HomeMy WebLinkAbout08.a.1) History of Recycled Water ProgramS
' Central Contra Costa Sanitary District
August 28, 2014
TO: HONORABLE BOARD OF DIRECTORS
VIA: ROGER S. BAILEY, GENERAL MANAGER
JEAN-MARC PETIT, DIRECTOR OF ENGINEERING
FROM: DANEA GEMMELL, ENVIRONMENTAL SERVICES DIVISION MANAGER 051
SUBJECT: HISTORY OF RECYCLED WATER PROGRAM CHRONOLOGY
Attached for your review is a chronology of the recycled water program going back to
1969 with the enactment of the Porter - Cologne Act. A fifteen minute presentation is
planned at the September 4, 2014 Board meeting to highlight the key points of this
eleven page document. Staff has reviewed many archived records and reports in
preparing the chronology and has indicated a reference in support of each entry. If you
desire to review the original document or excerpt of the larger report, we have provided
this in a supplementary electronic file that has been bookmarked for easy reference.
N: \ENVRSEC \Position Papers \Gemmell\2014 \9 -4 -14 \Memo - History of ReW Program Chronology 9- 4- 14.docx
History of Central Contra Costa Sanitary District's Recycled Water Program
1969 The Porter- Cologne Water Quality Control Act was adopted into law by the
California Legislature with an effective date of January 1, 1970. The Act is
recognized as one of the nation's strongest pieces of anti - pollution
legislation, and was so influential that Congressional authors used
sections of the Act as the basis for the Federal Clean Water Act.
12/3/69 CCCSD and CCWD execute a Memorandum of Understanding to "carry
out and coordinate a "tentative program" for (1) CCWD feasibility study on
wastewater renovation; (2) CCCSD feasibility study on treatment plant
sludge disposal; (3) sampling and analysis of CCWD water supplies and
CCCSD wastewaters; (4) CCCSD pilot program to investigate wastewater
renovation processes; (5) demonstration program on beneficial uses of
renovated waters; and (6) implementation of municipal refuse and sludge
disposal, wastewater renovation and water pollution control. Financing
and quality and quantity standards are left to "future negotiation." (REF 2)
1970 CCCSD commission Brown and Caldwell to design expansion of
wastewater treatment plant. (REF 2)
5/28/70 State Water Resources Control Board (SWRCB) prescribes water
discharge requirements for CCCSD and states that restriction on
"nutrients" in discharged waters will be "prescribed at the earliest
practicable date." (REF 2)
1971 SWRCB rejects a report for expanding the treatment plant because water
reuse was not included. (REF 1)
6/17/71 SWRCB adopts Interim Water Quality Control Plan for San Francisco Bay
basin. (REF 2)
10/22/71 At a meeting with CCCSD and CCWD representatives, officials of Division
of Water Quality Control, State Water Resources Control Board (DWQC-
SWRCB) urge early implementation of wastewater reclamation program
for industrial uses. (REF 2)
10/28/71 Order No. 71 -72 of Regional Water Quality Control Board prescribes
discharge requirements for CCCSD which bar discharge of "conservative
toxic or biostimulatory substances" after June 1, 1976. (REF 2)
10128171 A bill titled `An Act to amend the Federal Water Pollution Control Act:
(Clean Water Act)" is introduced to the Senate by Edmund Muskie.
11/10/71 Letter to CCCSD from John Olaf Nelson (DWQC- SWRCB) suggests that
CCWD - CCCSD contract should be executed by May 1, 1982, to allow
Page 1 of 11
CCCSD to qualify for "clean water grant" funds within fiscal year. Nelson
adds "Expenditure of clean water grant funds for treatment works
necessary to reclaim the sanitary waste flow to a level suitable for reuse is
entirely consistent with announced state policy." (REF 2)
4/26/72 John Nelson (DWQC - SWRCB) advises CCCSD Board that by June 1976,
discharge requirements for CCCSD will bar discharge of toxic or
biostimulatory substances. Nelson and consultants from Brown &
Caldwell and Bechtel agree that filtration and denitrification will be
necessary to meet such discharge requirements. CCCSD Board
authorizes execution of Reclaimed Water Supply Contract with CCWD.
