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HomeMy WebLinkAbout1978-06-20; City Council; 5308-2; Septic Tank Systems alternative of sewage disposalCITY OF CARLSBAD AGENDA BILL NO, 5308 SUPPLEMENT 2 DATE : June 20, 1978 DEPARTMENT: Engi neer'i ng // Initial: Dept, Hd $g C. Mgr. 5 Subject: SEPTIC TANK SYSTEMS AS AN ALTERNATE METHOD OF SEWAGE DISPOSAL Statement of the Matter The City Counci 1 has previously reviewed and approved staff recommendations and instructed staff to return with the necessary documents (Council action on 2-21-78) for adoption into the Municipal Code. - A concern has been raised by Mr. Bernie Gilmore of Palomar Airport Business Park over one of the policies that was adopted by reference. Policy recommendation #4 of the memorandum dated February 14, 1978, states that "Septic sewer systems shall - not be approved for major subdivisions (5 or more lots) unless specifically allowed by subsequent rural estate zoning ordinances." This pol icy does not differentiate between residential and industrial subdivi-sions, and as now interpreted would pre- clude applications for industrial subdivisions on septic systems. Mr. Gilmore has requested that the Council clarify or reconsider the septic system policy to allow processing of industrial tentative maps where septic systems are proposed (see Exhibit 1). Exhibits 1. Letter from Bernie Gilmore dated April 13, 1978. -, 2. Memorandum to City Manager dated June 14, 1978. 6-30-78 - Report from City Engineer to City Manager to be distributed / Recomnendati ons 75-w That the Council allow major subdivisions,,other than residential subdivisions, to be processed that utilize septic systems as an alternate method of sewage disposal, subject to the design requirements as outlined in Exhibit 2, and direct the City Attorney to return with the necessary documents. ,Council action 6-20-78 The matter was continued to the meeting of July 5, 1978 for 7-5-78 The matter was referred ba'ck to staff for further report, sa.id further report frb'm staff. report to contain proposed language expressing the desires of the Council as discussed. Palomar Airport Business Park April 13, 1978 Mr, Paul Bussey City Man age r City of Carlsbad 1200 Elm Ave. Carlsbad, CA 92008 Re: Lot 12 Subdivision Dear Mr. Bussey: On Tuesday, April 11, 1978, we submitted plans for a subdivision of our present Lot 12. We were informed by the Ciq Engineer that he could not accept this subdivision plan because he was insrructed by the Carlsbad City Council to draft an ordinance limiting the subdivision of any lot using septic systems to under five lots. This was not only a surprise to us, but a real shocker. In recent weeks we have spent several thousands of dollars drilling test holes to conform with the adopted city sewer moratorium ordinance for the fiIing of sub- divisions. We have fulfilled all of the requirements of the first ordinance and have received county approval of our planned septic pits only to find another ordinance that would stop the industrial park in its track. The City Engineer con- fused me a great deal because he felt the intent of the council was to block multiple lot subdivisions of residential areas and that the ordinance might not apply to industria1 subdivision. I need clarification on the intent of the City Council. Please bear in mind that future development of all of the remaining large lots in the park will call for subdivision of each lot with more than five small lots. I wish to get the point across that this is a very critical decision; one that has caused a little panic in my office already. Very truly yours, PALOMAR AlRPORT BUSINESS PARK Hewson Company Its Managing Agent BTrnard W. Gilmore Vice President BWG/cb cc: Tim Flanagan 6231 YARROW DRIVE, SUITE C. CARLSBAD. CALIFORNIA 92008 TELEPHONE (714) 438-2552 June 14, 1978 MEMORAN DUM TO: City Manager FROM: City Engineer SUBJECT: SEPTIC TANK SYSTEMS AS AN ALTERNATE METHOD OF SEWAGE DISPOSAL The City Council has reviewed the use of septic tank systems, and on February 21, 1978, accepted the staff recomendations as outlined in the enclosed memorandums. Recommendation #4 of the February 14, 1978 memorandum provides that "Septic sewer systems shall - not be approved for major subdivisions (5 or more lots) unless specifically allowed by subsequent rural estate zoning ordinances." of this condition does not differentiate between residential and industrial or commercial subdivisions, and as now interpreted precludes application for any major subdivision when sewer service is proposed by septic system. The wording Mr. Bernie Gilmore, of Palomar Airport Business Park, has several large acreage lots which he proposes to further subdivide. Septic sewer systems are proposed for these subdivisions. In reviewing the discussion that took place at the Council meetings on January 17, 1978 and February 14, 1978, most, if not all, the discussion regarding septic systems for major subdivisions pertained to residential subdivisions. I do not believe that the subject of septic systems adequacy for new industrial or commercial subdivisions has been addressed by the City Council. Since the sewer moratorium, staff has had numerous discussions with potential applicants for comerical or industrial projects on septic systems. Projects which have actually obtained building permits based on septic systems are few. The status of these are: Palomar Airport Business Park 1. Koll Office Building Complex - initial permit issued for septic system but sewer allocation granted prior to system instal lation. 