Report to: General Committee Report
Date:
SUBJECT: Program to Disconnect Roof Downspouts from the Sanitary Sewerage System
PREPARED BY:
RECOMMENDATION:
THAT the report titled “Program to Disconnect Roof Downspouts from the Sanitary Sewerage System” be received;
AND THAT staff proceed with implementation of Phase 1 of the Downspout Disconnection Program as outlined in this report;
AND THAT estimated expenditures of $198,000 for Phase 1 of the Downspout Disconnection Program be funded as $96,000 from Capital Project #050-6150-7194-005 EREP Rain Storm Damage, and $102,000 from Capital Project #053-5399-8172-005 Inflow/Infiltration Source Detection.
AND THAT Staff report back to Council with the findings of Phase 1 of the Downspout Disconnection Program, including required resources and staffing to implement future phases of the program;
AND FURTHER THAT Staff be authorized and directed to do all things
necessary to give effect to this resolution.
EXECUTIVE SUMMARY:
The downspout disconnection program described in this report has been developed by the Downspout Disconnection Working Group. The recommended program was developed through a series of meetings, and the proposed program is supported by the Working Group.
The roof downspout disconnection program is intended to identify properties where roof downspouts have been incorrectly connected to the sanitary sewer system, and to remove those connections from the system. The Town of Markham Sewer By-Law # 436-86 and Region of York Sewage and Land Drainage By-Law # S-0064-2005-009 prohibit discharge of storm water and roof runoff into the sanitary sewers. Sanitary sewers are not designed to convey any amount of runoff from roofs and can quickly become overloaded if even a small percentage of downspouts are connected.
Removing downspout connections to the sanitary sewer will decrease the probability of sanitary sewer surcharge and back-ups during rain events. There are also numerous environmental benefits derived from disconnecting downspouts from the sanitary system as well. These benefits include: decreased energy usage associated with sewage pumping and treatment; reduced incidents of sanitary sewer overflows and treatment plant by-passes during rain events; water conservation due to reduced lawn watering requirements; and groundwater recharge.
The Phase 1 area selected (Attachment A) is an area of Thornhill that has historically been affected by sanitary sewer back-ups during severe rain events. This area has also been identified as an area where flows in the sanitary sewer are measurably increased during rain events. Staff will report back to Committee on the success of the program following Phase 1 and modifications to the program will be recommended prior to the implementation of future phases. It is anticipated that the Downspout Disconnection Program will be implemented Town-wide in a phased approach.
The downspout disconnection program will be mandatory for all properties where a downspout connection to the sanitary sewer is proven. Enforcement of the downspout disconnection will follow a three-step approach: education, technical and financial assistance to homeowners and progressive enforcement. While it is intended that the downspout disconnection program will be implemented on a Town-wide basis, this report focuses on the implementation in the Phase 1 area only. Further evaluation of the Phase 1 results will be undertaken before wider implementation is proposed.
The Phase 1 program consists of the following major actions:
· Sewer-Use By-law update
· Development and Implementation of a communication and education program
· Identification of properties with roof downspouts connected to the sanitary sewer through accurate field inspection and investigation
· Technical assistance to home owners to address frequently asked questions
· On-site verification that disconnections are made in a satisfactory manner
· Provision of a financial grant to assist homeowners with the costs of disconnection on an equitable cost-sharing basis. Grants will be provided for 80% of homeowner costs, up to $500. Provision of grants is time limited, and will be conditional on verification that downspouts are disconnected in a satisfactory manner
· Provision of a rain barrel to homeowners that undertake the disconnection through this program
· Progressive enforcement of the Sewer Use By-law following the communication, education and grant eligibility period
· Monitoring of sanitary sewer flows and rainwater discharges to evaluate the effectiveness of the program with respect to reducing sewer surcharges and back-ups caused by rainwater
· Evaluation of the communication, education and financial assistance programs
· Reporting back to Committee on the resource and staffing requirements and format of future phases of the program
A separate study entitled “Thornhill Storm Water
Remediation Study” will be undertaken by the Asset Management Department to
address storm system issues in the Thornhill area. This study will evaluate the storm sewer
system (minor system); and the overland flow routes and drainage channels
(major system). Recommendations for
improvements to the overall system (major and minor) will be made under a
separate report.
