drainage). The Storm Drainage rate schedule billing unit is the Equivalent Residential Unit (ERU), which equates to 2,500 square feet of impervious surface, the amount of hardscape on a typical Palo Alto single- family residential property. The Storm Drainage Fee was originally set with the establishment of the Storm Drainage Enterprise Fund in 1989 at a rate of $3.25 per month per ERU. Council increased the monthly rate to $4.25 per month per ERU as part of the FY 1994 budget approval process. Council traditionally had the authority to set the Storm Drainage rates as part of the annual City budget approval process. In November 1996, however, California voters passed Proposition 218, a comprehensive constitutional amendment that sets substantive and procedural requirements for many types of property-related fees, assessments, and taxes. Under Proposition 218, most property-related fees (with some exceptions) cannot be imposed or increased without the approval of a majority of property owners subject to the fee or a supermajority of voters. California courts have held that storm drainage fees like Palo Alto’s are property- related fees subject to Proposition 218’s procedural and substantive requirements. As a result, the City must obtain property-owner or voter approval before increasing Storm Drainage fees. After the rate increase in FY 1994, Storm Drainage Fund expenses continued to increase annually, and eventually put the Fund into a deficit situation wherein the Fund revenues could not cover the base operational costs of the storm drain program and all capital improvements were deferred. This led to the need for an annual General Fund subsidy to cover the Storm Drainage Fund’s operational funding shortfall. To eliminate the General Fund operational subsidy payment to the Storm Drainage Fund and generate funding for needed storm drainage capital improvements, the City conducted a property owner election in September 2000 per the requirements of Proposition 218, seeking approval to increase the Storm Drainage Fee from its then-current level of $4.25 per month per ERU up to $9.00 per month. The ballot measure was unsuccessful, with an approval rate of only 37 percent. City of Palo Alto Page 4 Staff analyzed the failed September 2000 Storm Drainage Fee election and concluded that it was not successful because it lacked adequate public vetting. Staff realized that the community would have been more responsive to a resident-driven, grass roots campaign and that it would be critical that the scope and size of any future fee increase proposal represent the desire of the majority of community members. Therefore, Council approved a staff recommendation that the City Manager convene a Blue Ribbon Committee of community and neighborhood leaders to assist in the development of a plan to fund storm drain improvements. The Blue Ribbon Committee, working cooperatively with staff from the Public Works and Administrative Services Departments, was tasked with making recommendations to Council on the scope, size, and timing of the next funding proposal. The Blue Ribbon Committee of fifteen residents, business representatives and community leaders led by former Mayor Larry Klein had its first meeting on May 3, 2002 and met 18 times for a total of 45 hours through mid-2004. At its final meeting on July 23, 2004, the committee voted on and approved a set of recommendations. The committee’s recommendations included a set of specific provisions and projects that resonated with property owners and resulted in approval of a fee increase. Key provisions in the ballot measure included a “sunset” on the higher fees, a cap on incremental annual fee increases subject to Council approval, and the creation of an oversight committee to ensure that the funds would be expended according to the terms of the ballot measure. Council gave final approval to the Blue Ribbon Committee’s recommendations on December 6, 2004 and authorized a property owner ballot-by-mail election to be held in April 2005. The City conducted a property owner election in April 2005 seeking approval of an increased Storm Drainage Fee to fund needed storm drain capital improvements and enhanced storm drain maintenance and storm water quality protection. The ballot measure included the following key elements: An initial Storm Drainage Fee of $10.00 per month per ERU (fee for the typical single-family residential property owner) Funding for seven high-priority storm drain capital improvements, estimated to cost approximately $17 million (2004 dollars) City of Palo Alto Page 5 Annual funding for innovative projects that reduce storm water runoff and pollutant levels Annual inflation-based adjustments to the proposed fee increase, subject to Council approval, with a maximum annual increase of 6% Twelve-year sunset provision for the proposed fee increase (ending in June 2017) Council appointment of a citizen oversight committee tasked with ensuring that the money raised from the increased Storm Drainage Fee is spent in accordance with the ballot measure The Storm Drainage 2005 ballot measure (see Attachment C for a complete copy of the ballot) was approved, with 58 percent of responding property owners voting in favor of the fee increase. Passage of the measure allowed for the elimination of what had grown to be annual subsidy funding of approximately $0.8 million from the General Fund in support of the Storm Drainage Fund in FY 2005. The successful 2005 Storm Drainage ballot measure has provided enhanced revenue for a fully self-sufficient Storm Drainage Fund, including funding for capital projects and ongoing operating expenses. Five of the seven storm drain capital improvement projects specified in the ballot measure have been completed to-date. The final one-third of the Lincoln Avenue Storm Drain Improvements is due to be constructed in FY 2016, and the final project – the Matadero Storm Water Pump Station Improvements – will be designed this fiscal year, with construction scheduled to start in FY 2017 (see Attachment D for a status update on the Storm Drainage Fund Capital Improvement Program). In addition to capital projects, the Storm Drainage Fund provides funding to comply with the City’s stringent storm water permit requirements. The Federal Clean Water Act requires the City to comply with a State-issued permit to discharge storm water. The Municipal Regional Storm Water Discharge Permit became effective in 2009, and a new version will be issued this fall. The main goals of the storm water permit are to avoid discharge of substances other than rain to the storm drain system. The Council-appointed Storm Drain Oversight Committee of local residents has performed annual reviews of the Storm Drainage Fund budget and expenditures to ensure compliance with the approved 2005 ballot measure. As authorized by property owners through the ballot measure, Council has City of Palo Alto Page 6 approved increases in the base single-family residential Storm Drainage rate of $10.00 per month per ERU each year based on the local rate of inflation. The base rate for FY 2016 is $12.63 per month per ERU, representing an average increase of 2.4 percent per year since 2005. If no action is taken to approve updated fees, the previously-approved fees will sunset in 2005. The fee will revert back to its pre-2005 level of $4.25 per month per ERU in June 2017. Revenue from the $4.25 per month fee will not support current operational costs for storm drain system maintenance and State-mandated storm water quality protection programs and will provide no funding for continuation of a storm drain capital improvement program. The seven high-priority storm drain capital improvement projects specified for funding in the 2005 Storm Drainage ballot measure were based on recommendations made in the 1993 Storm Drain Master Plan. During the Blue Ribbon Committee’s deliberations on the scope and size of the ballot measure, the committee acknowledged that there were a number of additional capital projects that would need to be funded after the June 2017 sunset date. Much of the City’s storm drainage infrastructure was constructed in a poorly coordinated manner as part of multiple individual residential subdivision developments during the high growth years between the mid-1940s and late-1960s. Many elements of the existing storm drain system do not meet the modern