Agenda Item 8DAGENDA ITEM # SD
APRIL 25, 2011
CITY OF ATLANTIC BEACH
CITY COMMISSION MEETING
STAFF REPORT
AGENDA ITEM: Stormwater Master Plan Scope & Fees Approval
SUBMITTED BY: Rick Carper, P.E., Public Works Director
DATE: April 15, 2011
BACKGROUND: In March, the Commission approved Staff's recommendation of Camp,
Dresser & McKee (CDM) to produce a Stormwater Master Plan Update and authorized
staff to negotiate scope and fees for these services.
Staff, in consultation with the City Manager, has reached agreement on the Scope of
Services and Fee proposal attached to this staff report. The Scope of Services includes
review of the existing Stormwater Management Program, including known problem
areas; Stormwater GIS database review; and development of a proposed long range
Capital Improvement Plan for Stormwater. Also included are an evaluation of the City's
Land Development Regulations specific to the requirement for on -site storage for added
impervious surface; evaluation / recommendation of Low Impact Development (LID)
options for addressing some of the nuisance problems; and review of current operations
and maintenance practices to evaluate alternatives. In addition to two Public Meetings to
promote awareness and determine resident issues, CDM will make presentations to the
City Commission at the 60% and 100% stage. The consultant proposes to have Study
completed in nine months which will support discussion during the next round of the
City's Strategic Planning process. The Base Fee proposal is $99,830, with possible
additive tasks of performing a needs assessment for the City's Geographic Information
System (GIS) for $4,040 and performing a Preliminary Design Report (more detailed
study) if the City desires for a specific problem identified during the Master Plan Update
process for $5,620.
BUDGET: The Public Works Stormwater Account, 470 - 0000 - 538 -6300, includes
$100,000 budgeted for design services for Stormwater Master Plan
Update.
RECOMMENDATION: Staff recommends the Commission approve the Scope of Services and
Fee Proposal for the Stormwater Master Plan Update and authorize the
City Manager to sign the contract with CDM.
ATTACHMENTS: A. Scope of Services for Stormwater Master Plan Update
B. Contract Fee Summary
REVIEWED BY CITY MANAGER:
AGENDA ITEM # 8D
APRIL 25, 2011
City of Atlantic Beach
Stormwater Master Plan Update
Scope of Services
CDM
April 14, 2oii
1.0 Background
The City of Atlantic Beach (City) has selected Camp Dresser & McKee Inc. (CDM) to perform its
Stormwater Master Plan (SWMP) Update. CDM previously developed the SWMP in 2oo2 and will
build upon this work to update the plan with the following tasks as outlined in the City's Request
for Proposals (RFP):
A. Review of the February 1995 CH2M -Hill Stormwater Master Plan, the 2ooi Aikenhead and
Odom Analysis of the Sherman Canal System, the 2002 CDM Stormwater Master Plan
Update, the 2009 City of Jacksonville Master Stormwater Management Plan (MSMP) for
Sherman /Puckett and Hopldns Creeks and Stormwater Capital Projects completed since
the original Master Plan.
B. System review of historical problem areas, including a minimum of two Public
Information Meetings to gather resident input on stormwater problem areas.
C. Review and update of the City GIS Drainage database using coordinate system in state
plane NAD 83.
D. Analyze system for deficiencies and problems, considering Best Management Practices
and in accordance with the National Pollutant Discharge Elimination System (NPDES)
and Municipal Separate Stormwater System (MS4) Permits and the prospect of future
TMDL requirements for stormwater runoff. A primary focus of this Master Plan update
will be a review of the City's system of wet ditches leading to the Intracoastal Waterway.
Additional tasks include:
1) Evaluation of ditch conditions, including hazards such as vertical side slopes and
recommended solutions.
2) Evaluation of wet ditch refurbishment and / or maintenance options (City Forces
with Menzi vs. Contract, etc.)
3) Evaluation of Low Impact Development (LID) BMPs for nuisance flooding issues
(e.g., rain gardens, treatment swales)
AGENDA ITEM # 8D
APRIL 25, 2011
4) Review City's current requirement for on -site storage (Land Development
Regulations Section 24 -66 (b)) and impervious surface limits contained in
various Land Development Regulations sections and make recommendations for
modification as appropriate.