PURPOSE:
The purpose of this report is to advise Council of the proposed program to locate and disconnect downspouts that discharge rainwater to the sanitary sewerage system.
BACKGROUND:
The Town of
Construction practices for municipal and private sanitary sewer systems and storm sewer systems have evolved over the past fifty years. In the older areas of Town, owners or builders have on occasion incorrectly connected downspouts to the foundation drains or directly into the sanitary service connection pipe. When an incorrect connection occurs, rainwater from the roofs has a direct connection to the sanitary sewer system. Separated sanitary sewer systems in the Town have never been designed to accept direct rainwater discharge.
During extreme
rain events, such as occurred on
To address the
issue related to sanitary sewer backups and basement flooding during extreme
weather events, staff have developed a program aimed at removing roof drainage
from the sanitary sewer system. This
will be achieved through the physical disconnection of downspouts that are
connected to the sanitary sewer system.
Discharge of roof drainage water to the sanitary sewer system is
prohibited under the existing Markham Sewer By-Law #
436-86 and Region of York Sewage and Land Drainage By-Law # S-0064-2005-009.
Staff have previously made a
presentation to Council explaining the impact of rainwater discharges to the
sanitary sewer through downspout connections.
The staff presentation is provided as Attachment B, for reference. At the meeting of
Many municipalities have undertaken downspout disconnection programs in areas where basement flooding has been problematic. Older municipalities with combined sewer systems (sewers designed to convey both sanitary sewage and stormwater) have been particularly proactive in disconnecting downspouts in order to eliminate combined sewer overflows and resulting pollution of rivers and beaches. The downspout disconnection programs have been implemented in four common ways. One method is for the municipality to enter on to property and remove the connection. This is normally done with the property owner’s consent. A second method is to encourage property owners to voluntarily disconnect, at their own cost, through an education program highlighting the environmental and flood protection benefits. The third method is to strictly enforce mandatory downspout disconnection By-laws. The fourth method is to provide financial assistance in the form of grants or subsidies to offset the cost of downspout disconnection.
Review of
financial assistance practices in other municipalities identified a range of
grants and cost sharing programs provided to residents. Assistance has ranged from zero dollars in
the former City of
The cost of completing the downspout disconnection is highly
variable. A homeowner that chooses to
undertake the work himself/herself can purchase the necessary supplies for less
than $200. The costs for a reputable eavestroughing
contractor to do the work will range from $600 for a property where a simple
disconnection is possible, to over $1,000 for more complex situations where
eavestroughs and downspouts have to be re-located. The City of
OPTIONS/ DISCUSSION:
The recommended roof downspout disconnection program is comprised of six main components:
1. Communication and education program
2. Identification of properties with rainwater discharges into the sanitary sewer from connected downspouts
3. Technical assistance to property owners
4. Financial assistance to property owners
5. Progressive enforcement of the By-law
6. Evaluation of program effectiveness, modifications, and reporting
The Phase 1 area selected (Attachment A) is an area of Thornhill that has historically been affected by sanitary sewer back-ups during severe rain events. This area has also been identified as an area where flows in the sanitary sewer are measurably increased during rain events. The Phase 1 area was serviced with sanitary sewers during the 1960s. The date at which these homes were serviced may be a contributing factor to the large rainwater infiltration, and may also provide challenges that need to be evaluated with respect to the positive identification of downspouts connected to the sanitary sewer. In addition, the Phase 1 area will allow staff to develop and evaluate a communication and education program that is effective for both resident owners and rental properties with absentee owners.
The occurrence of downspouts connected incorrectly to the sanitary sewer system is not isolated to the areas of Thornhill that were affected by basement flooding in 2005. The older areas of the Town built prior to the 1980s are in a similar situation and will require disconnection. Evaluation of the program in the Phase 1 area and the lessons learned will be taken into account when the Town-wide program is designed.
1. Communication
and Education Program
In order for the downspout disconnection program to be successful, an effective communication and education program must be developed and delivered. This has been proven through the successful implementation of other Town initiatives, such as Mission Green for three stream waste collection, Pesticide Use By-law, and extended driveways By-Law.