design standard of being able to convey the storm runoff from a 10% or 10-year recurrence storm event without street flooding. In preparation for a potential future Storm Drainage ballot measure, staff completed a Storm Drain Master Plan Update in June 2015 that rexamined and reprioritized the storm drain capital improvements needed to increase the flow capacity of the City’s storm drain system to bring it into conformance with current design standards. The Master Plan Update identifies an estimated $14 million in highest-priority storm drain capital improvement projects and $23 million in high- priority projects needed for flow capacity augmentation (see Master Plan Executive Summary, Attachment E). Discussion Staff believes that it is critical to begin planning for the development and presentation to property owners of a new Storm Drainage ballot measure seeking approval of increased storm drain funding before the 2005 measure sunsets in City of Palo Alto Page 7 June 2017. If the Storm Drainage Fee reverts back to its pre-2005 level of $4.25 per month per ERU, it will generate approximately $2.1 million per year. This amount of revenue would not fully support a minimum level of storm drainage service, which would cost approximately $3.5 million per year, as itemized below: Baseline staff and expenses $2.5 million Annual debt service (through FY 2024) $1.0 million (for past revenue bonds used to fund storm drain capital projects) In addition, the pre-2005 level of funding would preclude any further storm drain capital improvement projects. Furthermore, there are new or modified storm drain programs that will likely need additional funding in the future, including State-mandated storm water quality protection programs such as green infrastructure planning and implementation expected to be required in the next Municipal Regional Storm Water Discharge Permit and enhanced storm drain system maintenance. Approval of a new Storm Drainage Fee requires multiple steps, including specific procedures mandated by Proposition 218. The first step is the development of a detailed spending plan of storm drain capital improvement projects and operational programs to be paid for with the increased fees, along with the costs associated with the plan. Next, the specific monthly fee to be charged to each developed land parcel in the City would need to be tabulated. Public notices including a detailed description of the spending plan and parcel-specific monthly cost information would then be mailed to each property owner. The mailing of the public notices would initiate a 45-day comment period which would culminate with a majority protest hearing held during a regular Council meeting. Property owners would have the opportunity to appear before Council during the hearing to register their concerns and protest the proposed fee increase. Those opposed to the proposed fee increase would need to submit a written protest to the City Clerk in order to officially register their opposition. At the end of the hearing, the City Clerk would report the number of valid written protests so that the Council could determine whether a majority protest had been received. If Council were to determine, at the close of the public testimony portion of the public hearing, that written protests had been received from property owners representing a majority of the parcels subject to the proposed City of Palo Alto Page 8 fee increase, the Mayor would declare the proceedings closed, and the fee increase would not be approved. If, however, Council were to determine that less than a majority of property owners have submitted written protest, the Council could choose to move forward to the next stage of the Proposition 218 approval process, the mailing of ballots to eligible property owners. Assuming that Council were to decide to call for a mail ballot proceeding, the ballots would then be mailed to all eligible property owners. Ballots for the Storm Drainage Fee ballot proceeding would consist of a single question that requires a checkmark either for or against the proposed fee increase. The ballots would be supplemented with a summary of the balloting procedures and a description of the proposed fee and storm drain spending plan. Ballots would be due back to the City Clerk 45 days following the mailing of the ballots. The ballot measure would be approved if a simple majority of property owners returning ballots voted in favor of the measure. If the ballot measure were approved, Council could proceed to approve the new fee schedule consistent with the ballot measure. Staff recommends that the implementation of a Storm Drainage Fee increase proposal be timed such that the ballots are sent to property owners and received in Fall 2016. This schedule would ensure that timely financial information about the Storm Drainage Fund is available for preparation of the FY 2018 budget. A potential implementation schedule for a Storm Drainage ballot measure is provided in the Timeline section of this report. One of the key lessons learned from the year 2000 and 2005 Storm Drainage ballot measures is the importance of community engagement in the development of the scope and cost of the proposed storm drain spending plan and the associated user fee. Staff recommends that the Council direct the City Manager to appoint a Blue Ribbon Committee of community and neighborhood leaders to assist with a potential 2016 ballot measure. The Blue Ribbon Committee, working with staff from the Public Works and Administrative Services Departments, will make recommendations to Council on the scope, size, and timing of the funding proposal. Selection of the members of the Blue Ribbon Committee is an important first step in the process of developing a successful funding proposal. Staff recommends City of Palo Alto Page 9 that the Blue Ribbon Committee be comprised of members with a variety of backgrounds, areas of expertise, and perspectives in order to represent the diversity of the community. For example, as a group the committee should represent the following interests: • Various land uses (e.g. residential, commercial, etc.) • Various neighborhoods (including both north and south Palo Alto) • Technical expertise • Financial expertise • Various age groups • Various demographics (e.g. income level, renters, owners, families, seniors, etc.) On an individual basis, committee members should have the following traits in common: • Interested in storm drainage and/or watershed protection as a community issue • Able to make necessary time commitment to attend meetings • Able to listen and build consensus in a group setting • In touch with the “pulse of the community” • Respected in the community Staff recommends that the Blue Ribbon Committee be assigned to work with staff to develop a funding proposal for future storm drain improvements. Staff would meet with the committee members over a five-month period to provide information about the existing storm drain funding mechanism, the capital improvements recommended in the Storm Drain Master Plan Update, other non- capital storm drainage needs, and the requirements of Proposition 218. The committee would use this information to formulate a community-based recommendation to Council on the scope, size, and timing of the funding proposal. Specifically, the committee should address the following elements of a funding proposal: • Recommendations on the size, scope, and duration of a capital improvement program • Recommendations on the scope of enhancements to storm drain City of Palo Alto Page 10 maintenance, storm water quality protection program, and other program elements • Identification of appropriate funding mechanism • If property owner election is recommended: o Timing of election o Amount of monthly Storm Drainage Fee • Identification of the length of “sunset clause” that should be incorporated into a fee increase proposal and recommendation for what will happen to the rate at “sunset” • Identification of an appropriate annual fee escalation factor to apply to the proposed rate schedule • Determination of the make-up and mission of an independent oversight body to periodically monitor the implementation of the storm drain improvements Timeline The following is a potential timeline for implementation of a Storm Drainage ballot measure: 9/22/15 Recommendations to Finance Committee on future storm drain