2. Leonard-Eaton Manufacturing - building permit application accepted based on sep- tic, but plans abandoned when sewer allocation granted to Leonard-Eaton for another building. 3. project is under construction now. Growing Grounds Nursery (Palomar Airport Road). completed and has been plagued with problems from the start. have frequently been closed and employees instructed to use the restroom facilities of the adjacent ARC0 gas station. Buildings #9 and #10 (northwest corner of Yarrow and Camino Vida Roble - this This project has recently been Restroom facilities Nursery stock has been stored over the horizontal June 14, 1978 SUBJECT: SEPTIC TANK SYSTEMS AS AN ALTERNATE METHOD OF SEWAGE DISPOSAL seepage pit and irrigation of this nursery stock has complicated their problems. The Health Department notified me on June 13, 1978 that the Growing Grounds had been ordered to cease operations because of the food sample and produce prepara- tion operations not being compatible with the system approved. seepage pit was dug up within 10 days of start of business. operation is marginal at best. The existing The septic system Plaza South Shopping Center (El Camino Real south of Marron - Handyman, Carl's Junior, Charter Bank, shops). have already been some problems with the system design that are primarily related to intended use. The initial County Health Department approval for septic system was rescinded when it was discovered that the Carl's Junior Restaurant would have 80 seats and the sys tern was underdesi gned. A1 so, the developer wi thhel d i nformatton that leases had been signed for three restaurants in what was projected as shop areas (Straw Hat Pizza, Kentucky Fried Chicken and a Chinese food restaurant). On June 13, 1978 a representative of the developer inquired about a yogurt shop and a health spa in the shop areas. This project is now under construction. There I had a meeting with a representative of the County Health Department on June 13, 1978 to di scuss probl ems wi th i ndus tri a1 and commerci a1 bui 1 di ngs on septic sys terns. Overall experience with industrial and comercial is not particularly good. Problems with septic systems generally occur when the owner (a) intensifies the - use over and above what the system was designed to handle (or underestimates flow prior to obtaining a septic permit), or (b) changes the ground conditions after the septic system is in operation. The most common intensification of use is replacing shops with restaurants and other water intensive uses (laundromats, health spas, etc.). The most conmon change of ground conditions occurs when the leach 1 ine areas are paved to provide addi tional parking. In reviewing the County process for issuing the septic system permits, the weakest link in the chain of processing appears to be the determination of sewage flow. As I understand the process, the County Health Department (with some exceptions) accepts, at face value, the occupancy load of a building as stated by the applicant. Once a building has been occupied, there is no way for the County to control its use (or flow) short of the ultimate control of declaring a health hazard and abating the use. In reviewing Mr. Gilmore's request to allow major industrial subdivisions to be processed utilizing septic systems, I can support such a recommendation as long as the systems are adequately designed for the uses allowable under the zoning and building permit entitlement. Design flow should be consistent with the equivalent dwelling unit (EDU) determination if public sewer were available. say that it would be necessary for the applicant to construct the entire system initially, but rather that the ultimate system (plus required reserve) could be constructed if the use were to be intensified. This is not to Such a requirement for design 2 June 14, 1978 SUBJECT: SEPTIC TANK SYSTEMS AS AN ALTERNATE METHOD OF SEWAGE DISPOSAL ' approval would eliminate the necessity to allocate future sewer capacity for the reason that the use has been intensified - and there is not adequate room to also expand the septic system. Also enclosed is our engineering staff's version of the necessary language that should be incorporated into ordinance form which will implement the policy recommendations of the January 10, 1978 and February 14, 1978 memorandums. Should the Council agree to process major subdivisions other than residential, additional language would have to be incorporated. RECOMMENDATIONS I recommend that the City Council approve the concept of allowing major non-residential subdivisions to be served by septic systems subject to the following conditions: 1. Design flow in gallons per day shall be based on the equivalent dwelling unit determination times the number of gallons per day per equivalent dwelling unit as may be adopted from time to time by City Council. 