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HomeMy WebLinkAboutStaff Report 399-07City of Palo Alto City Manager’s Report TO: FROM: DATE: SUBJECT: HONORABLE CITY COUNCIL CITY MANAGER OCTOBER 29, 2007 DEPARTMENT: UTILITIES CMR:399:07 UPDATE ON STAFF ACTIONS-TO ADDRESS WASTEWATER BACKUP INCIDENTS This report is for the Counci!’s information only. No action is required. BACKGROUND The Engineering and Operations Divisions of the Utilities Department are responsible for operation, maintenance, repair and replacement of the City’s 207 miles of wastewater main line pipeline and approximately 17,000 associated laterals. The Engineering Division is responsible for capacity assessment and capital improvement projects and the Operations Division is responsible for the daily operation, maintenance and repairs of the system. A major maimenance activity of the Operations Division involves routine cleaning of the sewer mains to prevent blockages and reduce overflows. This cleaning is accomplished by accessing the main lines ttu’ough a series of manholes, and accessing individual laterals when there is an accessible cleanout located within the City right-of-way. When blockages occur they are usually caused by one or more of the following: grease build up, tree root intrusion, or structural failure of the pipes. The primary equipment used in the main line sewer cleaning process, as well as for emergency response, is a combination flush truck and vacuum unit called a VacCon. Most neighboring cities use the same type of equipment for their cleaning activities. For effective cleaning, to cut roots, or to remove grease from a line, the VacCon manufacturers recormnend the truck be set to disperse up to 60 gallons of water per minute at a pressure of 3,000 pounds per square inch (PSI) into the sewer line to hydraulically flush the pipeline. CMR:399:07 Page 1 of 4 During calendar years 2005 and 2006, the Operations Division responded to approximately 2,600 sewer-related calls; 1,500 in 2005 and 1,100 in 2006. The majority of the blockages mad resulting backups were caused by root intrusion and gease buildup. DISCUSSION Recent sewer backups have raised issues related to the Utility Department’s line cleaning procedures. Of the 2,600 calls received in the last two years, less than 10% of the blockages have resulted in any type of overflow. Overflows most frequently occur from cleanouts located on individual laterals. Less frequently, a sewer can back up inside a home, causing property damage. Since the implementation of the improved cleaning frequency and the completion of the condition assessment, the number of sewer-related claims due to backups has decreased by more than 50%. There were 33 claims against the city due to sewer backups in 2004, 18 in 2005, and 15 in 2006. BeNnning in 2005, the Operations Division has proactively increased cleaning schedules in an attempt to reduce the number of blockages. In 2006, to further address backups, the EnNneering Division developed a capital project to have an outside contractor clean all wastewater main lines in preparation for the subsequent videotaping of the lines, so that a condition assessment could be completed. Staff is currently in the process of reviewing all of the video tapes from the condition assessment project, and is identif?dng and correcting any deficiencies fom~d. Staff from both Operations and Engineering Divisions of the Utilities Department have also attended training on how to respond to sewer backups offered by the Association of Bay Area Govermnents (ABAG). Staff is currently working with the ABAG representatives to host additional meetings in Palo Alto on related topics. In 2004, as a part of the City’s National Pollution Discharge Elimination System (NrpDES) permit, the Regional Water Quality Control Board required the City to develop a Sanitary Sewer Management Plan (SSMP) and to report all overflows. In 2006, the State Water Resources Control Board issued the City General Waste Discharge Requirements Order (WDR) for management, operation and maintenance of the wastewater collection system. To comply with these requirements, the Utilities Engineering and Operations Divisions have already implemented the following programs: ¯Increased the frequency of sewer main cleaning utilizing hydro-flushing trucks ¯Engaged an outside contractor to respond to wastewater blockage calls on weekdays, in order to allow City crews to continue with their daily maintenance and repair activities ¯Completed two CIP projects for replacing sewer mains and laterals ¯Purchased new software for tracking maintenance activities and analyzing data ¯Hired a contractor to hydro-flush and video all sewer mains ¯Improved productivity in main line cleaning and replacing damaged laterals and clean outs ¯Developed a comprehensive standby progam for after-hours and weekend responses to sewer blockage calls CMR:399:07 Page 2 of 4 ¯Assigned the Field Service Representatives (FSR) who work extended hours to be first responders to all high priority sewer calls, reducing the response’ time for customer calls ¯Purchased improved lateral cleaning equipment and set up designated emergency response vehicle to properly