funding 10/19/15 Council authorization to appoint Blue Ribbon Committee to recommend storm drain funding strategy, scope, and cost 11/2/15 Convene Blue Ribbon Committee 4/4/16 Conclusion of Blue Ribbon Committee deliberations; final recommendations memo (5-month deliberation period) 5/9/16 Council review/approval of Blue Ribbon Committee recommendations 6/6/16 Council adoption of resolutions proposing a Storm Drainage Fee increase and establishing procedures for protest hearing/mail ballot proceeding City of Palo Alto Page 11 7/11/16 Legal notices mailed; start of 1st 45-day noticing period 8/25/16 Protest hearing (Need at least 45-day protest period) 9/19/16 Ballots mailed 11/3/16 Ballots due back to City Clerk (Need at least 45 days between protest hearing & final balloting day) 12/5/16 Council certification of election results 6/1/17 Effective date of new rate Resource Impact In order to maintain the self-sufficiency of the Storm Drainage Fund, the City must secure property owner approval of a ballot measure authorizing increased storm drain funding before the 2005 ballot measure sunsets in June 2017. If the Storm Drainage Fee reverts back to its pre-2005 level of $4.25 per month per ERU, it will generate approximately $2.1 million per year. This amount of revenue would not support a minimum level of storm drainage service, which would cost approximately $3.5 million per year. In addition, the pre-2005 level of funding would preclude any further storm drain capital improvement projects. If a new ballot measure is not approved, storm drain system operations would need to be significantly curtailed. Policy Implications Identification of funding for storm drain capital improvements is consistent with Policy N-24 of the Comprehensive Plan, which states that the City should “improve storm drainage performance by constructing new system improvements where necessary and replacing undersized or otherwise inadequate lines with larger lines or parallel lines.” Program N-36 further states that the City should “complete improvements to the storm drainage system consistent with the priorities outlined in the City’s 1993 Storm Drainage Master Plan, provided that an appropriate funding mechanism is identified and approved by the City Council.” City of Palo Alto Page 12 Environmental Review Establishment of a citizen's committee and development of a plan to propose updated storm drain fees does not constitute a project subject to California Environmental Quality Act (CEQA) review, and no environmental analysis is required at this time. The level of future CEQA review will depend on the scope of the storm drain capital improvement projects that may be funded by the updated storm drainage fees. Staff is exploring the level of CEQA review required prior to the election and will incorporate any such review into the implementation schedule. Courtesy Copies Storm Drain Oversight Committee Attachments: ATTACHMENT A - Utility Rate Schedule D-1 (PDF) ATTACHMENT B - Utility Rule and Regulation 25 (PDF) ATTACHMENT C - 2005 Storm Drain Ballot (PDF) ATTACHMENT D - Status of Storm Drainage Fund Capital Projects Listed in 2005 Ballot Measure (PDF) ATTACHMENT E - Storm Drain Master Plan Executive Summary (PDF) GENERAL STORM AND SURFACE WATER DRAINAGE UTILITY RATE SCHEDULE D-1 CITY OF PALO ALTO UTILITIES Issued by the City Council Effective 7-1-2015 Supersedes Sheet No.D-1-1 dated 7-1-2014 Sheet No.D-1-1 A. APPLICABILITY: This schedule applies to all storm and surface water drainage service, excepting only those users and to the extent that they are constitutionally exempt under the Constitution of the State of California or who are determined to be exempt pursuant to Rule and Regulation 25. B. TERRITORY: Inside the incorporated limits of the city of Palo Alto and land owned or leased by the city. C. RATES: Per Month: Storm Drainage Fee per Equivalent Residential Unit (ERU) .......................................................$12.63 D. SPECIAL NOTES: 1. An Equivalent Residential Unit (ERU) is the basic unit for computation of storm drainage fees for residential and non-residential customers. All single-family residential properties shall be billed the number of ERUs specified in the following table, based on an analysis of the relationship between impervious area and lot size for Palo Alto properties. RESIDENTIAL RATES (Single-Family Residential Properties PARCEL SIZE (sq.ft.) ERU <6,000 sq.ft. 0.8 ERU 6,000 - 11,000 sq.ft. 1.0 ERU >11,000 sq.ft. 1.4 ERU All other properties will have ERU's computed to the nearest 1/10 ERU using the following formula: No. of ERU = Impervious Area (Sq. Ft.) 2,500 Sq. Ft. 2. For more details on the storm drainage fee, refer to Utilities Rule and Regulation 25. {End} SPECIAL STORM AND SURFACE WATER DRAINAGE UTILITY REGULATIONS RULE AND REGULATION 25 CITY OF PALO ALTO UTILITIES Issued by the City Council Effective 6-13-2000 Supersedes Sheet No. -1 dated 7-1-98 Sheet No. 1 A. GENERAL: For the purpose of CPAU Rate Schedule D-1 and this Rule and Regulation, the following words and terms shall be defined as follows, unless the context in which they are used clearly indicates otherwise. The definitions of words and terms set forth in Titles 12 and 13 of the Palo Alto Municipal Code shall also apply herein to the extent that they are not inconsistent herewith: 1.“Developed Parcel”shall mean any lot or parcel of land altered from its natural state by the construction, creation, or addition of impervious area, except public streets and highways. 2.“Equivalent Residential Unit (ERU)” shall mean the basic unit for the computation of storm drainage fees. The ERU’s for all parcels other than single-family residential properties shall be computed to the nearest 1/10 ERU using the following formula: Number of ERU = Impervious Area (Sq. Ft.) 2,500 Sq. Ft. The ERU's for single-family residential properties shall be computed as set forth in CPAU Rate Schedule D-1. 3. “Impervious Area”shall mean any part of any developed parcel of land that has been modified by the action of persons to reduce the land’s natural ability to absorb and hold rainfall. This includes any hard surface area which either prevents or retards the entry of water into the soil mantle as it entered under natural conditions pre-existent to development, and/or a hard surface area which causes water to run off the surface in greater quantities or at an increased rate of flow from the flow present under natural conditions pre-existent to development. By way of example, common impervious areas include, but are not limited to roof tops, walkways, patios, driveways, parking lots or storage areas, concrete or asphalt paving, gravel roads, or any cleared, graded, paved, graveled, or compacted surface or packed earthen materials, or areas covered with structures or other surfaces which similarly impede the natural infiltration of surface water into the soil mantle. SPECIAL STORM AND SURFACE WATER DRAINAGE UTILITY REGULATIONS RULE AND REGULATION 25 (Continued) CITY OF PALO ALTO UTILITIES Issued by the City Council Effective 6-13-2000 Supersedes Sheet No. -2 dated 7-1-98 Sheet No. 2 4.“Non-Single-Family Residential Property”shall include all developed parcels zoned or used for multi-family, commercial, industrial, retail, governmental, or other non-single family residential purposes and shall include all developed parcels in the City of Palo Alto not defined as single-family residential property herein. 5 “Parcel”shall mean the smallest separately segregated lot, unit or plot of land having an identified owner, boundaries, and surface area which is documented for property tax purposes and given a tax lot number by the Santa Clara County Assessor. 6.“Primary CPAU Account”shall mean that CPAU account, as determined below, that will be assessed the storm drainage fee for a given developed parcel: (A) If there is only one CPAU account associated with a developed parcel, then that account is the Primary CPAU Account. (B) If there is more than one CPAU account associated with a developed parcel, then the Primary CPAU account shall be the account listed below, in order of preference: (1) The CPAU account designated as the “house account” or, if none or more than one, then; (2) The CPAU account in the name of the owner of the parcel, or if none, then; (3) The CPAU account(s) in the name of the occupier(s) of the parcel. (4) If more than one account, then the CPAU account that includes the most CPAU services. 