HomeMy WebLinkAboutStaff Report 183-10TO:
FROM:
DATE:
City of Palo Alto
City Mal1ager's Report
HONORABLE CITY COUNCIL 12
CITY MANAGER DEPARTMENT: PUBLIC WORKS
APRIL 5,2010 CMR:183:10
REPORT TYPE: ACTION ITEM
SUBJECT: Acceptance of the Regional Water Quality Control Plant Site Feasibility
Study and Authorization to Proceed with an Environmental Assessment
of a Recycling Center and Permanent Household Hazardous Waste
Drop-off Facility Improvements for the West Side of the Regional
Water Quality Control Plant Site
EXECUTIVE SUMMARY
This report requests Council acceptance of the Regional Water Quality Control Plant site
feasibility study. This feasibility study was performed in accordance with Council approved
Capital Improvement Project PE-09004 to identify ,the programming needs for various City
facilities to be located at two sites: I) the former Los Altos Treatment Plant (located at 1237
North San Antonio Road) site and; 2) the west side of the Regional Water Quality Control Plant
(located on Embarcadero Way) site (see Attachment A for location map). This portion ofthe
feasibility study addresses only the R WQCP phase. Once the feasibility study is approved, staff
recommends preparing an environmental assessment and design for the recycling center and
permanent household hazardous waste drop-off facility improvements at the Regional Water
Quality Control Plant site in anticipation ofthe landfill closure.
RECOMMENDATION
Staff recommends that Council:
1. Accept the Regional Water Quality Control Plant (R WQCP) Feasibility Study
(Attachment A); and
2. Authorize staff to proceed with an environmental assessment of a recycling center
and permanent household hazardous waste drop-off facility improvements at the west
side of the Regional Water Quality Control Plant.
BACKGROUND
With the upcoming cl,osure of Palo Alto's landfill and accordingly the recycling center in
2011112 there is a need to identify a new location the recycling center. Staff from various
departments began meeting in April 2008 to discuss the environmental review and to identify
other potential sites for a future recycling center.
On August 4, 2008, Council approved a contract with Group 4 Architecture Research +
Planning, Inc to study space needs for various City facilities on two sites: the 13 .26 acre former
CMR:183:IO Page I of4
,
.J
I ','.,,\ ".1 f'
Los Altos Treatment Plant (LATP) site and the 2.62 at.'l"e undeveloped frontage area on the west
side of the RWQCP. This report addresses the RWQCP portion of that study only.
The uses that were considered were:
• Household Hazardous Waste Permanent Facility fHHWPF) Improvements.
Improvements to the existing HHWPF would provide additional areas for the
collection, packaging and short-term storage of household hazardous wastes such as
paints, pesticides, solvents, aerosol cans, etc. The R,WQCP is a State-permitted
HHWPF and presently, temporary HHW drop-off events are held one day per month
in the guest parking lot of the RWQCP as well as an appointment-based program
operated at the household hazardous waste contaimnent lockers at the entrance to the
RWQCP.
,
• Recycling Center. The Recycling Center provides a convenient location for drop-off
of scrap metal, used motor oil, oil filters, automobile and household batteries, anti
freeze, computer monitors, televisions and other video display devices, fluorescent
lights, large appliances, mattresses, electronics, books for reuse, videos for reuse, and
Goodwill donation collection. Lastly, residents can drop-off excess recyclables that
are eligible to be collected curbside via the single-stream carts. The site currently
occupied by the Recycling Center overlies a portion of the City's landfill that will be
capped and closed as part of the landfill closure process and will need to be relocated
when construction of the impermeable landfill closure cap begins. Palo Alto
Municipal Code (P AMC) § 5.20.270 requires that a Recycling Center be maintained
within the City's boundary.
• Resource Recovery Facility (RRF). As part of the City's goal of zero waste, a RRF
will be evaluated for placement at one of the potential sites. The RRF is envisioned
as an area where useable construction materials (sinks, doors, lumber, etc.) can be
salvaged from a construction or demolition site and offered for re-use. There is
currently no funding identified for the construction of a facility of this type, nor an
operating policy, but since this operation is compatible with the recycling and
HHWPF program, the feasibility study addresses this use.