(REF 2)
4/27/72 CCCSD and CCWD execute "Reclaimed Water Supply Contract" which
requires CCCSD to make "best efforts" to construct water reclamation
facilities by July 1, 1975. Terms include pricing, water quality standards
and the wholesaling of CCCSD's tertiary- treated wastewater effluent (30
MGD maximum) to CCWD, which would then retail that water to the two
nearby oil refineries. (REF 3)
4/27/72 Letter to CCCSD from Paul Bonderson (DWQC - SWRCB) confirms that
"even in the absence of reclamation, filtration is definitely required to meet
1976 waste discharge requirements contained in the existing order."
5/18/72 At the request of SWRCB for justification of the need for nitrogen removal
to satisfy water pollution requirements, Brown & Caldwell provides study
entitled "Nutrient Control in North San Francisco Bay" authored by R.C.
Bain and L.N. Hoag of B &C. In Letter to CCCSD, D.H. Caldwell concludes
"Studies have indicated that nitrogen is the major nutrient which limits
algal growth in Suisun Bay ... The removal of nitrogen in the treated
effluent discharged to Suisun Bay will allow the discharge prohibition on
biostimulatory substances [of Order 71 -72] to be met." (REF 2)
6/13/72 CCCSD applies for state and federal grant to enlarge existing wastewater
treatment plant to 45 MGD primary treatment and provide 30 MGD
advanced treatment, commonly referred to as the Stage 5A project, at
estimated cost of $42.8M. SWRCB requires construction of project into
two phase, Phase I (Wastewater Treatment and Reclamation) and Phase
II (Filtration Facility). (REF 2)
6/15/72 Letter to Gary Horstkotte (CCCSD) from Nelson states that Grant
Application included "only facilities needed to meet wastewater discharge
requirements ... Those portions of the project necessary for reclamation
aspects will be certified for a grant just as soon as long awaited
Page 2 of 11
amendments to the Federal Water Quality Control Act are enacted." (REF
2)
10/5/72 CCCSD enters into contract with SWRCB for a 78.5 percent grant of all
federally eligible costs on 5A Phase 1 project. (REF 5)
10117172 Clean Water Act vetoed by President Nixon. Senate votes to override
veto.
10118172 House votes to override veto and Clean Water Act becomes law.
12/29/72 CCCSD enters into contract with EPA for a 78.5 percent grant of all
federally eligible costs on 5A Phase 1 ($54.7M cost estimate).
Subsequent amendments to grant bring the final total to $61.8M. (REF 5)
8/21/73 CCCSD issues Notice to Proceed to Peterson - Simpson (P /S) on 5A -I
project with bid of $47,648,000. (REF 2)
6/27/74 CCCSD enters into contract with EPA for a 78.5 percent grant of all
federally eligible costs on 5A Phase 2 ($15M cost estimate) projects.
Subsequent amendments to grant bring the final total to $16.6M. (REF 5)
9/17/74 Order No. 74 -95 of SWRCB set new National Pollutant Discharge
Elimination System (NPDES) standards for CCCSD which are much lower
than standards set by Order No. 71 -72 and do not require removal of bio
stimulants (i.e. nitrogen and phosphorus). (REF 2 and 4)
11/18/74 CCCSD awards contract for 5A -II Project to Fred J. Early Company. (REF
2)
2/6/75 Letter from Fred Dierker ( SWRCB) which notes that "denitrification of your
discharge should not be necessary at this time" because the Tentative
Water Quality Control Plan for the San Francisco Bay Basin indicates that
"algal productivity in the northern extremity of San Francisco Bay" is
already limited by "turbidity." Dierker adds "Since, however serious
concern exists that reduced Delta overflows may result in decreased
turbidity levels which in turn may make nitrogen concentrations the
governing factor, I urge the District to make provisions for the installation
of facilities which would provide capability for removal of nitrogen from its
effluent whenever such removal becomes necessary ... I hope the above
will provide the planning guidance which you requested." (REF 2)
4/9/76 CCCSD Negotiation Committee confirms decision to lease site to CCWD
for construction of a sodium ion exchange water softening facility (NaX