and quickly respond to backups ¯Drafted a "Customer Information Form" as a courtesy to property owners, to provide them with a list of firms that they may call in the event of a sewer backup on their property. Wq~ile many steps have already been taken to improve the wastewater operation and maintenance procedures, staff acknowledges that there is still more work to be done. Staff has identified, and has already begun to address, the following goals with estimated timeline for completion: ¯Provide staff development by mandating hands-on training by equipment manufacturers for each member of the wastewater operation crew. (2-months) ¯Enroll wastewater maintenance employees in the California Water Emdrounaental Association progam’s to increase staff knowledge in wastewater maintenance practices and provide opportunity for information exchange with staff from nei~hboring cities. (Ongoing) ¯Hold "de-brief" meetings to discuss all overflow incidents that have resulted in property damage and learn from our experiences. (Ongoing) ¯hnplement the components of SSMP in accordance with Council-approved schedule. (Following State guidelines) ¯Increase the public education campaign, including completion of a utility bill insert providing residents with information on the wastewater collection system and identification of steps that can be taken to help reduce sewer blockages. (6-months) ¯Obtain a contract with a private cleaning company that will be available 24/7 to respond to private property overflow clean-ups. (2-months) ¯Backwater prevention devices can significantly help reduce the number of backups into homes. Staff recently proposed a Plumbing Code Amendment that would require baclc~ater prevention devices on new construction that has drainage piping serving fixtures with flood level rims located be!ow one foot above the elevation of the next upstream manhole cover. If approved by Council, this Amendment will go into effect on January 1, 2008. Staff is also exploring whether to require backavater prevention devices on existing construction. ¯Identify clear and specific responsibilities for each member of the Operations Division and hold staff accountable for following written procedures. (2-months) ¯Continue to review condition assessment tapes and perform repairs on all identified deficiencies. (Ongoing) ¯Continue with capital projects to replace damaged pipelines. (Ongoing) ¯Address staffing issues that result from the frequent need to pull maintenance crews off of scheduled projects to respond to emergency situations or to redirect staff to complete work in Targeted Work Zones. (8-months) CMR:399:07 Page 3 of 4 Work with City Attorney’s office to discuss ordinance changes to transfer responsibility for maintenance and ownership of private laterals to property owners. The decision to adopt any ordinance proposal is a policy decision and the City Council would have ultimately decision over implementation. (8-months) RESOURCE IMPACT Staff will evaluate the need for additional positions or contract funds and will report back to the City Council if a recommendation is made for additional resources. POLICY IMPLICATIONS This report does not represent a change in policy. ENVIRONMENTAL REVIEW This report does not meet the definition of a project under the California Environmental Quality Act, pursuant to Section 21065 of the California Public Records Code. Therefore, no envirolmaental assessment is required. ATTACHMENTS A. Stand-by Procedures for Water-Gas-Wastewater Staff PREPARED BY: DEPARTMENT APPROVAL: Javad Ghaffari, Operations Manager Paul Dornell, Assistant Director, Utility Ops. VALERIE O. FONG Director of Utilities CITY MANAGER APPROVAL: EMILY-HARRISON Assistant City Manager CMR:399:07 Page 4 of 4 CiTY OF PALO ALTO UTILITIES Utilities Operations Division Policy Field Manual Water-Gas-Wastewater Standby Document 5.1 This policy supersedes all previous Utilities policies on this topic and is intended to be used as a reference tool in conjunction with the SEIU Memorandum of Agreement, the City of Palo Alto Merit Rules and Regulations, California Labor Law, and the City of Palo Alto Policies and Procedures. The objective of maintaining a Standby program is to ensure that personnel are available to immediately respond and take corrective action to WGW emergencies after regular business hours. The primary responsibility of the Standby person is to eliminate any hazard to the public and protect against property damage. After the immediate hazard has been eliminated the Standby person shall, if at all possible, restore service to any customers affected by the emergency on a temporary or permanent basis. Each employee must understand how critical their decision making can be when faced with an emergency situation. Standby employees must be able to respond to any call within one hour, troubleshoot the problem, and proceed with a safe and effective resolution of the issue. WGW Operations will maintain a two person on-call team that will work in conjunction with the on-call WGW Supervisor, the on-call Field Service Representative (FSR), and other City designated standby personnel. The WGW standby schedule will begin at 4:00pm on Monday of each week and proceed through to the following Monday at 6:30am, at which time the standby commitment has been met. If a City holiday falls on a Monday, the standby personnel will remain on call until Tuesday morning at 6:30am. At the beginning of each week, a list of the current week’s standby personnel will be forwarded to the Communications/Dispatch Center (hereafter referred to as "Dispatch") with copies to the WGW management team, the field service representatives and the Electric System Operators’ (SCADA) office. Standby is a commitment. If a person continually fails to uphold this commitment or regularly gives up their call, management has the right to review the person’s standby eligibility. If a person chooses to stop participating in the standby program, or is removed by management, a new person will be selected from the list of qualified employees wishing to participate in the standby program. Any employee wishing to re-join the standby program must re-submit his name to the standby program waiting list. The list will give priority to Installer/Repairers but will otherwise move in the order in which names are added. The standby list will be maintained by the WGW Manager along with the Division SEIU Union Representative. If either of the designated Primary or Secondary personnel need to have someone cover their call, the on-call supervisor must be notified. Only a Primary or Secondary person from another team can be used to fill the commitment. The first team to have the option of assuming the opening is the next team in rotation, on down the line. All changes in the standby assignment must go through the WGW Manager, or in his absence, the Standby Supervisor. Once the change is approved, the change must be logged in the standby Page 1 of 6 Date Revised: 10/18/2007 -.,,~X\~/~"1 Utilities Operations Division CITY, OF PALO ALTOUTILITIES Document 5.1 binder and it is the responsibility of the person assuming the call to notify Dispatch of all changes. When the standby person gives up his call, the standby pay will be given to the person who is being assigned to fill in. Spitting shifts on the same day is not permitted. If no other Primary or Secondary personnel can be found to cover a shift, the originally scheduled person must meet their original obligation. In accordance with City’s Policy and Procedures 2-06, Section IV, A, 6, "SEIU employees shall not be compensated for standby while on vacation, floater, personal, sick or bereavement leaves." If an employee is absent fof the entire day that they are scheduled to work standby, another standby person must cover the days of absence. An employee may take partial time off (four hours or less) during the weekdays that they are scheduled for standby as long as the employee returns to work at least one hour before end of shift and is still able to respond to calls. In the event that a third person is needed for any standby call, the additional staffing for a crew will come from the weekly sign up sheet. The "3rd person" sign up sheet for those interested in working overtime for the upcoming week will be put out on Monday and will be available until the end of day on Friday. The order in which employees sign up on the list will be the order in which the employees are called, on a rotational basis. Employees wishing to sign up must meet the minimum qualifications listed below. The third man can only be deployed by the on-call supervisor and through Dispatch. Every effort will be made to coincide standby duty with the employees’ scheduled 9/80 Friday off. If an employee is scheduled for standby on the 9/80 Friday off, he will need to be available to respond to calls by 3:00pm. If a standby person is not at work on their regularly scheduled Friday they must contact the standby supervisor before 12:00noon on that Friday if they are able to maintain their standby responsibilities for Saturday and Sunday. If the standby supervisor or the WGW manager does not hear from the scheduled standby person by noon on Friday then the Saturday and Sunday standby shifts will be assigned to someone else. When overtime opportunities arise prior to the end of a regular work day, every effort will be made to compile a qualified crew without using the on-call staff. This will allow the assigned on-call personnel to remain free to respond immediately to emergencies. If there are no volunteers among the non on-call staff, then the on-call personnel will be contacted by the on call supervisor and instructed to remain at work to respond to the overtime needs. Qualifications: The standby team consists of a Primary, Secondary, a FSR and the Water Transmission Standby person. Primary personnel must: ¯ be an Installer/Repairer or Installer/Repairer- Lead, ° be Operator Qualified (OQ’d) Page 2 of 6 Date Revised: 10/18/2007 CITY OF PALO ALTO UTILITIES UtilitiesOperations Division Policy Field Manual Document 5.1 ¯have wastewater experience ¯and have a commercial driver’s license with a tanker endorsement. Secondary personnel must: ¯ be Operator Qualified (OQ’d) = have wastewater experience ¯ and posses a commercial drivers license with a tanker endorsement. 