5) Evaluation of City's Stormwater System maintenance practices and
documentation required for annual MS4 report. Task shall include revision to
the Storm Water Management Plan and development of Standard Operating
Procedures for required tasks as listed in the draft MS4 permit.
6) Literature review of sea level rise projections for evaluation of possible impacts
to the City.
E. Develop a complete io -year Capital Improvement Plan, including:
i) Recommended system improvements and construction projects, considering
future system requirements and projected funding availability.
a. Include a priority rating for each recommendation.
b. Include a recommended time line.
c. Include an estimation of probable costs for each improvement.
F. Provide City staff with three copies of a sixty percent (60 %) Master Plan for review.
G. Prepare and lead presentations on the proposed Plan to the City Commission at the 60%
review stage and after the completion of the final Master Plan.
H. As directed by City staff and the City Commission, make corrections or revisions to the
60% Plan.
I. Provide and submit for review the Final Master Plan, including:
i) Five sets of system maps and schematics
2) Five sets of the Final Master Plan report
3) One set of the Master Plan on CD /DVD, with maps and drawings in AutoCAD
2000 and GIS format with the coordinate system in state plane NAD 83, and text
and materials in Microsoft Word format. GIS mapping shall coordinate with
existing GIS base maps.
CDM has outlined the following specific tasks to address the City's goals for this SWMPU.
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AGENDA ITEM # 8D
APRIL 25, 2011
2.0 Scope of Services
Task 1 Existing Program Review
CDM will review the existing program changes since the 2002 stormwater master plan update.
The review will include obtaining, and reviewing the following documents and digital
information:
• Current City Stormwater Ordinance
• GIS shapefiles
• Updated Table of CIP project implementation from the 2002 SWMPU
• List of Current Problem Areas
• Finished Floor Elevations for Potential Structures at Risk (PSARs)
• Repetitive Loss Database
• Finished Floor Elevations obtained during the Hopkins Creek Facility Design and Permitting
• Current system maintenance, including ditch maintenance work orders /records
• Geotechnical and soils reports received as part of recent re- developments
The main objective of this task is to identify the focused areas where the capital improvements
are necessary, since the regional modeling has been completed and the City has already
addressed the deficiencies of the primary stormwater management system (PSMS). For this
purpose CDM will dedicate one business day to visit the problem areas identified by the City to
inspect field conditions, and gather field information that will allow quantifying the severity of
the problem. In addition to the planned field inspection, CDM staff will be available to deploy in
the field in the event of a significant storm event. For up to one significant storm, CDM staff will
inspect problem areas to field verify the ponding areas, blockages, and system inefficiencies
documenting the work.
Based on the review of the available data, site visits, and project meetings, CDM will develop a
preliminary list of problem areas.
Deliverable: CDM will summarize the data reviewed and potential data gaps in a draft report
section submitted to the City, outlining the preliminary findings. CDM will identify
recommendations for City- resolution ofpotential data gaps. CDMwill prepare a table and figure
of each one of the problem areas identified by this task.
Task 2.1: Review of the GIS Stormwater Database
CDM will request the most recent datasets currently used by the City. CDM will review up to io
separate shapefiles and assess the current condition of the database, with emphasis on the
following common issues:
AGENDA ITEM # 8D
APRIL 25, 2011
• Improper geocoding of physical locations
• Inconsistent spelling of street names, materials, sizes, and other attributes
• Legacy attributes from older data sources
• Horizontal accuracy beyond standard tolerance
• Data table links broken between relational databases
• Vertical Datum conversion issues (NGVD to NAVD)
• Reference to external files (Pictures, PDFs) with fixed network addresses
Deliverable: A draft report section outlining the potential deficiencies identified during the review
of the GIS data along with recommendations for the City to refine /correct the attributes.