DISCUSSION
Feasibility Study
The purpose of the feasibility study is to identify the programming needs of the various City
facilities mentioned above. The RWQCP site is located on the west side of the treatment plant
and is not park dedicated. This portion is small and narrow and appropriate for uses that are
easily relocated in the event the RWQCP needs to expand or other uses are determined to be
feasible at this site in the future. Staff is recommending pursuing development of the RWQCP
site as a recycling center and improvements to the existing HHWPF. Ihe remaining areas for
uses of a future RRF at the RWQCP site will be pursued at a later time when funding becomes
available.
The Compost Blue Ribbon Task Force (BRTF) was established in January 2009, and presented
its report to Council on October 19,2009 (CMR 402:09). The BRTF considered locations for
organics materials management both within and outside of Palo Alto, and specifically considered
the RWQCP site. The BRTF was advised by staff that the RWQCP site shape and proximity to
office buildings do not lend it to being suitable for windrowcomposting or' aerated static piles.
The BRTF screened out the R WQCP site partly for these reasons, but mostly because, at 2.6
acres, the site was not large enough for the composting operation. Staff believes that the
Recycling Center is a much better fit for the RWQCP site than composting, and recommends
moving ahead with design. Delay could easily result in having to close the Recycling Center, at
least temporarily, Staff believes the RWQCP site is the only one which could be ready in time
for relocation of the Recycling Center. Staff further believes that design and implementation of
the next Recycling Center must proceed without delay if closure is to be avoided.
Once the feasibility study is accepted and the Council authorizes staff to proceed with an
environmental assessment and design for the undeveloped west side of the RWQCP, Public
Works Operations staff will begin the design and hire a consultant to prepare the environmental
assessment. The first step will.be to prepare a detailed tree inventory and survey. Staff will
make every effort to save as many of the existing trees as possible. The attached Feasibility
Study contains conceptual layouts that do not show impacts to existing trees. Reconfiguration of
the new Recycling Center and HHWPF may result in a reduced footprint to preserve as many
trees as possible.
Staff will update Council on the design progress and proposed tree impacts before issuing
construction bid documents in late summer 2011. The timeline noted below shows the
anticipated environmental review, design and construction milestones for the RWQCP site
coordinated with the landfi II closure.
TlMELINE
Begin environmental assessment and design for the RWQCP site Spring 2010
Complete Environmental Assessments for RWQCP site Fall 2010
Complete design of RWQCP site Winter 2010/11
Build recycling center at RWQCP Summer 2011
Landfill capacity reached (end of solid waste filling activity) Late 2011
Landfill closure construction Summer 2012
RESOURCE IMPACT
If staff is directed to pursue design and an expected Mitigated Negative Dee1aration (MND) for
the RWQCP site, there is sufficient fimding in Public Works' Refuse .Fund Capital Projects RF-
07001 (Relocation of Landfill Facilities) to complete the project.
POLICY IMPLICATIONS
Approval of the feasibility study is consistent with City policies and previous Council direetion.
. CMR:183:10 Page 3 of4
ENVIRONMENTAL REVIEW
A feasibility study is not subject to environmental review under Section 15262 of the California
Environmcntal Quality Act(CEQA) Guidelines. Staff anticipates that an MND for the RWQCP
site will be required for the proposed uses ofHHWPF improvcmcnts and recycling ccntcr.
ATTACHMENTS
Attachment A: West Side of the Regional Water Quality Control Plant Property Feasibility
Study Snmmary
PREPARED BY:
DEPARTMENT HEAD:
CITY MANAGER APPROVAL:
CMR:183:10
c9~_~.Q
HOLLYJ.Q)V[)="""O
Project Engineer
d )}fJt---
GLENN S. ROBERTS
Director ofPubJic Works
.~~~~ ......... ~ .... .
Page 4 of4
""1
I
I
I
I
I
i
I ;
Background
• The purpose of the Feasibility Study is to identify the programming needs of
various City facilities, including:
o Recyclirig Center (existing facility closure expected in 2011)
o Household Hazardous Waste Facility Improvements
o Resource Recovery Facility
• The above facilities have been identified to be located on the west side of the
Regional Water Quality Control Plant site located at 2501 Embarcadero Way.