Plant) with associated storage tanks, distribution mains, valves and
appurtenances to transport and distribute reclaimed water to the
refineries. CCWD spends in excess of $6M on facility. (REF 2 and 10)
Page 3 of 11
4/1977 Fred J. Early Company, general contractor for 5A -II project files suit
against CCCSD for $2.7M. (REF 2)
9/8/77 CCWD accepts reclamation facilities, including Filter Plant, associated
structures (Forebays, Clearwell, Utility Pumps and Industrial Pipelines)
and ancillary equipment. See attachment 1 for map. (REF 2 and 6)
11/1977 Startup of secondary treatment processes at 5A -I plant. (REF 2)
9/1/78 P/S files suit against CCCSD for additional costs, delay and disruption of
construction work. (REF 2)
11/16/78 CCCSD files cross complaint against P/S for $20.08M. (REF 2)
2/1979 A report titled "Economic Evaluation of Wastewater Reclamation at the
Central Contra Costa Wastewater Reclamation Facility" notes that "Based
on the lower discharge standards now in force, the District is incurring
costs for wastewater treatment solely to meet the industrial reuse
requirement .... At this time the CCCSD is subsidizing treatment cost to
provide water for industrial reuse." The report estimates that "all
wastewater received at the plant must be treated to the "higher, reuse
level in order that 20 MGD (about 50 to 65 percent based on average
flows of 30 to 44 MGD) of the water can be reused for industrial cooling."
"The requirement to remove phosphorous was estimated to cost CCCSD
approximately $2.8 million more annually (in 1976 dollars) than to meet
NPDES conditions." (REF 8 and 29)
3/14/79 CCCSD discharges P/S as contractor for 5A -I project. (REF 2)
Late 1970s CCCSD operates Filter Plant (5A -11 project) at (<1 MGD) for use by
treatment plant and for small number of industrial customers on or near
District property, adjacent to the treatment plant, which were referred to as
the "hotel users." (REF 7)
1/16/80 Letter to CCWD from Nels Carlson (Board President) confirms agreement
to enter into joint studies to prepare for renegotiation of the final price for
reclaimed water "to equitably adjust the net costs so that the Sanitary
District is not paying for costs of treatment above what is required for
water pollution control." (REF 2)
11/81 Fred J. Early Co. v. CCCSD is settled by CCCSD paying $650,000 plus
the $1 M contract retention. (REF 2)
4/20/84 CCWD files a lawsuit against CCCSD to recover their expenses for their
NaX facilities (sodium ion exchange water softening facility, storage tanks,
mains, valves, and appurtenances) constructed in anticipation of retailing
CCCSD's tertiary- treated wastewater to the refineries. (REF 10)
Page 4 of 11
12/12/85 CCCSD signed a settlement agreement with the US EPA and the SWRCB
for the 5A1 and 5A11 project, due to significant difficulties during
construction which increased Project cost, increased operational
expenses and extensive litigation. After a significant review by EPA and
SWRCB, conclusions included:
• That the project was the "first major projects to proceed to construction
after passage [of Clean Water Act] ";
• Due to change I permit requirements ... the project has been converted
from advanced treatment to biological secondary treatment ";
• "CCCSD was strongly encouraged by EPA and SWRCB to develop
and construct a proiect which would provide reclaimed water for reuse
and recycling... the decision ... was reasonable at the time such
decision was made.;"
• "Phase I difficulties and attendant costs were occasioned by
circumstances and beyond the reasonable control of and without fault
on the part of CCCSD;"
• All costs were deemed reasonable, necessary and eligible for
reimbursement and within 60 days of the agreement final payment
would be issued. For 5A -1 project, EPA/SWRCB paid $54,215,594 with
the District share of $11,481,037 for a total $65,696,361 on wastewater
expansion. For 5A -11 proiect, EPA/SWRCB paid $14,396,186 with the
District share of $3,182,238 for a arand total $17.578.426 on the filter
Ip ant.
