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1. Wastewater Treatment Plant201 ]"Avenue East, 1". O. Box 1997, Kalispell, MT 59903 - Bone (406)758 7720 — Fax (406) 755-7831 www. kalispelf corm To: Mayor Kennedy, City Council From: James C. Hansz, P.E., Director of Public Subject: Facility Plan Update and CIP Review Meeting Dated work Session, December 22, 2008 f, Works/City En ineer In August and September of 2007, staff and our consultant team. of IIDRIMorrison Maierle outlined the water, wastewater and storm water facility plan updates for Kalispell. Since then we have worked to integrate the capital improvement planning effort with our existing CIS system and continued the effort to refine the capital projects to maintain their relevance to the current growth environment. we have completed integration of the various elements of our planning and CIS capabilities. The purpose of this work session is to: 1) refresh your knowledge of the facility plans previously presented in 2007 with a very brief over view of their highlights, copies of the original briefings are provided for your convenient reference, but will not be repeated; 2) briefly outline the overall facility needs identified in those plans; 3) discuss the near -terra Capital Improvement Plans for the next five years; 4) seek the guidance of City Council to define Council's goals and the preferred course of action to achieve those goals. Craig Caprara of HDR Engineers will support this meeting to review the planning process and the development of the CIP. Staff will outline the near -terra CIP and discuss options. 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Hansz, P.E., Director of Public Works/City Engine6r Subject: Septage Disposal at the Kalispell AWWTP Meeting Date: Work Session, December 22, 2008 Flathead County has recently expressed an interest in disposing of septic tank wastes (septage) at the City's wastewater treatment plant. This issue was addressed during the design process for the on -going plant expansion project. The current proposal would entail significant costs and would present serious operational challenges for the City at a time when there is growing regulatory pressure to reduce its nutrient loading to Ashley Creek and Flathead Lake. There are also difficult and complex regulatory issues that should be considered and resolved ahead of any effort to develop a project to configure the City's facility for treatment of County septic tank wastes. This issue has been examined in detail by the consultant team leading our current plant expansion project and by City staff. A report of this review has been prepared and will be provided separately from this memo. The Executive Summary of the report is provided for information. Scott Murphy of Morrison Maierle and Craig Caprara of HDR will attend this work session to present the septage report and along with staff will discuss the range of issues surrounding this proposal. City of Kalispell PUblic Works Department fal &MORRISON Septage Receiving and Treatment at the Kalispell Advanced Wastewater Treatment Plant PREPARED BY: Travis Meyer, MMI Nancy Granger Cormier, MMI Craig Caprara, HDR DATE: November 11, 2008 December 15, 2008 Updated 1.1 Introduction In 2003 and early 2004, the City of Kalispell developed its most recent Preliminary Engineering Report (PER) for 20-year capacity and effluent quality upgrades at the Kalispell Advanced Wastewater Treatment Plant (KAWWTP) (MMI/HDR; March 2004). This document projected the capacity needs of the City through 2025 based on growth and development of residential/commercial customers in an expanding service area. At that time, the issue of septage receiving and treatment was identified for study. Comments on the draft PER from the Montana Department of Environmental Quality Solid Waste Program, at the request of private septage hauler interests in the County, asked if the City could address the growing concern over adequate septage disposal alternatives in the Flathead Valley. Section 3.10 of the final PER addressed this topic, and outlined that operational, financial, regulatory and legal considerations must be carefully evaluated and accommodated in order to properly address septage treatment by municipal facilities. The City rightfully suggested that leadership and participation on the part of Flathead County would be needed to successfully address this issue. At this time Flathead County has initiated informal discussions with the City regarding disposal of septage at the KAWWTP rather than by land application. Since the costs and considerations for septage receiving, treatment and disposal by municipal wastewater treatment works may not be readily recognized by the layman or public, additional investigation and documentation is judicious and warranted. The purpose of this document is to specifically address the costs and issues affecting the successful acceptance and treatment of septage generated from properties outside the Kalispell City Limits at the KAWWTP. 