In Phase 1 of the downspout disconnection program, an effective communication program will be developed by Town staff with the assistance of marketing and communication professionals and the community liaison group. The program will include information and materials that are delivered to the entire Phase 1 Area explaining the purpose of the program and educating the community about the benefits of disconnecting downspouts from the sanitary sewer and directing rainwater onto lawns and gardens. Public information meetings and other community events will also be used to provide details and explanation of the program. In addition, the education program will include specific information made available directly to the property owners that are required to comply with the By-law.
The communication and education program will be evaluated as part of the Phase 1 program. Any areas for improvement will be identified and considered prior to proceeding with future phases of the program. Extensive consultation of the community liaison group will assist in the implementation of the program and in garnering valuable feedback.
2. Identification of Connected Downspouts
Property owners and occupants may not be aware that their downspouts connect to the sanitary sewer and generally will have no means to determine whether they connect to the sanitary sewer or storm sewer. In order to determine conclusively whether a property has downspouts that connect to the sanitary sewer, a series of on-site investigations are carried out, which include:
· Visual inspection for downspouts connecting into pipes leading into the ground
· Smoke testing to identify buildings with possible downspout connections to the sanitary sewer
· Dye testing of downspout discharges to confirm positively that a connection to the sanitary sewer exists
3. Technical Assistance to Homeowners
Once properties with downspouts connected to the sanitary sewer are positively identified, the individual property owners will be notified that they must disconnect the downspouts and direct the rainwater onto the surface. Property owners will be provided with enough information that they can do the work themselves or they may choose to hire a contractor to undertake the work.
Technical information will include:
· Clear explanation of the By-law requirements. Provision of this information in a variety of languages will be made available
· Frequently Asked Questions (FAQs) and answers will be provided
· Descriptions of the various materials and equipment required to complete the work
· Descriptions of common problems that may be encountered and means to avoid them
· A “convenience list” of qualified contractors may be provided
It is anticipated that the administration of this program will require several visits to each affected property for inspections and verification. These scheduled inspection visits can provide an excellent opportunity for knowledgeable staff to communicate the By-law requirements to the affected property owners and to provide technical information.
4. Financial Assistance to Property Owners
Progressive enforcement of the disconnection program will begin with a twelve month period during which the Town will assist property owners by providing financial grants for up to 80% of the cost for completing the downspout disconnection, to a maximum of $500. In addition to the financial assistance, all affected property owners will be eligible to receive one rain barrel free of charge.
Payment of the grant will be subject to completion of the required application, submission of original invoices, and on-site verification of the completed work by Town staff. It is proposed that the financial assistance will only be made available for a twelve month period starting from the time that the property owners in the Phase 1 area are first advised that they have a downspout discharging to the sanitary sewer system. After the twelve month period expires, the affected property owners in the Phase 1 area will no longer be eligible for a grant from the Town.
The financial assistance program is intended to facilitate rapid compliance with the By-law and is the first step in a progressive enforcement program. Further, the individual property owner and the community as a whole benefit by reducing the potential for sanitary sewer overloading and the resultant basement flooding.
5. Progressive Enforcement of the By-Law
Enforcement of the Sewer Use By-law is achieved through progressive enforcement. It is anticipated that the majority of affected properties can be brought into full compliance within twenty-four months. The enforcement steps include the following sequence of events:
|
Enforcement Activity |
Timelines |
|
1. On-going Education and communication |
May 2008 – August 2009 |
|
2. Sewer Use By-Law updates |
June 2008 |
|
3. Initial communication with residents to advise them of the program, forthcoming investigations, and provide guidance |
May 2008 – June 2008 |
|
4. Identification of downspouts connected to the sanitary sewer through smoke and dye testing |
June 2008 – July 2008 |
|
5.
Site visits by |
July 2008 – September 2008 |
|
6. Voluntary compliance by property owners |
July 2008 – July 2009 |
|
7. On-Site verification of disconnections |
July 2008 – July 2009 |
|
8. Financial assistance for a limited period (12 months) |
July 2008 – July 2009 |
|
9. Written notice of non-compliance, with an explanation of the By-law requirements for properties found still connected to the sanitary sewer. Follow-up site inspections |
July 2009 – September 2009 |
|
10. Work-orders issued by the By-law Enforcement staff detailing the deficiencies to be corrected on the property in order to comply. Follow-up site inspections |
September 2009 |
|
11. Compliance Order letters issued by the Town |
May 2010 |
|
12. Town may undertake corrective repairs on behalf of the property owner and recover the costs through property taxes |
To be Determined |
|
13. Prosecution resulting possibly in a remedial court order upon conviction |
To be Determined |
|
14. On-going flow monitoring of sanitary sewers in the Phase 1 area, and rainfall data collection |
May 2008 – September 2010 |
6. Evaluation of Program Effectiveness and
Reporting
Phase 1 of the program will conclude with an evaluation of the success or failure of the program to achieve the goal of reducing the potential for sanitary sewer back-up and basement flood through disconnection of downspouts. The evaluation will make recommendations that will affect the way in which the program is implemented Town-wide.
The success of the program can be measured in many ways and will consider the following factors:
· Flow monitoring in the sanitary sewers to measure the reduction in rainwater infiltration. This will indicate if the program is successful in reducing the potential for sanitary sewers to become overloaded and translates into a reduced potential for basement flooding. Flow monitoring will be initiated at the beginning of the program to establish a baseline to measure against
· Effectiveness of the communication and education program
· Engagement, involvement and acceptance of the program by the community
· Success of the financial assistance program for promoting rapid compliance
· Compliance of absentee property owners
· Overall number of downspout connections removed from the sanitary sewer system
The completion of Phase 1 of the program will permit more accurate estimates of the resources required to implement the disconnection program Town-wide. This information will be reported to Council prior to seeking approval to proceed with future phases of the disconnection program.
Cost Estimation – Phase 1
The design and implementation of the Phase 1 Downspout Disconnection Program will require resources from a number of areas and departments. Staff time and resources can be prioritized and reallocated from existing programs and activities during the remainder of 2008 in order to ensure that Phase 1 of program is completed. Similarly, expenditures for professional services, consulting, contracted services, and materials can be reallocated from existing approved capital and operating accounts. Details of these funding sources are provided on the attached Financial Information Templates.
The Phase 1 area is comprised of 805 single-family residential properties, 1 multi-unit residential building, and 21 commercial properties. Previous flow monitoring results and calculations indicate that between 10-12% percent of the properties in the Phase 1 area may have downspouts connected directly to the sanitary sewers.
The resource requirements and costs for the Downspout Disconnection Program can be divided into four components.
|
Program Components – Phase
1 |
Estimated Capital Costs |
|
1. Communication and Education Program
|
$40,000 |
|
2. Financial Assistance Program
|
$56,000 |
|
3. Investigation and Confirmation of Connections
|
$62,000 |
|
4. Sanitary Flow Monitoring and evaluation |
$40,000 |
|
Total
Estimated Capital Expenditure: |
$198,000 |
|
|
|
|
|
Estimated Operating
Costs per year |
|
5. Inspection and Administration
|
0.5 FTE ($40,0000) |
|
6. Enforcement
|
0.5 FTE ($40,0000) |
|
Total
Estimated Operating Resource Allocation: |
1.0 FTE ($80,000) |
Cost Estimation – Town-wide Project.
The implementation of the Downspout Disconnection Program on a Town-wide basis will require a significantly larger expenditure and effort. The Town-wide program, if approved, would have to be implemented over a number of years. Evaluation of the Phase 1 program will provide valuable insights that will guide and improve future phases of the program. Prioritization of the program areas will be determined following further analysis.
Town-wide there are approximately 36,000 residential properties serviced during the 1960s, 1970s and 1980s that must be evaluated. Staff have estimated that approximately 3-5% of the total (1,800 residential properties) will have downspouts that improperly discharge rainwater to the sanitary sewer. The likelihood of improper connection decreases in newer areas and will be negligible in areas built in the 1990s or later.