2. Determination of suitability of septic systems shall be based on analysis of site level plan which shall include parking requirements, design flow and 100 per cent reserve area for the most intensive use allowed by zoning and building permit entitlements. For purposes of this requirement, the most intensive use in industrial zones shall be determined by office use. More intensive uses than office uses in industrial zones shall require review and approval by the City Council on a case-by-case basis. 3. The City Engineer may allow septic system phased installation based on flows less than design flow as determined in - 2 above. I further recommend that the above recommendations and enclosed draft, dated June 12, 1978, entitled "Septic Tank Systems, Chapter 13.20," be referred to the City Attorney for preparation of the necessary documents to incorporate into the Municipal Code. City Engineer TCF: pr cc: Public Works Administrator City Attorney Planning Director Enclosures 3 .I ROUGH DRAFT 6/12178 .? CHAPTER 13.20 SEPTIC TANK SYSTEMS 13.20.01 0 (rEMEP'4L QESTR I CT I ONS A septic tank systsm shall be the only acceptable alternative to con- Whenr, septic tank system is permitted: necting to a public sewer sysren. 1. no effluent disposal system otkr than conventional leach lines OF seepage pit (s) shall be a1 lowed; only domestic sewage may be discharged into any septic system. 2. The use of a septic tank system will not be allowed for major subdi- visions except as may be othetwise permitted by ordinance, 13.20.020 WHEN PERMITTED A septic tank system may be permitted where either of the following cond'itions exist and when a.11 provisions of thls ordinance are met: 1. Public sewer system is not adjacent to the proposed development and extension of the public sewer system is not logical or feasible as determined by the sewer agency; or I 2. Local sewer agency has enacted a sewer moratorium. . Each newly created residential parcel which is proposed to be served with a septic tank system shall have a minimum area of 15,000 square feet per dwelling unit. All of the required parcel area shall meet the County of San Diego requirements for a leach field or seepage pit area without . regard to percolation tests, "panhandles", slopes in excess of 25%, deep fill areas, ravines, etc. The required parcel area shall' not, include ,- 13.20.030 CONDITIONS FOR APPROVAL 1. A letter of approval shall be obtained from the local sewer agen- cy $if other than the City and the City Engineer$ permitting the use of a septic tank system; 2. The public sewer system shall be extended for future use to with- in one foot of each parcel to be served with a septic tank system. sewer line shall be constructed in a manner and locatlon approved by the City Engineer or local sewer agency. This condition shall apply to all tonlng except as otherwise provided by ordinance but shall not apply to The Sect Ion 13.20.020 (1 ) above. i 3. An approved private septic tank system conforming to this ordinance and to all current rules, regulations, policies, codes and.ordinances of the County of San Diego shall be provided'for each parcel or building. ate fees shall be paid by the applicant to the County of San Diego for pro- cessing septic tank system applications and obtaining permits. Appropri- 13.20.040 APPLICATION PROCEDURE A. Existing Parcels . 1. Commercial and industrial zoned parcels: When application is made to the City for the first discretionary approval, the applicant shall submit to the City Engineer one copy each of the following: a. Letter of approval for use of septic tank system from sewer agency if other than City. tion test" reports approved bi County of San Diego Public Health Department. b. "Soil condition of trench or seepage pit" and "percola- c. Proposed development plans. I d. The City Engineer will then review the information and will issue a letter approving or disapproving the use of a septic tank system. Proposed use and estimated sewage flow for each building. 2. Residential zoned parcels: Before the applicant submits plans to the City of Carlsbad Building Department the applicant shall submit to the City Engineer one copy each of the following: Letter of approval for use of septic tank system from sewer agency if other than City. "Soi 1 conditions of trench or- seepage pit" and "percolation test" reports approved by County of San Diego Public Health Department . a. b. .