• To the greatest extent feasible, facilities will be designed to meet LEED.Silver
certification.
:_-_._--.. -
Participation
The Feasibility Study has analyzed in detail programming and site requirements,
and opportunities/constraints for the site. The study will explore phasing
opportunities and a project budget to help inform project financing, the planning
process, and scheduling, as well as functional, sustainable, and architectural
goals ..
Project participation included:
.oProject Management Team (PMT) Meetings
oProgramming Workshops
o Technical Meetings
• Planning Dept.
• Public Works Dept.
~'L-: ____ _ _ ____ .w ________ •• ______ • __ ,,_wo ___ ' ____ • ____ • ___ •• ,_~
RWQCP Summary & Background
The 2.62 acre parcel adjacent to the RWQCP is
currently used for dumping waste and leaves
generated by City street sweepers. The parcel
currently houses the Household Hazardous
Waste facility which is open to the public five
days per week for sanitary sewer problem
wastes, once a month for all residents and at
least once per month on an appointment basis.
The existing storm debris and dewatering area
closure is planned to coincide with landfill
closure.
The Landfill and Recycling Center closure is
expected in late. 2011. This site is planned to be
converted int~ a public park.
An environmental assessment for this parcel will
be included as part of the following Schematic
Design phase.
-----._--_._-----_._---_.
---.. _-------"-----,-
RWQCP Analysis
~----------_. __ . -.. -----.-.----.. -----
ZONING
D Pre-zoned PF(D)
L:1i:ND USE DESIGNATION
,"" . 'F>ublicF acilities
PROPERTY SETBACK
Front20fl. (Street)
Rear. 10 fl.-'
Interior N. Side: 10 fl.
, .. lriterior S Side: 20fl.
------..~: " "';"" ;-,' -.
~_ "I;fEIG.ATRESlRlCTIONS
__ ,~ .~-50·~', ," ,'. ,
,/ oil"~;;;'!"~ '. 35 flff 150 fI of R District '
-,,; 2 story
MAX FAR 1:1
" . MAX SITE COVERAGE: 30%
RECYCUNG STORAGE
All new development shall
~:; ...... provide adequate and
ci_ ,_ . .in accessible interior areas-or
. • .;s.>' ,,;;f!.I . .... '. ;,;j . exterior enclosures
-. '~ .. ·.' .• 'Il.'.·'i& w -'~.-::."-:.'SWPA .•.. '.~ ... ' .... 1!.!_.' .. '_EMPLOYE .. _E SH.OW. ER ,:>N:,~:,':" ....... '." .. ";'." "'fACIUl1ES
•..... ,~:. '-~'.'. . t;":'1-4, depends onGSF .:;:~ -' . .>;;
RWQCP Existing Site Conditions
location and Access -
• The site is located east of Embarcadero Way, south of the existing Wastewater
Treatment Plant (RWQCP), north of the saltwater marsh & commercial office
park, and west of the landfilL
o The site is adjacent to the San Francisco bay and the Mayfield Slough.
o Since the site is within the Airport Influence Area,proposed development will
have to comply with the Airport Comprehensive Land Use Plan.
• Access points are· provided from Embarcadero Way.
Soil Condition and Grading
o Based on 1986 Geotechnical Report of the neighboring RWQCP, it is
anticipated that this site is blanketed with ± 5 feet of undocumented, poor quality
fill under which are native clays (Bay Mud), sensitive to settlement.
o Site topography is highest along the north property line and naturally falls
towards Embarcadero Way. Retaining walls are potentially needed along
portions of the north property line.
o Due to the need for buildings to be above the FEMA base flood elevation, the
site will need a significant amount of imported fill. Topography data shows spot
elevations that vary from 3.5' to 9.5'. Earthwork is estimated at 5,500 cubic
yards, an average of 2' over the entire site.
o Ground water is anticipated to be encountered in the upper 5 feet of subsurface,
highly influenced by the tides.
• The site is located in a liquefaction hazard zone.
Flood Zone Information
o The 100 year flood zone is shown as "Zone AE-10.5", per the latest FIRM map.
Base flood elevation is determined to be 10.5' above sea level. Finish floor of all
buildings must be at or above the flood zone elevation.