As a condition of the settlement, due to the "major
underutilization of the Phase II facilities, CCCSD agreed to:
1. "Maintain in operable condition all Phase II facilities until
January 1, 2000;
2. Continue to study and promote the cost - effective use of
reclaimed water within its service area;
3. Within two years after the date of full execution of the
settlement agreement, develop and submit a program to the
reasonable satisfaction of EPA and SWRCB for additional
utilization of Phase II facilities. The goal of the program to be
developed will be the eventual, full, cost effective utilization of
Phase II facilities." (REF 5 and 6)
Page 5 of 11
6/30/86 CCCSD receive $10.6 million in reimbursement for Capital Grants from
EPA. (REF 27)
9/26/1986 Board approves agreement with CCWD and $88,566 in funds to conduct a
joint study toward implementing a practical joint water reclamation project.
According to the position paper, the "study will satisfy the grant termination
conditions for the Stage 5A project." The scope includes defining water
quality criteria, identifying markets for reclaimed water and investigating
funding sources. (REF 23)
8/15/88 Reclaimed water is delivered as part of a demonstration project to cooling
towers at Shell and Tosco for six and seven months. The total delivered is
in excess of 100 million gallons.
9/16/91 Presentation to CCCSD Board on Industrial Recycling Efforts in Response
to Drought notes that since July 1991, CCCSD was providing
approximately 40 million gallons per month to Shell and Tosco.
Reclaiming water was costing the refineries $1,000 per day or $525 per
acre -foot. (REF 28)
Early 1990s CCCSD's response to the requirements in the grant settlement agreement
was to investigate how to maximize the beneficial use of the grant- funded
reclamation facilities to produce recycled water for industrial and irrigation
customers. Since the Refinery Project didn't move forward and CCCSD
could not purvey recycled water without agreement from the appropriate
water retailers (namely CCWD and EBMUD), the following projects were
investigated for implementation:
• Zone 1 Project in CCWD's Service Area
• Lamorinda Project in EBMUD's Service Area (REF 31)
3/1993 Construction of the recycled water distribution pipeline began in the early
1990s as a part of Pleasant Hill Relief Interceptor Projects to take
advantage of cost savings due to common trench construction. (REF 12)
6/10/93 At Public Comment Period for Draft FY 1993 -94 Capital Improvement
Budget, Mr. Parke Boneysteele, resident and former Member of the Board
of Directors (Terms: November 1967- January 1992 and December 1994 -
November 2006), stated "the District is now coming to a point where it
appears that water reclamation will be economically feasible not only
because of the increased cost of water but the fact that water may not be
available at all. Mr. Boneysteele urged the Board to remember that the
District has a commitment to proceed with water reclamation, and ...urged
that funding be provided for the water reclamation projects that are
Page 6 of 11
necessary to fulfill that commitment. By eliminating that funding the District
will have violated a fundamental commitment. Mr. Boneysteele stated that
this is not just an economic issue, it is a moral issue. The District has
agreements with the federal and state governments. The District should
take no action that would prevent reclaiming water in the future." (REF 28)
6/30/93 The breach of contract lawsuit filed by CCWD, in April of 1984, was
dismissed by the Superior Court of California, County of Contra Costa.
(REF 17)
5/25/94 CCCSD buys about 83,000 feet of the abandoned Shell Pipeline (in
Lamorinda area) for $1 with the intention of converting to recycled water
pipeline and transferring it to EBMUD in the future. (REF 20)
11/2/94 CCCSD signs General Agreement for Recycled Water with CCWD. The
purpose of this agreement was to "facilitate development of recycled water
projects by either District" and it set forth the terms and conditions under
which recycled water could be purveyed to customers within CCWD's
service area. This agreement also terminated the Reclaimed Water
Supply Contract that was originally signed in 1972. (REF 17)
1/31/95 CCCSD and EBMUD execute a "Water Recycling Planning Agreement" to
explore the possibility using the abandoned Shell pipeline to distribute
CCCSD's recycled water to the Lamorinda area. After CCCSD spent
$447,000 to study the project, prepare cost estimates, and staff time for
putting the abandoned pipeline into service, EBMUD determined that it
was not a cost - effective project, so the effort was discontinued. (REF 13
and 14)
8/1995 In order to produce and deliver unrestricted tertiary recycled water that
complied with Title 22, California's Code of Regulations for the production
of recycled water, CCCSD spent $4.1 M on DP 7162 to modify the existing
Filter Plant and Clearwell and construct approximately 4,350 feet of 24-
inch recycled water distribution pipeline. Other improvements added
include pumps, motors, valves, pipes variable frequency drives, controls,
electrical equipment, hypochlorite system and an alum polymer system.
As a result of this project, the rated capacity of the Filter Plant dropped
from 30 MGD to 3.8 MGD. (REF 11 and 22)
11/22/95 CCCSD and CCWD sign the Project- Specific Agreement for Zone 1 and
set a geographical boundary to where CCCSD had rights to purvey
recycled water and established normal and dry year recycling limits of
1162 AF and 1626 AF, respectively. See attachment 2 for map. (REF 16)
Page 7 of 11
3/12/98 CCCSD receives a low- interest state revolving fund (SRF) loan for $2.9
million, with a 20 -year repayment schedule, to construct the backbone
recycled water distribution pipeline from the pumps downstream of the
Clearwell south to Boyd Road in Pleasant Hill as a part of Zone 1. (REF
15 and REF 19)
5/14/98 Project is completed to install 5,500 feet of distribution pipeline and
connect the first recycled water customers, beyond the "hotel users" on
CCCSD buffer property, in Zone 1. Customers included Diablo Valley
College, Contra Costa Country Club Golf Course, Buchanan Fields Golf
Course, Chilpancingo Park, Pleasant Hill Corporation Yard, Frank
Salfingere Park and the Pleasant Hill Community Center. (REF 21)
12/19/99 CCCSD purchased the remains of CCWD's NaX Plant (sodium ion
exchange water softening facility) for $5,000. (REF 24)
8/18/2000 A Recycled Water Master Plan is completed by RMC. The Master Plan
listed potential projects and associated costs to recycle 70% of the
District's secondary effluent. Guiding principles identified include:
• "Comply with the terms of the Clean Water Program Grant Termination
Agreement wherein CCCSD agreed to actively continue to pursue
recycled water projects;
• Maximize the beneficial use of Clean Water Program Grant Funded
Reclamation Facilities to produce recycled water for industrial and
irrigation customers;
• Recover operating and maintenance costs ... on an ongoing basis
through the sale of recycled water;
• Recover capital costs for new recycled water facilities over a 30 -year
period with interest through the sale of recycled water;
• Coordinate and cooperate with local, state and federal water agencies
to provide recycled water as a safe, environmentally, beneficial,
reliable and cost effective alternative water supply. (REF 25)
9/2004 Recycled Water Needs Assessment 10 -Year Plan identifies an expansion
scenario to establish boundaries for the assessment to add customers to
build out Zone 1 from 1.5 MGD to 2.8 MGD over the next ten years. The
expenditure plan is proposed as "$400,000 per year over the next 10
years. This is just enough budget to connect remaining future Zone 1
customers... Total water demand will grow to about 3.8 MGD including
treatment plant demands at 1 MGD." (REF 26)
Page 8 of 11
9/6/05 Letter from EBMUD confirms they have no intention of moving forward
with the Lamorinda Recycled Water Project and that they are not
interested in acquiring the Shell Pipeline from CCCSD as was originally
planned. (REF 9)
3/19/09 Board votes to terminate General Agreement with CCWD. While it was
very helpful initially in establishing the Zone 1 Agreement, the agreement
was found to not be conducive to development of a large scale industrial
reuse project. (REF 18)
9/2011 CCCSD was awarded $1.03M to construct the Concord Landscape
Project (DP 7299). (REF 30)
4/23/13 A construction contract was awarded to Platinum Pipelines for $2.15M to
install about 2.3 miles of new distribution pipelines for the Concord
Landscape Project, with the potential to connect up to 36 additional
customers. Construction was completed in late Fall 2013. The system
has been charged, but has not connected any of the customer demand,
aside from making available a recycled water hydrant that was installed as
part of the project. (REF 32)
Current Currently, at peak demand, a total of 35 Zone 1 customers use <1.5 MGD
of recycled water and the Treatment Plant uses 1.1 MGD of recycled
water, leaving approximately 1.2 MGD of available capacity. (2013
Recycled Water Annual Report)
Page 9 of 11
Attachment 1
Refinery Recycled Water Project Infrastructure
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Page 10 of 11
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Attachment 2
Zone 1 Project Area Map
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