- The City EnginGer will then review the information and will issue a letter approving or disapproving the use of a septic -tank system. B. When New Parcels Are Being Created 1. Prior to making application for minor subdivision the appIi- cant shall submit to the City Engineer one copy each of the following: c ,- a. Letter of approval for use of septic tank system from sewer agency if other than City. b. Proposed tentative parcel map. . Commercial and industrial zoned property shall also submit one copy each of the following: c. Proposed development plans. d. The City Engineer will then review the information and will issue a preliminary letter approving or disapproving the use of a septic tank system. If a preliminary letter of approval for the use of a septic tank system is given by the City Engineer, the applicant shall have the necessary tests taken and submit to the City Engineer one copy of "soil condition of trench or seepage pit" and "percolation test" reports approved by the County of San Diego Public Health Department. The City Engineer will then review the information and wit1 issue a letter approving or disapproving the use of a septic tank system. At the time the tentative parcel map is submitted to the -.. City far review the applicant shall submit evidence that satis- factory percolation tests have been taken on 100% of the pro- posed parcels and said tentative parcel map shall bear cer- tification by the County Health Department that it has ap- proved each proposed parcel for installation of a septic tank system in accordance with this septic tank ordinance. Proposed use and estimated sewage flow for each bullding. 2. 3. C. All Parcels Septic tank system permits shall be obtained from the County of ... San Diego and one copy of said permit shall be submitted for each lot or building at the time building plans are submitted to the City of Carlsbad Building Department for plan check. -3- h .- Paragraph Number 3 of Section 18.05.010 of the Carlsbad Municipal Code (Ordinance 8073) be amended to read as fol lows: "Structures existing within the City of Carlsbad's sewer service area, as of the date of this ordinance, being served by septic system may obtain a sewer connection permit if the City's Public Health Officer certifies that" there is no additional area avatl- able for the expansion of the existing septic system and that "the septic system has failed and constitutes a health hazard.t' (New added wording under1 ined.) -4- MEMORANDUC4 - January 10, -1978 1( .. .. TO: City Manager FROM: City Engineer SUBJECT: Septic Tank Systems as an Alternate Method of Sewage Disposal .. lllith the City's enactment of Ordinance 7047, the "sewer moratorium ordinance" on April 25, 1977, and the replacement of Ordinance 7347 with Ordinance 8073, the City has created a situation that encourages the subdivider to go to a private sewage disposal system because of lack of treatment plant cstpacl'ty, Both ordinances provide that, "Building Permits may be processed and issued where the Carlsbad Municipal Code provides for an alternate method of sewage disposal." There are several problems created by this ordinance which will require additions to, and modification of, our existing sewer ordinances, policies, and procedures. -' There are no City requirements providing: - - -"- i gt I. for the pretesting (by the subdivider) of lots to be created% determine if the size of the proposed lots is adequate to support a private sewage disposal system; -2. for the construction (by the subdivider) of "dry" public sewer line (a public sewer line which would not be used at this time and would, therefore, be dry) to each lot, so that lots created with private sewage disposal systems can be connected to the City's public sewer system at a future date when sewer service is again available; 3, for the extension of the existing public sewer to the'new develop- ment, . Section 6.02.010 of the Carlsbad Municipal Code adapts by reference, along with other Divisions, Chapter 3 of Division 8 of Title 6 of the San Diego County Code of Regulatory Ordinances, known as the "septic tank ordinance." Section 68.312 of this ordinance provides, 'I... every building hereafter constructed or reconstructed shall be connected to a public sewer if the property on which such building is located abuts a public sewer. When a public sewer is not available for use, the plumbing and drainage system of a building shall be connected to an approved private subsurface sewge dis- posal system. The type of system required shall be determined on the basis of location, area, soil porosity, the ground water level ,. the density of population in the area, and shall be designed to receive and dispose of all sewage and liquid waste from the property served," The balance of the . EM9 TO: City Manager c -2- January 10, 19Z8 ordinance sets out general requirements and guidelines for private se:$age disposal systems, There are no provisions in this "septic tank ordinsnce" for the making of a preliminary determination of the adequacy of a private sev;age disposal systeiii for each proposed lot prior to the submittal of a tentative map, or for the final determination of adequacy ... prior to the approval of the final nap. subdivision ordinance. ordinance" and, therefore, have not been adopted by this City. The County's procedure, which employs all ordinances, not just th2 "septic tank ordinance," helps prevent the creation of lots that would not be able to sustain a private- sewage disposal system. Both of these procedures are required by the