, ,
RWQCP Existing Site Conditions
Wet Utilities
• An existing 8" CPAU water main is located along the NW sk,te of the site in
EmbarcaderoWay. This main currently provides water,Jire,andirrigation
service to the adjacent RWQCP. .
• Reclaimed water mains are located within the proposed site and currently
serve the RWQCP.
Dry Utilities
• Existing electrical, communication and gas lines run within the site's existing
service road.
Sanitary Sewer
• A 72" SS main runs through the middle of the site and. includes a manhole at
the center. A 6' SS line within Embarcadero Way can be extended east to
serve the site if necessary.
Storm Drainage
• A majority of existing storm water runoff flows into a catch basin located east of
the existing HHW, directed into a 15" RCP storm drain line.
• Existing storm water runoff is approximately 2.5 cis.
• It is critical that new developments on this site do not increase the net storm
water flows into the City's storm drain system,
ExistIng Trees
• Existing trees on site can be visually classified as in generally fair to excellent
conditions. A tree survey will be obtained in the Schematic Design phase.
• It is expected that some trees will be removed due to site grading.
.
---._--------.-~ ..• --..... ---.. ____ -~~.~-----~-.I
FACILITIES PROGRAMMING
HHW FACILITY
,--""',....--~, ~~---'-.,.......,.' .. ---_.
RECYCLING CENTER
RESOUCE RECOVERY FACILITY
PROPOSED FOR RWQCP
Based on a programming analysis of the various facilities and a site analysis, we have
proposed that the Recycling Center, Household Hazardous Waste Facility
Improvements, Resource Recovery Facility, and temporary Transfer Station be placed
on this site, with the following considerations:
·2.62 acre lot size allows the Recycling Center, Household Hazardous Waste and
Resource Recovery Facility to be efficiently co-located. The co-location of thesethree
program components provides a one-stop service for the public for all their recycling
needs.
-Close proximity to the existing recycling center allows for easy relocation of
equipment.
-Close proximity to the RWQCP allows for shared use of support spaces,utilities,and
an easy connection for waste water disposal and reclaimed water use.
-The Resource Recovery Facility, currently proposed at the east end of the site, can
be built in a future phase.
-The east end of the site provides an opportunity for a temporary Transfer Station until
a permanent Transfer Station can be sited (currently targeted for LATP site).
-The existing HHW bunkers can be reused, with an option for future expansion.
-The RC, HHW, and RRF are all more easily relocated, potentially allowing future
expansion or reconfiguration of the RWQCP.
--I"
l
------------.-~ ._------.-.~-----.-"-_., -.----~
Recycling Center Needs
• 'With theclosureofthe landfill site expected in late 2011, the existing ...
-ReeyclingCenter needs to be relocated.
• The existirigrecyclingcenterhas been reduced to less than 20,000
square feet .
• The existing center does not perform anyon-site processing, but does
. on-~ite sorting,~ndsegregation of limited recyclables.
• The eenterallowsthepublic to drop off recycling items from overflow
or non,..curbside pickup.
• Co-I.ocation with the Household Hazardous waste facility is ideal
because it provides the convenience of a one-stop service for the
communityJorall their recycling needs.
• The new Recycling Center should accommodate the same. functions
as the existingfac~ity,but adding a small cardboard compacter and
-'. .
bailer for efficient transportation of compacted recyclable material and
a more efficient site layout.
• Provide adequate vehicle! truck access and maneuvering area.
~i _______ , __ .• __ .. ","_'~ ________ • ____ d_ " •
Household Hazardous Waste Needs
• Provide the option to re-use existing bunkers, with additional storage
. space.
. .• Provide a permanent covered structure with a canopy over the receiving/6
cars minimum queuing space.
• Include a drive-up entrance so residents can easily drop off hazardous
materialslwaste.
• Currently the HHW (non-problem sanitary sewer wastes) is open to the
public only twice a month. The new facility is anticipated to be open 2-3
days per week, 4 hours per day.
• The bunkers will need to hold 1 month worth of materials. Each bunker
shall be equipped with secondary containment storage with HOPE
secondary liner, 24-hr venting system, and 2-hr fire rated enclosure.