Task 2.2: GIS Needs Assessment (Not included in this scope)
CDM will also submit a questionnaire to be distributed to a maximum of io City staff from
different departments including Public Works, Utilities, Planning, Police, Emergency
Management, and others. The questionnaire will allow staff to identify specific objectives, and
tools desired by each department, as well as known deficiencies and problems that should be
addressed. CDM will compile the information gathered from the questionnaires and prepare a
lneeting with the City staff to go over the results, and to promote the discussion among the
interested parties.
Based on the results from the questionnaires, the staff meeting, and the GIS data review, CDM
will provide conceptual recommendations on how to resolve these issues. This first step will
include the needs assessment which usually constitutes the first step towards a GIS 5 -year
master plan horizon.
Deliverable: A draft report section outlining the data collected through the questionnaire, and the
identified deficiencies that should be addressed as part of a future GIS5 year master plan.
Task 3: Capital Improvement Project Evaluation
CDM will evaluate up to two of the problem areas identified as part of task i, and will screen
potential solution alternatives. CDM will focus on both storage and conveyance improvements
such that no new flooding is associated with the system upgrades, but will also consider water
quality treatment of the first flush with recessed planters, swales, baffle boxes, and other BMPs
for Environmental Resource Permit (ERP) requirements. In Task 4, CDM will focus on the
benefits and options to include Low Impact Development (LID) components to the storage -
conveyance solution for the two major ditch considered for enclosure. The storage- conveyance
evaluation will build upon the existing and updated U.S. EPA Storm Water Management
Models (SWMMs) for the City of Atlantic Beach SWMP Update and the City of Jacksonville
MSMP Update, which include Hopkins Creek, Sherman Creek and Canal, and Puckett Creek.
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AGENDA ITEM # 8D
APRIL 25, 2011
Task 3.1: Evaluation of Existing Condition in Selected Problem Areas
Hydrologic Model Refinement: CDM will refine the hydrologic boundaries, and infiltration
parameters for tributary areas for up to two (2) problem areas. Up to 8 new hydrologic units will
be created, based on field observations and the Duval County LiDAR topographic contours (2
ft). Rainfall storms used for this evaluation will include up to five 24 -hour design storms: 5 -year
(6.2 inches), io -year (7.8 inches), 25 -year (9.7 inches), and loo -year (12.7 inches).
Hydraulic Model Refinement: CDM will add a maximum of 20 model links to refine the level of
detail in the vicinity of the problem areas. The objective of the addition is to account for critical
underground pipes, and control structures including inlets, weirs, and baffle boxes.
CDM will estimate the flood levels at the model node locations and compare them against the
flooding level of service for structures and roadways as defined in the 2002 SWMPU as
practicable:
• Local streets and other 2 -lane roads should be passable (water level at or below the roadway
crown) for the 5- year /24 -hour event (6.2 inches).
• Collector /Arterial (4 lane roads) should be passable (water level at or below the roadway
crown) for the io- year /24 hour storm event (7.8 inches)
• Evacuation routes should be passable (water less than 1 ft over the road crown) for the ioo-
year /24 -hour event (12.7 inches).
• All emergency structures should be accessible (no flooding of the structure) for the ioo-
year /24 -hour storm (City Hall, Public Works facilities, Fire Department, et al).
• Other structures: flooding should not occur in the structure for the loo- year /24 -hour event
(12.7 inches).
Deliverable: Table listing the estimated flood levels under the existing condition at the model
nodes for the two selected problem areas.
Task 3.2: Capital Improvement Evaluation
For the two priority areas identified in Task 3.1, CDM will evaluate two alternatives to estimate
individual benefits in terms of changes in flood stages, flows, or velocities; public safety;
aesthetics; conceptual capital costs; and ease of maintenance. Out of the two alternatives, CDM
will recommend the most suitable Capital Improvement Project (CIP), and will summarize
planning level information including pipe and /or channel sizes and inverts, pipe /channel
lengths, storage and treatment volumes required, weir dimensions, and ditch geometry. This
task includes a total of 4 conduits and 6 inverts to be added to evaluate each one of the project
benefits.