County These procedures are not a part of the "septic tank The following is a brief explanation of the makeup of a private se~kge disposal system. The private sewage disposal system, in general, consists of: a) a . septic tank where all of the wastes are disposed and where the solids are re- tained and reduced by bacterial action; and b) an effluent disposal system consisting of: lines installed in trenches and covered with a layer of gravel, then tar paper and soil; or 2) a seepage p$t or series of seepage pits. (A seepage pit is generally a 4 foot diameter, redwood 'lined, vertical hole 25-60 feet deep}. The size of every private sewage disposal -systen is determined by: a)- the number of bedrooms (for residential) or the estimated daily flow based-on fixtures and nirmber of people using the facility; and b) percolation tests (the capability of the soil to absorb the septic tank effluent). The leach field is usually the least expensive from a construction standpoint and is used where the percolation rate of the surface soil is adequate and there is a sufficient and suitable area for the leach field to be constructed, Seepage pits are generally used where a leach field is not possible or practical, There are a number of sophisticated septic tanks, with and without modified effluent disposal systems, on the market presently. These systems may be approved by the County if the septic tank is of proper size and the effluent disposal system is sized on the basis of the percolation tests. the "deluxe" septic systems must still meet the requirements of the ordinary system with respect to effluent disposal. 1) a leach field, which is a series of perforated tile drain In other words, In addition to the "septic tank ordinance", which is a part of the City code, the County has adopted (January, 1974) additional requirements which the Di- rector of Public Health is app'lying to all requests for private sewage disposal sys terns. . In April, 1977 the County Board of Supervisors revised their subdivision re- qui remen ts in the County code to require : 1, 40% of the proposed subdivision lots to have percalation tests prior to submittal of the tentative map; . c c .* ". 1 , MEN0 TO: City hanager -3- January IO, 1978 2. 3. Certification of the tentative map by the County Health Officer; 100% of the proposed subdivision lots to have percolation' tests prior to the submittal of the final map. A system design on each lot is also required. - There is a provision in the County's subdivision ordinance for a waiver on the 100% p2rcolation testing requirements if requested in writing by the engineer. The waiver nust be premised on at least. the following three items: uniform soil condition, no appreciable difference in the percolation rates in the test holes, and experience in the contiguous areas. When the 100% perco-, lation test is waived, the sanitarian must note it on the final map and sign the map.' , If the City's tentative maps were processed by the County in the same manner as the County's tentative maps, it would appear that the suitability of the propssed lots for a private sewage disposal system could adequately be deter- mined prior to their creation by the recordation of the final map. At the present time there is no ordinance or policy requirement by the City which requires percolation testing of any proposed lot prior to creation of same to determine if the lot is of adequate size to Eupport a prfvate sewer disposal sys tern. Septic tank systems are never as good as the day they are built and .&e subject to the "creeping failure process .I' The County requires an unencumbered 100%. minimum reserve area for the effluent disposal system at the time of initial design of the private sewage disposal system, Even so, in older small lot sub- divisions, there may come a time when an owner with a failing private sewage disposal-system runs out of a place to dig a new trench or hole. Studies certain they will be able to connect to the public sewer in the near future, It is felt, where possible, a "dry" public sewer should be extended to all . ' newly created lots. If it can be determined sewer service will be available to subdivision lots inthe foreseeable future, the creation of a smaller, more economical lot may be desirable. The sizing of the new lots must be arbitrary because of the variable involved in determining the size of a private sewage disposal system. incurable problem with the private sewage disposal system. The recent CPO report relative to septic tank systems points out, "The most commi>n solution to septic system problems is to expand the system. Small lot sizes can pre- vent expansion of the system and result in reliance on hooking up to a sewer system.. . .Approximately 95% of the . . . system failures reported . . . were repaired without hooking up to the sewer. or a new seepage pit were the solutions used," ("Comprehensive Planning Organization (CPO) of the San Diego Region, Agenda - --P the normal life expectancy of a septic systein is from seven to ten years indicitR . For these reasons, small lots should not be created unless it is . The larger the lot, the less probability there is of having The installation Of new leach lines Report No. R-57, dated Jbrch 21, 1977. L .. 