7. “Single-Family Residential Property” shall include all developed parcels with either one or two single-family detached housing units or one two-unit attached dwelling structure commonly known as a “duplex.” 8.“Storm and Surface Water Control Facilities” shall mean all man-made structures or natural water course facility improvements, developments, properties or interest therein, made, constructed or acquired for the conveyance of storm or surface water runoff for the purpose SPECIAL STORM AND SURFACE WATER DRAINAGE UTILITY REGULATIONS RULE AND REGULATION 25 (Continued) CITY OF PALO ALTO UTILITIES Issued by the City Council Effective 6-13-2000 Supersedes Sheet No. -3 dated 7-1-98 Sheet No. 3 of improving the quality of, controlling, or protecting life or property from any storm, flood, or surplus waters. 9.“Storm Drainage Facilities” shall mean the storm and surface water drainage systems comprised of storm and surface water control facilities and any other natural features which store, control, treat and/or convey storm and surface water. Storm Drainage Facilities shall include all natural and man-made elements used to convey storm water from the first point of impact with the surface of the earth to the suitable receiving body of water or location internal or external to the boundaries of the City of Palo Alto. Such facilities include all pipes, appurtenant features, culverts, streets, curbs, gutters, pumping stations, channels, streams, ditches, wetlands, detention/retention basins, ponds, and other storm water conveyance and treatment facilities whether public or private. See CPAU Rule and Regulation No. 8 “Access to Premises.” 10.“Storm and Surface Water”shall mean water occurring on the surface of the land, from natural causes such as rainfall, whether falling or flowing onto the land in question. 11.“Undeveloped Parcel” shall mean any parcel which has not been altered from its natural state by the construction, creation, or addition of impervious area. B. STORM DRAINAGE FEES: 1. There is hereby imposed on each and every developed parcel of land within the City of Palo Alto, and the owners and occupiers thereof, jointly and severally, a storm drainage fee. This fee is deemed reasonable and is necessary to pay for: (A) Improving the quality of storm and surface water; (B) The operation, maintenance, improvement and replacement of the existing City storm drainage facilities; and (C) The operation, maintenance, and replacement of future such facilities. It is the intent of the City of Palo Alto, and the City has calculated the storm drainage fee in such a manner, that the amount of the fee imposed upon any parcel shall not exceed the proportional cost of the service attributable to the parcel. It is the further intent of the City SPECIAL STORM AND SURFACE WATER DRAINAGE UTILITY REGULATIONS RULE AND REGULATION 25 (Continued) CITY OF PALO ALTO UTILITIES Issued by the City Council Effective 6-13-2000 Supersedes Sheet No. -4 dated 7-1-98 Sheet No. 4 that revenues derived from the fee shall not exceed the funds required to provide the property-related services described in this Rule and Regulation 25, and that revenues derived from the fee shall not be used for any purpose other than those described in this Rule and Regulation 25. 2. All of the proceeds of these fees are deemed to be in payment for use of City storm drainage facilities by the developed parcel on, and with respect to, which the fee is imposed, and the owners and/or occupiers thereof. 3. The storm drainage fee shall be payable monthly and shall be paid to CPAU, as billed by CPAU, for each and every developed parcel in the City by the owner or occupier responsible for the Primary CPAU account for other CPAU services for the subject parcel, unless otherwise agreed in writing by CPAU. The method of billing described in this Rule and Regulation 25 has been designed for administrative efficiency. However, because the storm drainage fee is a "property-related fee" as defined by Article XIIID, Section 6 of the California Constitution, a property owner may in writing request that the storm drainage fee for a parcel owned by the property owner be billed directly to the owner, notwithstanding the typical method of billing. Because the storm drainage fee is a "property-related fee," the parcel owner shall be responsible to pay all unpaid or delinquent storm drainage fees. For administrative efficiency, the storm drainage fee for condominium and townhouse-style developments is typically billed to the CPAU account of the Homeowners' Association. 4. If a developed parcel does not have a CPAU account on the effective date of this Rule and Regulation, a new account shall be established for that parcel and billed to the owner as shown on the latest County Assessor's property tax rolls until such time as a Primary CPAU account is established for other CPAU services. 5. When an undeveloped parcel is developed, a new account shall be established and billed to the owner of that parcel as shown on the latest property tax rolls of the Santa Clara County Assessor until such time as a Primary CPAU account is established for other CPAU services. 6. BASIS FOR CALCULATION SPECIAL STORM AND SURFACE WATER DRAINAGE UTILITY REGULATIONS RULE AND REGULATION 25 (Continued) CITY OF PALO ALTO UTILITIES Issued by the City Council Effective 6-13-2000 Supersedes Sheet No. -5 dated 7-1-98 Sheet No. 5 (A) The storm drainage fee shall be based on the relative contribution of storm and surface water from a given developed parcel to City storm drainage facilities. (B) The relative contribution of storm and surface water from each developed parcel shall be based on the amount of impervious area on that parcel and shall determine that parcel’s storm drainage fee. (C) For administrative efficiency, the impervious area of condominium and townhouse- style developments is typically calculated for the entire development rather than on a per-parcel basis. (D) The extent of impervious area will be established to the nearest square foot by any of the following methods: (1) Computation of the impervious area using on-site measurements of the apparent outside boundaries of the impervious area in or on such developed parcels made by CPAU or on its behalf; or (2) Computation of the impervious area using the dimensions of the impervious area in or on the developed parcels which are set forth and contained in the records of the office of the County Assessor. (3) Estimation, calculation and computation of the impervious area using aerial photography or photogrammetry, or using the information and data from on- site measurements of like or similar property or features or as contained in City or County records. (4) Computation of the impervious area using information submitted by building permit Applicants on forms provided by the City, subject to review and correction by the City. 7. CALCULATION OF MONTHLY FEE Monthly fees for all developed parcels shall be computed in accordance with the following formula: SPECIAL STORM AND SURFACE WATER DRAINAGE UTILITY REGULATIONS RULE AND REGULATION 25 (Continued) CITY OF PALO ALTO UTILITIES Issued by the City Council Effective 6-1-2005 Supersedes Sheet No. -6 dated 6-13-2000 Sheet No. 6 Number of ERU’s x Rate per ERU as set forth in CPAU Rate Schedule D-1. 