Since the City has addressed the major issues in the primary stormwater system, the potential
projects that will be identified in this task will likely include ditch rehabilitation, streetscape
improvements, green low impact development retrofits, and localized nuisance flooding. CDM
AGENDA ITEM # 8D
APRIL 25, 2011
will evaluate different pipe geometries to maximize in -pipe storage as well as safe conveyance to
manage potential flooding. By considering a combination of conveyance and treatment, the City
can treat and infiltrate the first flush of stormwater runoff to satisfy permit requirements and
proactively address water quality, while also maintaining /restoring a more natural response
time of the system.
Deliverable: Table listing the two priority areas with its respective proposed solution and benefits
Task 3.3: Preliminary Design Report (Not included in this scope)
Because the City has successfully addressed most significant stormwater issues, a project
specific Preliminary Design Report may not be necessary for the Master Plan Update. However,
should the City desire, for one of the selected projects in Task 3.2, CDM will prepare a brief
preliminary design report, which will include the following elements as relevant:
• Potential utility relocation based on available information from City data
• Geotechnical considerations applicable to ditches and projects involving grading
• Pump control points and operating point
• One additional graphic outlining details of pipe installation, utility conflicts, GIS parcel boundaries
• Brief project description
The deliverable for this task will be a SWMP report appendix that outlines the project
components, and critical elements to be refined during design. This document can be used by
the City to support the bidding process for design and construction.
Deliverable: A draft report section providing project information to support design services
procurement.
Task 4: Evaluation of Low Impact Development BMPs
High groundwater table, tail water conditions, and limited available real estate areas are some
of the elements that drive the selection and effectiveness of Low Impact Development (LID)
features such as rain gardens, recessed planters, green roofs, and rain barrels. Under this task,
CDM staff will meet with City staff to discuss and agree on the ultimate goal of this task, and
then define examples for redevelopment, retrofit, and development for enhanced ordinance
guidance.
In some of the Capital Improvement Projects identified in Task 3, CDM will include LID
elements to treat and infiltrate the first flush of stormwater runoff to satisfy permit
requirements and proactively address water quality, while also maintaining /restoring a more
natural response time of the system. In space constrained areas, it is possible to add LID
features to ongoing streetscape efforts to promote runoff to recessed areas and use first flush
separation devices at the inlets to achieve water quality benefits.
AGENDA ITEM # 8D
APRIL 25, 2011
The City has been already implementing LID practices such as the onsite storage requirement,
limit in impervious area, and recently the use of the Hopkins Stormwater Facility for irrigation
purposes. CDM will propose other innovative practices such as stormwater harvesting that
might provide treatment benefits. The BMP quantity and quality benefits will be evaluated in
terms of runoff volume captured, and mass of pollutant removal for TSS and nutrients. CDM
will summarize the results from the evaluation in a fact sheet that can be used by the City for
public distribution.
Deliverable: Draft report section summarizing the potential benefits of some LID BMPs
specifically for the City ofAtlantic Beach. A site guidance fact sheet to educate residents about
LID options.
Task 5: Review City's Current Land Development Regulation with Respect to Stormwater
Management including Requirement for Onsite Storage
The objective of this task is to estimate economic benefits /impacts of current on -site
stormwater control requirements versus on projected future development for City. The City has
established a 50 percent cap on residential impervious area and CDM previously recommended
requirements to retain the increased runoff for the 25 -year 24 -hour storm onsite, and
requirements to maintain existing onsite storage to avoid cumulative impacts such as the
problems experienced over the years in the Core City and in Hopkins Creels. The redevelopment
of older beach cottages into higher impervious areas can cause offsite impacts of increased
flooding and reduced water quality. Therefore, it is important and fair for the City to have
onsite criteria. CDM will summarize the current practice of other Florida coastal communities
to use as a reference, such as Neptune Beach which restricts up to 35% impervious areas for
redevelopments. A review of the definition of impervious area, will also provide the City with
the tool to properly credit benefits from pervious BMPs by developers.
Options such as fee -in- lieu -of onsite facilities to fund downstream storage, treatment, and
conveyance may work in some areas and will be evaluated as part of this task. The following
aspects of the current requirement will be considered:
Cost: CDM will perform a conceptual comparison of the construction and ]maintenance cost of
implementing on -site runoff control versus developing regional solutions for the sample area
shown in Figure 1. The existing condition will be modeled with the same assumptions that were
considered during the Core City project (38 0/0). The analysis will consider the following typical
parameters of residential in Atlantic Beach and will also consider the current constraints to
develop regional facilities with very limited available open land:
i. Change in imperviousness
2. Site grading /storage
3. Conveyance /blockage to historical runoff
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AGENDA ITEM # 8D
APRIL 25, 2011
As practicable, the regional solution comparison may include swales, channels, and storage
where feasible along with underground culverts, vaults, baffle boxes, to offset the runoff
contribution of individual parcels.
Design Storm: CDM will compare the benefits of regulatory onsite control for the 10- year /24-
hour, as well as the 25- year /24 -hour storms. The comparison of the benefits might allow the
City to consider a different standard for the evaluation of onsite storage, and LID BMPs.
Engineering Parameters: In recent applications the selection of soil parameters and the "C"
factor have been critical in meeting the City's criteria. CDM will review recent geotechnical
explorations conducted by redevelopments to further refine the current infiltration parameters.
CDM will propose a set of hydrologic parameters for consideration of the City. This will provide
the City with the documentation that can be used to distribute to developers.
Emerging regulations the U.S. EPA Numeric Nutrient Criteria and NPDES MS4 rule revisions in
2012 will likely require additional controls for nutrients in stormwater runoff and Florida is
considering a Unified Statewide Stormwater Rule that provides credits for BMPs that were not
accepted in the past by regulatory agencies such as rain gardens, rain barrels, and other LID
methods. CDM will consider these as potential tools to achieve the same goal.
Deliverable: Draft report section comparing the LOS and cost implications of the current on -site
runoff control versus a regional approach, and a draft report section summarizing the status of
the US EPA NNC and NPDES MS4 regulations for potential impacts to the City. CDM will draft
language for City's consideration of adoption as City's ordinance.
Task 6: Evaluation of O/M Alternatives and MS4 Report Assistance
CDM will evaluate the ongoing discussions regarding the upcoming unified stormwater rule, as
well as the NNC, and TMDL load disaggregation, in conjunction with the MS4 permit renewal.
The main objective of this task is to identify credits and pollutant load reductions associated
with recent projects such as the Hopkins Creek Regional Facility, potential conversion of
existing ditches, and implementation of LID BMPs.
For operation and maintenance the City has been able to clean and maintain wet ditches with
its own staff and the City's Menzi machine. The ditches are key components of the City's PSMS
and must be maintained to achieve manage flooding; therefore, this LOS must be maintained as
practicable. CDM will review the available operation and maintenance cost data and compare
these costs with capital and long term O&M costs for the enclosed ditch systems to determine
the most cost - effective life cycle solution for the City, including the possibility of contract O&M.
As part of this task CDM will provide general Standard Operation Practice manuals to provide
operation and maintenance guidelines for common stormwater elements such as swales, inlets,
and pipes.
Deliverable: A draft report section outlining the potential impacts upcoming NNC, TMDL, and
NPDES MS4 revised stormwater regulations to the City ofAtlantic Beach; Maintenance
AGENDA ITEM # 8D
APRIL 25, 2011
recommendations for standard operation of the stormwater BMPs; and summary of comments for
the City's NPDES MS4 report.
Task 7: CIP Cost Estimates
CDM will prepare a conceptual capital and maintenance cost estimate for up to io different
projects, including the two selected alternatives as part of Task 3.2. The objective of the cost
estimate is to identify significant cost items that might separate one project versus the others. It
will also serve as a first estimate to plan the City capital outlay to build and implement the
recommended solutions.
Deliverable: A conceptual cost estimate in tabular format for up to io projects.