• Provide air handling system, ductwork and exhaust fans required to
evacuate spilled solvents, off-gassing, and other volatile material
(potentially explosive).
• Provide fenced-in and secured packaging area, with access for pick-up
trucks to haul off waste.
• Provide an office·for 2 staff members, with restrooms and shower.
Restrooms and shower may be shared with an adjacent facility, such as
the RWQCP.
• Provide close adjacency to the Recycling Center's hazardous waste
bunkers.·
._---_._----
PALO ALTO -RWQCP SITE FEASIBILITY STUDY c;.! .... GROUP
-_. __ .. -.-._-------_. ------------------------f-
,-----------_.-----------------_.--_._--
Resource Recovery Facility Needs
• The program for a Resource Recovery Facility is still loosely defined.
The intent is to have a facility that can divert construction waste from
landfill and promote recycling or re-use of construction materials.
• The city envisions a facility similar to Berkeley's Urban Ore, but smaller
in scale.
• Include indoor and outdoor storage and display areas.
• Provide adequate parking for visitors and staff.
• Provide loading and unloading area for drop-off and pick-up.
• Section 5.5 of the 2007 Zero Waste Operation Plan recommends that
''the City encourage innovative [private-,sector] services ..... so the City
does not have to invest in ..... building materials reuse yards .... "
Temporary Transfer Station Needs
• With the closu re of the Landfill in expected in 2011, a temporary
Transfer Station may be needed until a permanent Transfer Station is
built on an appropriate site (the LATP site is currently being studied).
• Temporary Transfer Station needs are currently being reviewed in
conjunction with permanent Transfer Station program needs.
·G·····:J..·· ..•...•
,,' .. /.i.'. ·GROUP '4 •.•.•..•. ', '. c, ;
c ______ ~ _______ . _______ ._______ _______ __ _ __ _ ______ . ___ .. _____ _
r-----
RWQCP Program Overview
t~~l~' ,~ut;i;ent4Sf,) .' ;:iaRti:()B'A.i~SF~,,0>·Qp:tiO:J;iB~ ; .. ~~}~~~ced·;·i~ .-.".-":1d~~"
--, -RECYGI.:ING:CEN'Tffi·
" -' --. '," ;.,,", --c~ --
",'iCovere
TOTALGSF' 65,000 32,500 39,.000
RES()URCERECOV;ERY FACILITY'
~ "~"--'--"<=:",'--',-,',~,
Indoor facility (warefiouse) 5,000 18,000
Sit~/Qlltd96r"program'-' 14,750 12,300
TOTALGSF nfa 19,750 30,300 .
HdU.SEHOLD:'WmRD€)US WASTE FACILITY -_-' .. , ·-c __ "c, :y; ,_ .__ _' -~
Building'; 0 824 2,340
Site/outdoor program 782 1,732 3,740
TOTALGSF 782 2,556 6,080
. --_. --------._---,,--------------_ . I" .
• ~.-~----)
::0
r
I
~
I
I
I
I
!
~
I
I
I
C/) ......
CD
i
::t
0 :::s
~
,
I
I
I
I ,
I ,
I ,
,
!
i , ,
RWQCP Evaluation Criteria
Evaluation Criteria
1-Fair
2-Good
3-VetyGood
-Site Uses Compatibility
Site Option 1 til'
i -Sustainability . <.3 .....•... '., ; .'{liell 3
I . . ..... .._~ _~ ---',c--'.......,-•• ------,,----~
I . ·C.;>':';' ., ,·i.'·. '. . ... , .:. 'i' .... '. '. . .... ' •. ,'; ..
' -Street Identity & Presence .'. t·3X . ·:..scj).ce~..2_8 _____ ._._. __ ~_. __ .,_~ ____ ~:...~CD.£e:i~----.--
.. ~ . . ",
-Layout Efficiency _____ _
-Site Vehicular Access . "3 '.
---_.
-Pedestrian & Bicycle _ .' i ..
_?i~ulati~n····---· ------____ 2_·, .•... :':';."~:'_-;.C_~c--.~.~L-_;.:.:.-.... -.c..,----__ .------.:_ i· .,'
-Wetland Preservation . 2 . . _____ . __ ~ __ .
-Potential Temp_ Transfer ··3 ______ 1. ____ . ________ ..:._.-.. ________ ~-
Station ____ "-,~:~,-,:c'; .• ._~", ______ .,-----" ___ '.__ .... ___ . ____ ,
-Shared use with RWQCP 3 1
... ---.--~. -------
• ,
1 ,
I
I
;
i ,
I !
I
I • ,
I
.~.
RW
CP Prefe
ed Optio n fu tu re Phases
_______ ,_ ~ ~w_, ____ .w""' __ ,·_ '. _____ •
RWQCP Program Bubble Diagrams
Recycling Center -Option A
..
. -----------~~------------------------------
. ' ';
.~ .~
t
I
1
I
I
I
I
I
I
---. I
-I -~~.-. "i '-.
<?=
....D
'~l
;.Iii!R!!!l. ,J " !" ,I
·:1 •... ·· 1
' i 1 " :,
' " j . i!' j
, ~ 1
: J
I
I
I ~ ~ I
t
* Functional diagram only, actual layout will vary according to specific site options
RWQCP Program Bubble Diagrams
Recycling Center -Option B
I
~&& .......... ..
"-'--/"'
<}= ----=-~~~~-~-=~-=--~~~,~
" .. ,/<·~r·
, '>: I:=:"~> ----___ --'-__ '-....
'--..~-'-...
" ", -,
,':/ /1a]Ei*~~1B~{~',:;:;:\mllif~~~~r~1~i~~Jij~1~~~-,""'\,
! ill~_~_: __ _
<}=
=~
~ ~
~, '-':::;Zt:;~:lli,
I-...... ~ ,"Fmc.:D ~e MtI5JE NDI'tR ......... _ I'iOCIUT'I'
* Functional diagram only, actual layout will vary according to specific site options
PALO ALTO -RWQCP SITE FEASIBILITY STUDY
t
I
'~~ I
I
(2.1-
~:, GROUP 4
•
---------------_ .. --------_. , ______ , ______ , _______ ,______ _ _______ 5-
RWQCP Program Bubble Diagrams
Household Hazardous Waste -Option A
Pi8UPT TD ~ ~ I'It.1!!IIAL
TO A 'fIIUIIiIIPIIII .,...,., PIIJIIIII) IIIIWI!Ir
---. --~
ltIUIGr, ~ '~ r
N c:AIII5AEIt
('2. .... 5'] .... -
, ... , '
..
"",' . ····~c~~~ f-~-,t; t$ '~"..:, i ~
. \, ... ~;.. ~ ,;~~+Jd
2_ ...... era··· .. . __ .......
* Functional diagram only, actual layout will vary according to specific site options
RWQCP Program Bubble Diagrams
Household Hazardous Waste -Option B
tr:~J-~~~~~~~:~~~~ .... ~. _~L.:"'~--=r----t
lIIIt:ID -F¥1HtI& 3 I
o ............ ---.• _-9 .. t (2, ...... , l T .. ! ..-OUIE ---~.:'.!.-~..!~!"~ !
t -'" ! ...,. .......
I '1'11'.
o
~
-g::t?v:1-. ·a:~:fl
2 CM CIII!.lEJC !!IftIIa!
~
o
---------------------'---+
!
!
!
!
!
! 4
!
!
* Functional diagram only, actual layout will vary according to specific site options
0 1
\ ~ ... _~, GROUP 4
•
_______ ~r·
•
RWQCP Program Bubble Diagrams
Resource Recovery Facility~ Option A
',.11;; 'II 1\;; .,=,11, ;I,:~
)
J .,
* Functional diagram only, actual layout will vary according to specific site options
_._-,.,.~----.~
RWQCP Program Bubble Diagrams
Resource Recovery Facility -Option B
,
" · . ,
• · . : 'Qli~ ~.:.
: 1I!Ei'm.~ ; ".,~'~";
• , , • • ,
I , , , · · -~'" -;
@= _ ....... -
~
* Functional diagram only, actual layout will vary according to specific site options
PALO ALTO -RWQCP SITE FEASIBILITY STUDY C7',... GROUP 4.
•
-. -------~ .,_ .. -~ -----"-._'. • ___ . ___ .J '