8. APPLICATION (A) Developed Parcels: Storm drainage fees shall apply to all developed parcels within the City, including those classified as non-profit or tax-exempt for ad valorem tax purposes. The fees shall apply to all government properties, to the full extent permitted by the constitutions of the United States and the State of California, including developed parcels of the City of Palo Alto, City-owned buildings and parks, but excluding public streets and highways. (B) Undeveloped Parcels: Storm drainage fees shall not be levied against undeveloped parcels that have not been altered from their natural state as defined herein under “Impervious Areas.” (C) Proportional Reduction of Fees: Developed parcels that have their own maintained storm drainage facility or facilities, and which do not utilize City facilities or which make no substantial contribution of storm or surface water to the City’s storm drainage facilities shall be liable to pay only that portion of the storm drainage fee attributable to the generic discharge of storm runoff (e.g. coordination with the Santa Clara Valley Water District on regional flood control projects, administration of the City's flood hazard regulations, and implementation of the urban runoff pollution prevention program) and shall not be liable to pay for the portion of the fee attributable to the actual usage of (i.e. drainage into) the City's storm drain system (e.g. storm drain system capital improvements and maintenance). Developed parcels that have a portion of their impervious area within City of Palo Alto shall be charged only for that portion of impervious area which is in the City of Palo Alto. Developed parcels that drain totally or partially into an area outside the City of Palo Alto shall be liable to pay only that portion of the storm drainage fee attributable to the generic discharge of storm runoff (e.g. coordination with the Santa Clara Valley Water District on regional flood control projects, administration of the City's flood hazard regulations, and implementation of the urban runoff pollution prevention program) and shall not be liable to pay for the portion of the fee attributable to the actual usage of (i.e. drainage into) the City's storm drain system (e.g. storm drain system capital improvements and maintenance). The City of Palo Alto has calculated the storm drainage fee for each parcel based on information available to the Public Works Department as to the amount of SPECIAL STORM AND SURFACE WATER DRAINAGE UTILITY REGULATIONS RULE AND REGULATION 25 (Continued) CITY OF PALO ALTO UTILITIES Issued by the City Council Effective 6-1-2005 Supersedes Sheet No. -7 dated 6-13-2000 Sheet No. 7 impervious area for the parcel, as well as other relevant information regarding the parcel. However, it is the intent of the City of Palo Alto that no fee shall exceed the proportional cost of services attributable to the parcel. Therefore, a parcel owner has the right, through Administrative Review, to request a proportional reduction in the storm drainage fee if the owner believes that the parcel contributes less water to the City's storm drainage facilities or uses fewer storm or surface water treatment services, notwithstanding the amount of the parcel's impervious area. 9. ADMINISTRATIVE REVIEW (A) Any person who owns or pays the storm drainage fee for a developed parcel and who disputes the amount of any storm drainage fee for the parcel, or who requests a deferred payment schedule therefor may request a revision or modification of such fee from the City Engineer. (B) The person seeking Administrative Review shall make such request in writing pursuant to Rule and Regulation 11 Section F. The request for Administrative Review must be signed by the property owner. The City Engineer shall conduct the review. (C) The City Engineer shall review the request and all data and documentation deemed by the City Engineer to be relevant to the request, and shall make a written determination as to whether the fee for the parcel exceeds the proportional cost of the service attributable to the parcel. If the City Engineer determines that the fee is proportional to the cost of service, no adjustment shall be made. If the City Engineer determines that the fee exceeds the proportional cost of service, the fee shall be adjusted accordingly. {End} April 4, 2005 Dear Property Owner: On March 7, 2005, the City Council held a public hearing on a proposed Storm Drainage Fee increase for properties within the City of Palo Alto. In January, you were mailed a notice and informational flyer regarding this public hearing and the specific fee increase proposed for your property. After receiving public testimony, the City Council took action to submit the proposed fee increase to property owners for approval. Enclosed with this letter is an official City of Palo Alto Property Owner Ballot and an official postage paid Return Envelope. Please mark your ballot “yes” or “no” and return it in the Return Envelope to the City Clerk by no later than 8:00 p.m. on April 26, 2005, to 250 Hamilton Avenue, Palo Alto. The City must receive mailed ballots by April 26, 2005. Postmarks do no count. The votes cast as “yes” or “no” will determine the fate of this fee increase. Ballots that are not returned or are returned late cannot be counted, so please return your ballot. Two items are enclosed with these ballot materials for your information. First, a summary of the procedures for the ballot proceeding is provided on the back of this letter. The complete procedures for this process are on file at the City Clerk’s office and are posted on the City’s web site (www.cityofpaloalto.org/stormdrain). The second enclosure is a copy of Resolution 8483, which the City Council passed on December 6, 2004, to formally establish the terms and amount of the proposed fee increase, and the projects/programs on which funds will be spent if property owners approve the fee increase. If you have any questions about the ballot proceeding, or if you are disabled and need special accommodation to vote, please call City Clerk Donna Rogers at (650) 329-2571. If you have questions regarding the fee increase, please call Matt Raschke in the Public Works Department at (650) 617-3183, or visit the City’s web site at www.cityofpaloalto.org/stormdrain. Please Vote! 4/4/2005 Page 1 RESOLUTION NO. 8483 RESOLUTION OF THE COUNCIL OF THE CITY OF PALO ADOPTING THE AMOUNT OF THE PROPOSED STORM DRAINAGE FEE INCREASE, DESCRIBING THE STORM DRAIN CAPITAL IMPROVEMENTS AND PROGRAM ENHANCEMENTS ON WHICH THE PROPOSED FEE WILL BE SPENT IF APPROVED, AND ADOPTING A SCHEDULE FOR THE PROTEST HEARING AND MAIL BALLOT PROCEEDINGON THE PROPOSED FEE INCREASE [Approved By Palo Alto City Council on December 6, 2004] EXHIBIT “A” Description Of Amount Of The Proposed Storm Drainage Fee Increase A. Summary of current storm drainage fee system The City’s current storm drainage billing system is based on Equivalent Residential Units (“ERU”), which are generally determined by the square footage of impervious surface area on a property. One ERU equals 2500 square feet of impervious surface area on a property, and the current fee for one ERU is four dollars and twenty-five cents ($4.25). The ERU calculation was based on a sampling of single-family and duplex properties in the City, in which the typical impervious surface area was 2500 square feet. Thus, all single-family and duplex residential properties in the City are presumed to have one ERU of impervious surface area and are currently charged $4.25 per month for that ERU, regardless of the actual impervious surface area of their property. Commercial, industrial, institutional, government, and multi-family residential properties are charged for their actual amounts of impervious surface area, at a rate of one ERU per 2500 square feet of impervious area. B. Proposed storm drainage fee increase 1. New residential rate structure and increased fee The proposal to increase storm drainage fees involves two components. First, the charge per ERU would be raised from four dollars and twenty-five cents ($4.25) to ten dollars ($10). Second, the impervious surface area would no longer be presumed to be one ERU for all single- family and duplex properties. Instead, those properties would be placed into one of three ERU tiers based on the size of the property. Commercial, industrial, institutional, government, and multi-family residential properties would continue to be charged based on actual impervious surface area, but at the increased rate of $10 per ERU. The following tables describe the changed rate structure and proposed fee increase: RESIDENTIAL RATES (Single-Family & Duplex) PARCEL SIZE (sq.ft.) ERU PROPOSED RATE < 6,000 sq.ft. .8 ERU $8.00 6,000-11,000 sq.ft. 1 ERU $10.00 > 11,000 sq.ft. 1.4 ERU $14.00 COMMERCIAL RATES (Commercial, industrial, multifamily res.) $10.00 per 2,500 square feet of impervious surface area (ERU), rounded to the nearest 0.1 ERU. 4/4/2005 Page 2 2. Annual inflation adjustments to proposed fee increase In order to offset the effects of inflation on labor and material costs, the proposed fee increase would be subject to annual increases beyond the initial $10.00 per ERU rate as of July 1 of each year, starting in 2006. Inflation adjustments would be based on the lesser of the local rate of inflation (based on the change in the Consumer Price Index [CPI] for the San Francisco- Oakland-San Jose CSMA, published by the United States Department of Labor, Bureau of Labor Statistics) or 6 percent. The City Council would have the authority and discretion to implement inflation adjustments on an annual basis as part of the City budget process. 