Task 8: Alternatives Ranking
CDM will rank the projects based on field visits, data provided by City staff, and review of the
available information gathered in Task i.o. The ranking of these projects will be highly based on
the current number of complaints, work orders. CDM will provide ranking recommendations
based on recent examples of projects completed in Coastal Florida communities. Additionally,
for the two selected Capital Improvement Projects (CIP) in Task 3.2, CDM will quantify the
relative benefits for flood stages vs. capital costs. The ranking will be based on the desired level
of service, which summarizes the program objectives when it comes to roadway flooding,
structural flooding.
Two meetings with City staff are included in this task to discuss the parameters and the
weighting criteria as approved by the City. CDM will produce a list of projects with a conceptual
capital cost estimate that will allow the City to plan for implementation in a io -year time frame.
Deliverable: Draft report section and table ranking the projects based on the lowest cost for the
greatest relative benefiting terms of flood stage reduction and treatment provided in Acre -Feet.
Task 9: Literature Review of Sea Level Rise Projections for Evaluation of Possible Impacts to
the City
The City is susceptible to changes in sea level, and currently there are many ongoing panels,
groups, discussions at the Federal and State level regarding this controversial topic. CDM will
review available data from the USACE on potential sea level rise and impacts in order to
determine how relevant this issue is to the actual topographic elevations, outfalls,
infrastructure, and future projects in the City. Based on the review, CDM will prepare a
summary table of parameters that will be used to determine the current mean tide, the mean
high tide, and the i -year tidal still water elevation.
Deliverable: A draft report section summarizing the findings of the evaluation, and a map
identifying portions of the City below the 1 -year still water elevation.
AGENDA ITEM # 8D
APRIL 25, 2011
Task 10: Community Rating System Certification Assistance
The City of Atlantic Beach currently holds a class 7 CRS, and is interested in updating some of
the supporting documentation to obtain an additional 5 percent discount from the National
Flood Insurance Program (NFIP). The City will review the following documentation in
compliance with CRS credited activities based on the AW214 Recertification Form:
• Verification of the City's geodetic benchmark network
• A log of Floodplain Determination Requests and Responses
• Floodplain Management Annual Outreach Materials
• Flood Protection Assistance Outreach Materials
• Repetitive Loss Property Owner Outreach Materials
• Floodplain Management Plan Annual Progress Report
• Typical Inspection Reports
• Report on Flood Warning Program
• Flood Warning Program Outreach Materials
• Amendments to Floodplain Regulations
• Amendments to the allowable density of development in zoning districts within the floodplain
• Amendments to the City Building Code
• Amendments to the City Stormwater Management Regulations
City staff shall provide information regarding the most recent annual recertification report,
status of changes to floodplain regulations, City building code, development zoning within the
floodplain, and stormwater management regulations.
Deliverable: A report section outlining the findings of the data review and recommendations to
improve documentation and scoring in order to maximize the CRS certification.
Task 11: Public Meeting Assistance
CDM will attend up to two public meetings organized by the Public Works Director, with the
main objective of presenting to the public the preliminary results of the previous tasks. The
objective of the meeting will be to allow stakeholders to understand the issues behind two
topics:
• Land Development Regulations.
• Wet ditch Refurbishment /maintenance options.
• Presentation to City Commission of the draft and final submittal of this master plan.
10
AGENDA ITEM # 8D
APRIL 25, 2011
CDM will prepare technical presentations, be available to answer questions from the audience,
and document the discussion in meeting minutes.
Deliverable: CDM staff attendance at two meetings, and preparation ofpresentation slides to
support the discussion at the public meetings. Presentations to City Commission for draft and
final submission of the master plan.
Task 12: Stormwater Master Plan Update
The CDM team will compile the draft report section from the previous tasks into the SWMP
Update report for City review and comment. Five hard copies will be provided to City staff for
review. CDM will meet with the City to present the report and to discuss comments to the
report. Once the comments have been discussed with the City, a final report will be issued. The
final report will be also submitted in PDF format.
Deliverable: draft report; two meetings with City staff; final report.
3.0 Schedule and Budget
CDM will complete the 12 tasks in this scope of services within g months from the receipt of
data from the City.
CDM will perform the services described in Tasks 1 -12 for a lump sum amount outlined in
Table 1.
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AGENDA ITEM # 8D
APRIL 25 2011
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