3rd man: ¯Must posses a commercial driver’s license with a tanker endorsement. ¯May be called out based on job classification/need. Responding to a Call: The Field Service Representative (FSR) group will act as first responders to investigate the nature of all calls that come in after regular WGW office hours. If the FSR person is responding to emergencies they can notify Dispatch to contact the Primary person for them to respond. After checking the situation, the FSR representative will advise Dispatch if further response is required. As soon as the FSR verifies the status of a call, and determines that additional help is needed, Dispatch will notify the Primary and/or Secondary personnel of that status. Safety requirements for some calls recommend that two persons be on site before commencing work, the first person to respond may begin making an area safe or assessing the needs of the job. For standard wastewater calls, only one person needs to respond to run the lateral. The Primary and Secondary persons may split this duty over the course of the week but the call out plan must be provided to Dispatch on Monday before 3:00 pm. The responding party will need to notify Dispatch to call out the second man if required. Supervisor Notification: When ¯ ¯ ¯ ¯ ¯ ¯ ¯ ¯ ¯ ANY of the following situations occur, the Standby Supervisor must be notified: a wastewater overflow entering a storm drain property damage occurs a Grade 1 gas leak is found a water main or fire hydrant break is found more than two people are needed to complete the work the work on a given job lasts more than two hours the work will require digging any accident or other emergency occurs working on a live gas situation Page 3 of 6 Date Revised: 10/18/2007 CITY, OF PALO ALTO UTILITIES UtilitiesOperations Division Policy Field Manual Document 5.1 Types of Call: 1-Wastewater Calls Calls that come in after Operations business hours but during normal FSR working hours shall be dispatched to the FSR on duty. If needed, the WGW Primary and/or Secondary will be called out at the FSR’s recommendation. After regular FSR hours, the initial call will be dispatched to either the Primary or Secondary person. Any person responding to a sewer call must know and observe all safety regulations regarding confined space entry requirements. 2-Gas Calls All gas calls will be initially dispatched to the on-duty or standby FSR. Upon receiving the call from Dispatch that additional help is needed, the WGW standby personnel should go directly to the MSC and pick up the appropriate service vehicles, respond to the call, and must remain on-site until the condition has been made safe per DOT regulations. In the case of a Grade 1 leak, or any work that may require digging, the standby supervisor must be notified immediately. 3-Water Calls Calls that come in after Operations business hours but during normal FSR working hours shall be dispatched to the FSR on duty. After regular FSR hours, WGW Primary or Secondary personnel can respond to a water call to restore a service. When the job requires more than two persons to complete, or any work that may require digging, the standby supervisor must be notified immediately. When water sampling is required, the standby Water Transmission on-call person shall be called in (with an hour of lead time before the anticipated completed repair) to take the sample and handle any needed laboratory processing. Should the Water Transmission Primary be unavailable for some reason, the Primary is responsible for collecting the sample and delivering the sample to the Regional Water Quality control Plant with all of the necessary chain of custody paperwork. Standby Vehicles: City vehicles may only be used for travel to and from the job site. Employees must live within 30 miles of the Palo Alto City limits to be eligible to take a Standby vehicle home. Only City employees are allowed to ride in City vehicles, no family members and/or friends are allowed to ride in the standby vehicle. The City’s Risk Management team has reviewed the issue of other employees riding in the vehicle and has given their approval that it is acceptable provided that both employees are City personnel. It should be noted Page 4 of 6 Date Revised: 10/18/2007 UtilitiesOperations Division Policy Field Manual CI I-’Y OF PALO ALTOUTILITIES Document 5.1 Reporting call-outs to WGW Manager: The Primary is responsible for telephone reporting of al__~l standby calls once they are completed to 650-496-6932 (WGW Manager’s office). The report must include: ¯the date ¯location ¯nature of the call ¯staff involved ¯arrival and departure time. By agreeing to be on standby you are assuming the responsibility for being the "first responder" for the Utilities Department. This is a responsibility that must be taken seriously. It means that you must make accurate and timely decisions when responding to call outs under sometimes difficult or stressful conditions. What you do, and say, can either be a great benefit to our Department or result in severe consequences. If you have any questions or doubts about expectations (and your responsibilities) please feel free to discuss them with your Supervisor or the WGW Manager at any time. Page 6 of 6 Date Revised: 10/18/2007