3. Twelve year sunset provision for proposed fee increase The proposed storm drainage fee increase would sunset twelve (12) years from the date the fee increase is implemented, as the storm drain capital improvements to be funded by the increase would be completed by that time. 4. Oversight provision for proposed fee increase The City Council would appoint an oversight committee to monitor and review the proposed storm drain capital improvements and insure that the money raised from the increased Storm Drainage Fee is spent in accordance with this resolution. The oversight committee would report its findings to the City Council at least annually. 5. Applicability of the Rate Assistance Program The City’s existing Rate Assistance Program, which provides a 20% discount to qualified low- income utility customers, would apply to the Storm Drainage Fee. 6. Pay-as-you-go funding of capital improvements The storm drain capital improvements to be funded through the proposed Storm Drainage Fee increase would be paid for on a pay-as-you-go basis, without debt financing. 7. Up-front payment of Storm Drainage Fees by City of Palo Alto In order to accelerate the construction of the proposed storm drain capital improvements, the City of Palo Alto would pre-pay in advance the Storm Drainage Fees attributable to City-owned properties for a period of twelve years, upon approval of the increased Storm Drainage Fee. 4/4/2005 Page 3 EXHIBIT “B” List Of Storm Drain Capital Improvements And Program Enhancements To Be Completed With Funding From The Proposed Fee Increase A. Seven proposed storm drain capital improvement projects 1. Construct pump station at 96” storm drain outfall to San Francisquito Creek (estimated cost = $4.5 million) 2. Install new storm drain pipelines to increase drainage capacity on Channing and Lincoln Avenues (from Channing/Heather to Lincoln/Alma) (estimated cost = $4.6 million) 3. Install Southgate neighborhood storm drain system (estimated cost = $2.0 million) 4. Extend Gailen Avenue/Bibbits Drive storm drain outfall to the Adobe Storm Water Pump Station (estimated cost = $650 thousand) 5. Connect the Clara Drive storm drains to the Matadero Storm Water Pump Station (estimated cost = $900 thousand) 6. Construct improvements to the Matadero Storm Water Pump Station and install new storm drain pipelines to increase drainage capacity leading to the Matadero Storm Water Pump station (estimated cost = $3.0 million) 7. Install storm drainage improvements along southbound Alma Street (estimated cost = $1.5 million) A map of the proposed projects is included in this exhibit. B. Proposed funding for enhanced maintenance of the City’s storm drain system 1. $500,000 budgeted annually (subject to annual adjustment for inflation) to replace and/or rehabilitate deteriorated components of the City’s storm drain system, including pipelines, catch basins, and manholes. 2. $90,000 budgeted annually (subject to annual adjustment for inflation) to fund additional storm drain maintenance resources, including staff and/or contract services, to perform services including, but not limited to, storm drain cleaning, minor storm drain repairs, video inspection of storm drain pipelines, and/or curb and gutter repairs. C. Funding of innovative projects 1. $125,000 budgeted annually (subject to annual adjustment for inflation) for innovative projects to reduce the amount of storm water runoff and environmental pollutants that enter storm drains and creeks. D. Funding of storm water quality protection activities 1. $100,000 budgeted annually (subject to annual adjustment for inflation) to pay for existing services related to storm water quality protection currently funded through the Wastewater Treatment Fund. E. Funding of additional engineering staff 1. $115,000 budgeted annually (subject to annual adjustment for inflation) for an additional staff engineer to assist with implementation of the recommended storm drain capital improvements. 5. EXTEND CLARA DRIVE STORM DRAIN TO MATADERO PUMP STATION 1. NEW PUMP STATION @ SAN FRANCISQUITO CK 6. IMPROVE MATADERO PUMP STATION& FEEDER STORM DRAINS 4. EXTEND GAILEN/BIBBITSSTORM DRAIN TOADOBE PUMP STATION 3. SOUTHGATE NEIGHBORHOODSTORM DRAINS 7. ALMA STREET STORM DRAINS (EXACT LIMITS OF PIPINGTO BE DETERMINED) 2. CHANNING/LINCOLN TRUNK LINE ($3 MILLION) ($1.5 MILLION) ($900 THOUSAND) ($650 THOUSAND) ($2 MILLION) ($4.5 MILLION) ($4.6 MILLION) Oregon Expressway C h a r l e s t o n R o a d E ast B a y s h o re W est B a y s h o r e 1 0 1 S e r ra Bo ulev a r d San Antoni o Av e n u e P a ge M i l l Road University Avenue Middlefield Road El Camino Real E m barca dero R oad E mb a r c a d e r o R o a d El Ca m i no R eal Palm Drive F o o t hil l Expr e s s 0'3000' Proposed Storm Drain Capital Improvements This map is a product of the City of Palo Alto GIS This document is a graphic representation only of best available sources. CITY O F PALO A L TO I N C O R P O RAT E D C ALIFOR N IA P a l o A l t oT h e C i t y o f A P RIL 16 1 894 The City of Palo Alto assumes no responsibility for any errors. ©1989 to 2004 City of Palo Alto mraschk, 2005-03-10 11:00:53PROPOSED PROJECTS - MRICS (\\cc-maps\gis$\gis\admin\Personal\mraschk.mdb) City of Palo Alto Proposed Storm Drainage Fee Increase The information in this notice and the accompanying materials were compiled and are distributed at public expense by the City of Palo Alto in compliance with Article XIIID of the California Constitution, the Proposition 218 Omnibus Implementation Act and procedures adopted by the City of Palo Alto Resolution No. 8484. This information is presented in the public interest. It is not intended to influence or attempt to influence the actions of the voters to vote “yes” or “no” on the enclosed ballot. SUMMARY OF BALLOTING PROCEDURES If you are the owner of the property described on the enclosed Return Envelope, or a voting representative designated according to the City’s procedures for this ballot proceeding, you may submit the enclosed ballot to the City to support or oppose the proposed Storm Drainage Fee increase. Please follow the instructions below to complete and return your ballot. The full text of the procedures governing the fee increase proceedings is available on the City’s website at www.cityofpaloalto.org/stormdrain/docs/2005-voting-procedure.pdf. 1. Register your vote on the enclosed ballot in favor of or against the proposed fee increase by placing an “X” in the corresponding box. Mark your ballot in ink, not pencil. 2. Place the marked ballot in the official Return Envelope, and seal the envelope. 3. Mark, sign and date the Return Envelope in ink. Do not use pencil. Ballots received in a Return Envelope without a signature will not counted. 4. Mail or personally deliver your ballot to the City Clerk’s office at P.O. Box 51470, 250 Hamilton Avenue, Palo Alto, CA 94303 (The Return Envelope provides postage prepaid). The City must receive all ballots by April 26, 2005. Postmarks do not count. 5. Ballots must be received by the City Clerk prior to 8:00 p.m. on Tuesday, April 26, 2005. Any ballots received after this time cannot legally be counted (ballots may be hand-delivered to the City Clerk any time prior to this date and time). 6. After 8:00 p.m., the City Clerk and her designees will tabulate the ballots. Only one ballot may be submitted for each property. 