1.2 Executive Summary Basis of Planning. Based on Montana Department of Environmental Quality (MDEQ) records, nearly 2,550,000 gallons of domestic/commercial septage from on -site septic tanks were hauled and land applied by private companies in Flathead County in 2007. Using demographic projection methods consistent with the earlier cited wastewater planning document (MM//HDR, March 2004), it is estimated that by 2025 this volume will increase to as much as 3,320,000 gallons/year, peaking at over 27,000 gallons/day. While the total annual volume of septage hauled in Flathead County is only approximately 0.25 percent of the total volume of wastewater treated annually at the KAWWTP, the "strength" of the septage is 30-60 times that of raw wastewater, and thus still presents a substantial increase in organic and nutrient load if it were all directed to the facility. Septage loads can be treated at conventional facilities, but were not anticipated when designing the Phase 1 expansion of the advanced facility currently under construction. Septage Receiving/Treatment Facilities and Costs. If the KAWWTP were to accept and treat septage, and maintain the current treatment capacity for City of Kalispell residents, facility upgrades would necessarily include: • Modern septage receiving facility (new), and • Expanded liquid treatment processes • Expanded solids treatment processes Locating a septage receiving facility near the KAWWTP offers advantages to facility management and public acceptance. A new septage receiving station would include equipment, pumping, mixing, flow equalization and odor control, along with a building to house the equipment and contain odors. In 2008 dollars, the project cost for such a facility is approximately $1.2 million. The cost estimate for expanding the liquid and solids treatment processes at the KAWWTP to account for the increased organic and nutrient loading, based on the current Phase 1 expansion costs, is at least $3.0 million, for a total project cost of $4.2 million. If the KAWWTP were to accept and treat septage, the operating costs of the facility would increase compared to current costs. It is estimated that approximately 1 full-time equivalent staff position would be required to operate, manage, and financially account for the septage loads. In addition, the organic, solids and nutrient loading from the septage would have a direct affect on the non -labor, non capital/replacement operational costs of the facility (energy, chemicals, maintenance, etc.) in the range of 10-15 percent. In total, it is estimated that the cost to operate the facility could initially increase by $195,000-245,000/year, and proportionally thereafter. Septage Treatment at the Kalispell AWWTP 2 Septage Receiving/Treatment Operational Challenges. Treating septage at the KAWWTP would present the same operational challenges seen at conventional facilities that accept septage. These include upsets of the sensitive biological system developed for Kalispell's facility, increased potential for permit violations, and poor quality sludge. While it is difficult to directly estimate the costs of meeting these challenges, they include additional staff time, the potential need for alternative means to dispose of bio- solids, and, in worst -case situations, fines from MDEQ for permit violations. Septage Receiving/Treatment Regulatory Risks. Receiving and treating septage at the KAWWTP exposes the City to additional risks related to complying with the treatment requirements in its MPDES discharge permit and the nutrient loading limits currently being considered by MDEQ for the Flathead TMDL. The additional nutrient loading from septage could severely limit the City's treatment options for meeting future effluent nutrient discharge limits imposed on the KAWWTP. The regulatory landscape is far from clear in this regard because some of the potentially most severe regulatory changes are still being developed by MDEQ. The nutrient load from septage is estimated to be equivalent to nearly 4700 domestic customers by 2025. As effluent nutrient standards are tightened through a variety of regulatory mechanisms, the City could be faced with implementing alternate effluent disposal options or installing facilities to meet much higher treatment requirements 8-12 years earlier than would otherwise be necessary. Summary and Recommendations. In summary, the acceptance and treatment of septage at the KAWWTP in volumes projected to be generated in Flathead County would require a significant capital investment on the order of $4.2 million, and an increase in operating costs of $195,000-245,000/year. Furthermore, there are operational and regulatory/permitting issues that would come into play that could add significant un-specified costs and risk to the City's operations. Should the City consider accepting and treating septage from residents outside the municipal boundary it would need to be fully compensated financially for this service, and negotiate adequate provisions with Flathead County and the State of Montana so that additional regulatory/permitting risk is effectively mitigated. This latter point may not be achievable with the current regulatory landscape. The remainder of this document delves into the issues summarized above in greater detail. Septage Treatment at the Kalispell AWWTP 3