The Town-wide disconnection of all downspouts connected to the sanitary sewer will require a multi-year program. It is expected that the program could last between five to ten years using a phased approach.
The resource requirements and costs for the Town-wide Downspout Disconnection Program can be divided into four components.
|
Program Components |
Estimated Capital Costs |
|
1. Communication and Education Program
|
$100,000 |
|
2. Investigation and Confirmation of Connections
|
$2,310,000 |
|
3. Financial Assistance Program
|
$1,008,000 |
|
Total
Estimated Capital Expenditure: |
$3,418,000 |
|
|
|
|
|
Estimated Operating
Costs |
|
4. Inspection and Administration
|
1.5 FTE |
|
5. Enforcement
|
1.0 FTE |
|
Total
Estimated Operating Requirement: |
2.5
FTE ($1,590,000) |
FINANCIAL CONSIDERATIONS AND TEMPLATE: (external link)
Phase 1 of the
Downspout Disconnection program will incur capital and operating costs and that
can be funded from existing approved budgets as indicated below. The disconnection program was not identified
or budgeted as a separate project in 2008, however. the scope of work can be
accommodated within the scope of work for existing projects. It is anticipated that expenditures during
Phase 1 will be $198,000. In addition,
staff resources equivalent to 1.0 FTE can be re-assigned from other projects. Re-assigned duties are primarily in
The financial table below indicates the funding sources for this project. Funding for expenditures in Phase 1 will be split between two existing approved accounts. Expenses for re-assigned staffing and other associated costs will be absorbed within existing operating accounts.
The following table is a summary of the financial considerations for this project:
|
|
EREP Rain Storm Damage 050-6150-7194-005 |
Inflow/Infiltration
Source Detection 53-5399-8172-005 |
Total |
|
Original Budget |
$1,783,500.00 |
$250,000.00 |
$2,033,500.00 |
|
Expenditures /
Commitments / and Planned work |
$1,526,257.00 |
$0.00 |
$1,526,257.00 |
|
Budget Available |
$257,243.00 |
$250,000.00 |
$507,243.00 |
|
Budget allocated to Phase 1 of the Program |
$96,000.00 |
$102,000.00 |
$198,000.00 |
|
Budget Remaining |
$161, 243.00 |
$148,000.00 |
$309, 243.00 |
The total budget
for 2006 Capital project “EREP Rain Storm Damage” G/L #050-6150-7194-005 is
$1,783,500 of which $1,526,257 has been committed for planned work. The
unallocated balance is $257,243 of which $96,000 is allocated to Phase 1 of the
Downspout Disconnection program. The remaining balance of $161,243 will be
spent on numerous repair and restoration projects as a result of the
The budget
remaining in the
ENVIRONMENTAL CONSIDERATIONS:
The Downspout Disconnection program has extensive and long lasting environmental benefits. The immediate benefits include reduced energy costs for sanitary sewage pumping and treatment. Longer-term environmental benefits include water conservation since residents may use less drinking water for lawn and garden watering because downspouts will be discharged directly to lawns. Removal of roof drainage from the sanitary sewer will reduce the probability of sanitary sewer backups into basements and sanitary sewer overflows to creeks and streams.
ACCESSIBILITY CONSIDERATIONS:
Not Applicable
ENGAGE 21ST CONSIDERATIONS:
The Downspout
Disconnection Program will address several key aspects of the Corporate Goals
outlined in the Engage 21st Century
BUSINESS UNITS CONSULTED AND AFFECTED:
Staff from the Asset Management Department, Waste Management, Financial Services Department, Legal Department, and By-Law Enforcement have been consulted during the preparation of this report.
The Business
units most affected by the proposed Downspout Disconnection Program are:
RECOMMENDED
BY: ________________________
General
Manager,
________________________
Peter Loukes
Commission
Lead,
ATTACHMENTS:
Attachment A – Phase 1 Area and Boundaries
Attachment B –
Downspout Disconnection Program, Presentation
Q:\Commission
Share\Operations and Asset Management\Reports\2008\Waterworks\Downspout
Disconnection presentation\Sanitary Downspout Disconnection Program Report
April 3, 2008.doc