7. If the results of the balloting indicate that a majority of the property owners voting upon the fee increase voted in favor of the increase, the City Council may adopt the fee increase. Shall the monthly Storm Drainage Fee for developed residential and non- residential properties be increased to $10.00 per Equivalent Residential Unit (ERU) for a period of 12 years, subject to an annual adjustment for inflation up to a maximum of six percent per year? The storm drainage fee will be used to improve local drainage and prevent street flooding by funding: • high-priority storm drain system capacity upgrades, • drainage system repairs, • enhanced storm drain maintenance, and • storm water quality protection activities □ YES □ NO Status of Storm Drainage Fund Capital Projects Listed in 2005 Ballot Measure Project Name Project Status Project Expenditure 1. San Francisquito Creek Pump Station Complete $ 9,135,000 2. Gailen Ave/Bibbits Ave SD Improvements Complete $ 650,000 3. Alma Street Storm Drain Improvements Complete $ 785,000 4. Clara Drive Storm Drain Improvements Complete $ 750,000 5. Southgate Neighborhood SD Improvements Complete $ 2,026,000 6. Channing Ave/Lincoln Ave SD Improvements 2 of 3 Phases Complete* $ 6,415,000 (est.) 7. Matadero Creek Pump Station Upgrade Design Stage Initiated $ 6,060,000 (est.) TOTAL $ 25,821,000 * Construction is completed along Channing Avenue (Heather Lane to Lincoln Avenue) and Lincoln Avenue (Channing Avenue to Middlefield Road. Phase 3 (Lincoln Avenue – Middlefield Road to Alma Street will be constructed starting in Spring 2016. Design of the Matadero Creek Pump Station Upgrade will begin in June 2015; construction is scheduled to start in Fall 2016. All seven projects will be substantially completed prior to the sunset of the Storm Drainage Fee in June 2017. S Pub torm blic Wor Drai rks Depa S C in Ma Ma artment DRA Pre Schaaf CONSULTING aster rch 2015 t/Engine AFT FINA epared by & Wh G CIVIL ENG r Plan 5 eering S AL eeler GINEERS n Upd ervices date Division n Palo Alto Storm Drain Master Plan Table of Contents Schaaf & Wheeler (i) June 2015 Table of Contents List of Appendices .......................................................................................................................... iii Table of Tables ............................................................................................................................... iv Table of Figures ............................................................................................................................... v Executive Summary .................................................................................................................... ES-1 ES.1 Study Objectives .................................................................................................................... ES-1 ES.2 Sources of Flooding ................................................................................................................ ES-1 ES.3 Work Products ....................................................................................................................... ES-1 ES.4 Capital Improvement Projects.................................................................................................. ES-2 ES.5 Conclusion ............................................................................................................................. ES-3 Chapter 1. Introduction ............................................................................................................... 1-1 1.1 Overview ................................................................................................................................... 1-1 1.2 Setting ...................................................................................................................................... 1-1 1.3 Soils .......................................................................................................................................... 1-2 1.4 Climate ..................................................................................................................................... 1-2 1.5 Flood Protection Facilities ............................................................................................................ 1-2 1.6 References ................................................................................................................................ 1-4 Chapter 2. Data ............................................................................................................................ 2-1 2.1 Overview ................................................................................................................................... 2-1 2.2 Data Sources ............................................................................................................................. 2-1 2.3 Data Quality ............................................................................................................................ 2-11 2.4 Modeled Data Assumptions ....................................................................................................... 2-11 Chapter 3. Methodologies ............................................................................................................ 3-1 3.1 Overview ................................................................................................................................... 3-1 3.2 Evaluation Criteria ...................................................................................................................... 3-1 3.3 GIS Based Modeling ................................................................................................................... 3-1 3.4 Surface Runoff Calculations ......................................................................................................... 3-7 3.5 Pipe Flow Calculations .............................................................................................................. 3-10 3.6 Comparison to Previous Reports ................................................................................................ 3-13 Chapter 4. Storm Drain Collection Systems ................................................................................. 4-1 4.1 Overview ................................................................................................................................... 4-1 4.2 Evaluation of the Storm Drain Capacity Criteria ........................................................................... 4-1 4.3 Condition Assessment of Storm Drain .......................................................................................... 4-3 4.4 Palo Alto Systems ....................................................................................................................... 4-5 4.5 Pump Stations ......................................................................................................................... 4-18 Palo Alto Storm Drain Master Plan Table of Contents Schaaf & Wheeler (ii) June 2015 Chapter 5. Regulatory Guidelines and Requirements .................................................................. 5-1 5.1 Overview ................................................................................................................................... 5-1 5.2 FEMA Regulations ...................................................................................................................... 5-1 5.3 City of Palo Alto Policy ................................................................................................................ 5-2 5.4 Construction General Permit (CGP) .............................................................................................. 5-2 5.5 Municipal Regional Permit (MRP) ................................................................................................ 5-2 5.6 SCVWD ..................................................................................................................................... 5-3 5.7 USACE ...................................................................................................................................... 5-3 5.8 BCDC ........................................................................................................................................ 5-4 5.9 Low Impact Development ........................................................................................................... 5-4 Chapter 6. Capital Improvements ................................................................................................ 6-1 6.1 Overview ................................................................................................................................... 6-1 6.2 Capital Improvement Priorities .................................................................................................... 6-1 6.3 Alternative Construction Method .................................................................................................. 6-2 6.4 Capital Improvement Program ..................................................................................................... 