1 1 tEf.20 TO: City hager -4- January 10, 1978 In the recoxmidations I have included a slope restriction relative to lot size, If a slope restriction is not inipgsed, it would be possible to create qiniml lots insofar as th2 ability of the lot to sustain a septic system is concern&. The recommendation rrwld only eliriiimte from the required lot area slopes that sub- division lots, the larger lots which are being reconvended may be suitable for splitting 1t;hen public sewer becorm available at son2 future date if the lots are properly pl anned and bui 1 t upon. The secondary devel oprnent (lot spl i tti ng) would put thr ul timate development at or near the planned level of development. If the City Council concurs in the recormendation relative to lot size, there will probably be little instant demand from the existing residw~tial buildings for connection to the public sewer system when the sewer moratorium is lifted. In the case of commercial and industrial devetopment, whether new or existing, the demand for connections to the public sewer when the sewer moratorium is lifted will be substantia!. The commercial shopping center type of development will probably have the greatest need because of their flows and cluster type of seepage pits. ments to connect as soon as public sewer service is availabte; A failing septic system in a shopping center not only offends and affects the general public, but hurts the businessmen and ZerchaDts until repairs can be effected. If the City: Council wishes to let commercial and ind-istrial developnent continue uti<Szing, ' septic systems, these developments should probably be first in line uh& ad- . . ditional sewer plant capacity is obtained. The only other category of subdivision that should be considered is that .Sn which no public "dry" sewer would be required. This type of situation should be re- served for the rural estate type of larger lot where there are no percolati~n would not Cs usabl~ for a septic systm. tihere zoning provides for small .- It will probably be in the City's interest to require such devefop- ' problems. -. So far this review has dealt only with the creation of new tots. existing lots, the extension of the public sewer system to the lot lines at the time of construction should be required when possible, The installation of the private sewage disposal system for existing lots is administered by the County, as previously noted , and poses no particul ar prob'lems. It is our assumption in this report that development wiJl be consistent with the General Plan requirements; that development will be practical , economical and orderly; that there will be no leapfrog development; and that all necessary public facilities will be provided, including sewer. the septic tank system is only a short term alternative sewer system. In the case of It is also assumed that the use of RECO!4!4EFJDAT I OMS : 1. All pewly created lots which propose to develop with a septic system shall meet the following requirements: .. ’ -( PIEKO TO: Xi ty fklanager -5- January 10, 1978, a. b. C. An approved private sewage disposal system conforming to all rules, - r.egulations, pol icies, codes and ordinances of the County of. $an Diego shall be provided for each lot. Appropriate fees shall be paid by the applicant to the County of San Diego for processing pri .va te sewage di sposal sppl i ca tions and permi ts . The public saver system shall be extended for future use to within one foot of each lot. The sewer line shall be constructed in a nanner and location approved by the City Engineer. This shall apply to all zoning except as otherwise provided for by ordinance. Each residential lot shall have a minimum area of 15,000 square feet per dwelling unit. All of the required area shall meet the County of San Diego requirements for a leach field or seepage pit area with- out regard to percolation tests.--- (This requirement will .exclude from the required lot area slopes in excess of 252, deep fill areas, ravines , etc . ) . . 2. All existing,lots which propose to develop with a septic system shall meet the fol 1 owing requi rements : a. An appmved private sewage disposal system conforming to-al-~,rules, regulations, policies, codes, and ordinance of the County of San Diego shall be provided for each lot. Appropriate fees shall be paid by the applicant to the County of San Diego for processing private sewage disposal applications and permits. b. tlhere possible, the public sewer system shall be extended for future use to within one foot of the lot in a manner and location approved by the City Engineer. .- 3. All commercial and industrial developments on both new and existing lots which propose to develop with a septic system shall also’be subject tu the approval of the City Engineer. 4. No septic system permit shall be issued for an effluent disposal system that utilizes any system other than the conventional leach lines or seepage pi t(s) . