November 4, 1998

To:Budget Committee

From:City Clerk

Subject:Delivery of 1998/99

Downspout Disconnection Program

Recommendation:

The Works and Utilities Committee recommends the adoption of the report dated September 30, 1998, from the Commissioner of Works and Emergency Services, subject to amending Recommendation No. (5) to provide that students also be requested to include questions on blue boxes, trees, water kits and composters.

Background:

The Works and Utilities Committee on November 4, 1998, had before it a report (September30, 1998) from the Commissioner of Works and Emergency Services recommending that:

(1)a free and voluntary Downspout Disconnection Program be provided to all eligible residents in the new City of Toronto commencing in January 1999 based on the program delivery model developed by the former City of Toronto;

(2)promotion of the Downspout Disconnection Program be targeted in areas of the new City that are serviced by combined sewers and/or are susceptible to basement flooding problems;

(3)approximately 4,000 property disconnections be budgeted for each year;

(4)an annual budget of $1,640,000.00 be allocated for the delivery of the program including marketing, staffing, property assessments and all materials and labour required to undertake the disconnection work;

(5)students be utilized to undertake canvasses, conduct property assessments and prepare disconnection plans; and

(6)the appropriate City officials be authorized and directed to take the necessary action to give effect thereto.

The Committee also had before it a communication (October30, 1998) from Ms. Anne Dubas, President, Local 79, Canadian Union of Pubic Employees, expressing concern with respect to the use of students as canvassers for the expanded Downspout Disconnection Program; and advising that CUPE Local 79 believes that City employees, paid according to the appropriate union classification, should be carrying out all assessments for the program.

City Clerk

Trudy Perrin/es.6

c:Commissioner of Works and Emergency Services

General Manager, Water and Wastewater Services

President, Local 79, Canadian Union of Public Employees

(Report dated September 30, 1998, addressed to the

Works and Utilities Committee from the

Commissioner of Works and Emergency Services)

Purpose:

To provide a future delivery strategy of the Downspout Disconnection Program to the new City in order to achieve 4,000 property disconnections per year.

Funding Sources, Financial Implications and Impact Statement:

Funding to be requested in the 1999 Capital Budget Submission.

Recommendations:

It is recommended that:

(1)a free and voluntary Downspout Disconnection Program, be provided to all eligible residents in the new City of Toronto commencing in January 1999 based on the program delivery model developed by the former City of Toronto;

(2)promotion of the Downspout Disconnection Program be targeted in areas of the new City that are serviced by combined sewers and/or are susceptible to basement flooding problems;

(3)approximately 4,000 property disconnections be budgeted for each year;

(4)an annual budget of $1,640,000.00 be allocated for the delivery of the program including marketing, staffing, property assessments and all materials and labour required to undertake the disconnection work;

(5)students be utilized to undertake canvasses, conduct property assessments and prepare disconnection plans; and

(6)the appropriate City officials be authorized and directed to take the necessary action to give effect thereto.

Council Reference/Background/History:

The Budget Committee at its meeting on June 25, 1998, received our report dated June 16, 1998, on the delivery of the 1998/99 Downspout Disconnection Program in which we stated that we would review improvements to the program and report back to the Works and Utilities Committee on the expansion of the program on a City-wide basis.

(a)Program Objectives:

The primary objectives of the Downspout Disconnection Program are to divert roof flow from the combined sewer system to assist in reducing the frequency of Combined Sewer Overflows (CSOs), which severely impact the quality of receiving waters, and also to provide relief to areas subject to basement flooding.

Reducing the volume of flow in both combined and storm sewer systems through infiltration has the following additional environmental benefits:

-less burden on sewer system and treatment facilities;

-increased effectiveness of storage and treatment facilities for CSO and stormwater;

-delay and reduction in peak flow of storm runoff;

-reduced volumes of CSOs;

-a reduced risk of basement flooding;

-recharging the groundwater table; and

-reduced peak flows and flash flooding in creeks and streams.

(b)Existing Service Levels:

The former City of Toronto and City of Scarborough have existing free and voluntary Downspout Disconnection Programs, with annual budgets of $1,500,000.00 and $60,000.00, respectively.

Under the former Toronto program, all residential properties as well as schools, churches and commercial properties are targeted. City staff assess each property where the owner indicates an interest, to determine the feasibility for disconnection and the installation of a free rain barrel. A City contractor performs the disconnection work, free of charge. Do-It-Yourself disconnection kits are available upon request. Under the former Scarborough program, student canvassers assess residential properties for the feasibility of disconnection and deliver free Do-It-Yourself (DIY) disconnection kits including a rain barrel. All disconnection work is undertaken by the property owner.

In the former Toronto and Scarborough, mandatory downspout disconnection for existing buildings was not considered to be a viable option at this time due to legal concerns regarding liability and significant compliance issues on some properties.

Downspout Disconnection Programs are currently not available in the former York, East York, Etobicoke and North York. However, the former East York has produced a "Do-It-Yourself" brochure to promote the disconnection of downspouts on private property.

The number of properties in each former municipality and those serviced by combined sewers and storm sewers is detailed in Table 1. Combined sewer areas do not exist in the former municipalities of North York and Etobicoke.

As detailed in Table 1, approximately 116,300 (26 percent) of the properties located City-wide have roof areas connected to the combined sewer system and 189,900 properties (43 percent) have roof areas connected to the storm sewer system. The remaining 131,400 properties (31 percent) are considered to be already disconnected from the sewer system (90,320 already disconnected plus 10,900 disconnected under the program), although future property assessments under the program will confirm this amount.

Comments and/or Discussion and/or Justification:

It is recommended that the Downspout Disconnection Program for the new City be based on the former Toronto model which offers a free rain barrel and the services of a City contractor to perform the disconnection work.

The option whereby the City provides all materials and a rain barrel, free of charge, to the homeowner to undertake the work themselves will be available upon request. However, it should be noted that a follow-up survey of homeowners receiving a free DIY kit indicated that less than 50percent had actually undertaken the disconnection work.

It is proposed to use students to conduct a door-to-door canvass and to solicit participation in the Downspout Disconnection Program. The former City of Scarborough has used students effectively for this part of the program in the past.

(a)Eligibility to Participate in the Expanded Program:

Homeowners of properties with roof areas connected to the sewer system will be eligible to participate in the program provided the characteristics of the property can accommodate the disconnection without creating a hazardous condition on the property, a neighbouring property or City property.

The property characteristics that may affect the feasibility for disconnection are as follows:

-insufficient grassed area/no suitable discharge area;

-grade of lot slopes towards building foundation wall;

-physical obstructions on the property;

-risk of flooding neighbouring property/City property;

-downspout shared with adjacent property owner and owner objects to the disconnection;

-internal drainage system (schools);

-close proximity to ravine control areas;

-contaminated sub soil;

-unsuitable soil conditions (limited infiltration capacity);

-existing fascia board and/or eavestrough(s) in poor condition.

Homeowners of properties with roof areas already disconnected from the sewer system do not require the disconnection service, however, they will be eligible to purchase rain barrels, diverter valves and splash pads under the program, at a subsidized cost. Experience to date has proven that the majority of homeowners that respond to the program are interested in obtaining a rain barrel to use as an alternative water source.

Rain water captured and stored in a rain barrel can be recycled and reused for garden irrigation and other outdoor water uses that would typically require the consumption of metered water from the City's water distribution system. The direct benefit to the user is an opportunity to conserve water and save money on water bills. The direct benefit to the City through the sale of rain barrels is an increase in public awareness of water quality and water conservation issues.

(b)Program Costs:

The average cost to disconnect a property in the former Toronto is $395.00. This figure includes the cost of all labour and materials to perform the disconnection work, staffing, vehicle costs, program promotion, direct mail campaigns, consultant studies, partnerships with local environmental groups and the purchase of rain barrels. It also includes the cost of preparing disconnection plans for property owners that express an interest in the program but do not follow through with the disconnection work.

(c)Program Disconnection Rate:

In the former Toronto, the annual target disconnection rate was 2,000 property disconnections per year. In the former Scarborough, approximately 200 homeowners were delivered Do-It-Yourself disconnection kits annually. Under an expanded program, a target of 4,000 property disconnections has been established.

(d)Program Target Areas - Combined Sewer/Basement Flooding Areas:

In order to meet the primary program objectives, combined sewer areas and areas susceptible to basement flooding will be targeted under the new program through direct mail campaigns or student canvasses. As previously indicated, there are specific areas in the former Scarborough, East York, York and Toronto municipalities that are serviced by combined sewers and which are susceptible to basement flooding during extreme rainstorms.

Table 1:

Downspout Disconnection Program - Existing Service Levels

Disconnection Techniques:

DIY - Do-It-Yourself

CC- City Contractor* DIY, disconnection not verified

(e)Program Promotion:

The program will be promoted through both direct mail campaigns and student door-to-door canvasses. The mailing frequency rate will be determined by the mailing response rate which is typically 20-25 percent following two mailings in a designated target area.

In order to effectively educate property owners on the benefits of diverting storm flow from the sewer system through downspout disconnection, a new brochure for distribution to the public will be prepared.

Under the former Toronto's Water Conservation Program, a school curriculum was developed to educate students in kindergarten to grade 8 on the benefits of saving water and modifying behaviour to reduce consumption. An educational module on stormwater diversion was recently developed and will be provided to both the Public and Separate School Boards for inclusion in the 1999 school curriculum.

(f)Budget Allocation:

The program budget will be divided into three components as follows:

-the promotion and disconnection of properties located in designated program target areas (combined sewer areas and basement flooding zones);

-the disconnection of properties located outside of designated program target areas on a first-come, first-served basis; and

-the sale of rain barrels and other disconnection materials at a subsidized cost to the public, primarily at community environment days.

Table 2 shows the proposed budget allocation for each of these components in order to achieve 4,000 City-wide property disconnections per year.

Approximately 66.5 percent of the annual budget will be allocated to disconnect 2,772 properties in program target areas.

Due to the additional environmental benefits achieved through the infiltration of stormwater, 30 percent of the annual budget will be allocated to each former municipality on a first-come,first-served basis to service eligible property owners that live outside of CSO or basement flooding target areas, but are willing to participate in the program. The former Toronto experience demonstrates that approximately 0.4 percent of all property owners with downspouts connected to the sewer system will call to participate in the program even though they are outside of program target areas and have not been contacted directly.

The remaining 3.5 percent of the budget will be allocated to selling rain barrels, diverter valves and splash pads to property owners already disconnected from the sewer system, at a subsidized cost. These products will also be available for purchase at environment days.

Table 2:

Proposed Budget Allocation

(g)Use of Students as Program Assessors:

The role of the program assessor is to contact property owners who have responded to a direct mail campaign, and schedule a site meeting in order to prepare a custom disconnection design for their property which will achieve the greatest benefit for the City and prevent adverse effects to the property. By undertaking this work on private property, the City assumes the responsibility of ensuring the work is done properly. Therefore, it is necessary that program assessors have sufficient technical training to do the work competently. They also have to perform a "sales" function in order to transform an expression of interest into a signed agreement to allow the City contractor to carry out the work.

In the former Toronto, four full-time staff members conduct property assessments. In addition, two co-op engineering students are hired each year and trained for a four-month work term each, to conduct property assessments and prepare disconnection proposals.

In the former Scarborough, student canvassers are used exclusively to solicit participation in the program.

This practice has been very cost-effective and should be continued under the expanded program, as a complement to the existing full-time staff constituent.

(h)Use of Students to Perform Disconnection Work:

The Budget Committee asked that this option be addressed.

In the former Toronto, experienced roofing and eavestroughing contractors are used to perform the disconnection work due to liability issues and the specialized techniques utilized to disconnect a property, such as relocating downspouts on the property, installing rain barrels with diverter valves and excavating for soak-away pits and pop-up drainage emitters. The contractor also provides the City with a two-year maintenance guarantee for the work which is extended to the property owner. During this period, property owner complaints may arise regarding drainage problems on the property or workmanship issues, which can be responded to promptly by the contractor.

Using students under the City's supervision requires training in work practices, health and safety procedures, customer service and public relations. There is a high turnover requiring new training each time. The City becomes directly liable for all damage on private property caused by our workers.

In considering the above, it is recommended that students not be utilized to perform the disconnection work.

(i)Contract Administration/Management:

In the former Toronto, the tendering and award of contracts, payment of contracts, general contract administration and contract inspection is conducted exclusively by program staff. A contract supervisor is on staff to manage the production and workmanship of the contractor in order to approve monthly payments. Properties are inspected on a daily basis to ensure the disconnection work is performed in accordance with City standards and to the owner's satisfaction. Conducting work on private property is a sensitive issue that requires attentive management by City staff.

The above "hands-on" arrangement has proven to be very successful as homeowner complaints, production rate fluctuations, program delivery revisions, high priority disconnection requests, etc. can be monitored and responded to in a timely fashion, with the support of other program staff.

As the success of this program is directly linked to a high level of service and homeowner satisfaction, it is recommended that this practice continue.

Conclusions:

Under the future program delivery strategy which will be in effect as of January 1999, it is anticipated that 4,000 property disconnections will be achieved each year.

In order to meet this objective, a total of $1,640,000.00 in funding is required for 1999.

Contact Name and Telephone Number:

Wayne Green, P.Eng.

Director, Quality Control and System Planning

Water and Wastewater Services

Phone: (416) 392-8242

Email: "wgreen@city.toronto.on.ca".