6-4 6.5 Sea Level Rise ........................................................................................................................... 6-8 6.6 LID Incorporation ....................................................................................................................... 6-8 Palo Alto Storm Drain Master Plan Table of Contents Schaaf & Wheeler (iii) June 2015 List of Appendices Appendix A – Modeled Pump Curves Appendix B – Model Calibration Technical Memorandum Appendix C – Detailed CIP Appendix D – Improvement Project Sheets Appendix E – City Drainage Standards Technical Memorandum Appendix F – Rainfall data Appendix G – Creek and Tidal Hydrographs Appendix H – Condition Assessment Program Recommendations Appendix I – Storm Drainage Condition Assessment Palo Alto Storm Drain Master Plan Executive Summary Schaaf & Wheeler ES-1 June 2015 Executive Summary ES.1 Study Objectives A significant planning effort has been undertaken to help guide the City of Palo Alto to establish a prioritized Capital Improvement Program to mitigate the impacts of stormwater runoff in Palo Alto. This document identifies capital improvement projects needed to provide a 10-year level of service throughout Palo Alto. The main objective of this master plan document is to provide an analysis of capacity restrictions within the storm drain networks of Palo Alto, and list the recommended projects necessary to provide a 10 year level of service. The following list presents a summary of steps taken: 1. The City’s existing storm drain model was updated. Updated features include: manhole invert and rim elevations, pipe diameter, pump stations, and watershed runoff characteristics. 2. Storm drainage analysis methodologies and criterion were established with City staff. 3. The City’s regulatory requirements were reviewed and proposed actions have been outlined. 4. A hydrologic and hydraulic analysis of the existing storm drain facilities throughout Palo Alto was performed for a 10-year storm event. System deficiencies are categorized in terms of the risk to private property and public safety. 5. Pump stations that impact the City’s storm drain system are analyzed. Localized pump station located within the City but that do not impact the City’s system, such as pump stations that serve underpasses, were not analyzed. 6. Projects that will improve storm drain performance have been identified. 7. A condition assessment was completed on previously unmapped CMP culverts located south of Highway 280. Condition related improvements are identified. 8. A prioritized Capital Improvement Program (CIP) is outlined. 9. Projected capital improvement costs have been summarized. ES.2 Sources of Flooding Runoff generated within the study boundary is conveyed through storm drain systems that outfall to creeks and ultimately San Francisco Bay. Capacity deficiencies within the storm drainage network can contribute to flooding within Palo Alto. For the purposes of this report, flooding is defined as the surcharge of water above ground surface at a drainage inlet or manhole. The primary objective of the Storm Drain Master Plan is to determine the cause of flooding and identify mitigation measures. Because Palo Alto is located near the Bay, the capacity of these drainage systems may be linked to the tides and influence of the surrounding waters. Flooding caused by creek spills, tidal action, or other such events have not been addressed in this report. ES.3 Work Products This master plan is intended to function at several levels. City planners and engineers responsible for capital improvements should find that this document contains sufficient background information and data to serve as a basis for future improvement implementation and/or modification. For those City staff and other parties interested in a more in-depth examination of storm drain facilities within Palo Alto, the companion Palo Alto Storm Drain Master Plan Table of Contents Schaaf & Wheeler ES-2 June 2015 GIS-based PCSWMM hydraulic model is available. PCSWMM uses the US EPA SWMM5 engine to model hydrology and hydraulics of urban drainage and sewer systems. As discussed in supporting reports and documents, the following information is available via the GIS: 1. Inventory of Drainage Facilities. Drainage pipes 12-inches in diameter and larger in the study area have been imported into the storm drain model. Information pertaining to each system component may be accessed graphically or through database spreadsheets which have been provided electronically. 2. Tributary Drainage Areas. Land areas used to generate local runoff are also available graphically in the storm drain model, which catalogs tributary area, factors related to land use and soil conditions and other basin morphology. 3. Storm Drain Capacities Evaluation. Storm drain capacities are documented in the model. For each drainage system component, peak discharge and maximum hydraulic grade line are computed. Based on hydraulic grade calculations, the degree of surcharge and depth (based on theoretical HGL) of water above ground are also determined. This determination is then used to assign priorities for system remediation. 4. Drainage System Profiles. Those interested in viewing drainage system profiles may do so graphically using software features specifically designed for this purpose. Real-time animations of water surface profiles and corresponding surface ponding depths for design storm events are also available. ES.4 Capital Improvement Projects Palo Alto was divided into three drainage areas: Part 1 which drains west to San Francisquito Creek; Part 2 is mainly the Matadero Creek watershed with sections draining north and west to San Francisquito Creek and east to Barron Creek; and Part 3 includes the Adobe Creek watershed, the majority of the Barron Creek watershed, and the area that drains to the Airport Pump Station; (Figure ES-1). Results of the drainage analyses and recommended improvements for each of these drainage areas are presented in Chapter 4. A condition assessment of the previously unmapped CMP culverts located south of Highway 280 was performed. The culverts are rated and condition related improvements are recommended. A Capital Improvement Program has been developed using the recommended capacity and condition related improvements. This program is presented in Chapter 6, and detailed costs are available in Appendix C. A summary of CIP costs are presented in Table ES-1. A breakdown of these costs by drainage region is presented in Table ES-2. Table ES-1: Summary of CIP Costs Based on Priority Level Priority Level Cost Highest Priority Capital Improvements $14,102,000 High Priority Capital Improvements $23,139,000 Moderate Priority Capital Improvements $22,233,000 Low Priority Capital Improvements $53,900,000 Total Capital Improvement Program $113,054,000 Palo Alto Storm Drain Master Plan Table of Contents Schaaf & Wheeler ES-3 June 2015 Table ES-2: Summary of Prioritized 10-Year CIP Project Costs Priority Part 1 Part 2 Part 3 Condition Imps. Total Highest Length (ft) 0 0 702 470.5 1,172 Cost 0 $11,530,000 $2,420,000 $152,000 $14,102,000 High Length (ft) 0 17,073 3,117 580.7 20,356 Cost 0 $20,330,000 $2,640,000 $169,000 $23,139,000 Moderate Length (ft) 0 16,592 3,829 580.1 21,001 Cost 0 $16,470,000 $5,650,000 $113,000 $22,233,000 Low Length (ft) 0 31,877 26,425 0 58,324 Cost 0 $26,070,000 $27,720,000 0 $53,790,000 ES.5 Conclusion Reducing existing drainage limitations by improving those portions of the drainage system that are the City’s responsibility is a worthy goal. This Master Plan provides a tool for Palo Alto citizens and officials to use in their efforts to reduce both nuisance flooding, and the likelihood of more serious flood related hazards to private and/or public property, and to maintain the drainage network in good working condition. This study and proposed CIP is merely the starting point. It is anticipated that City staff and/or their consultants will perform a more detailed study or alternatives analysis to find more affordable or effective improvements with information gathered as part of the design process (detailed topography, utility conflicts, easements, etc). Palo Alto Storm Drain Master Plan Executive Summary Schaaf & Wheeler ES-4 June 2015 Figure ES-1: Palo Alto Drainage Areas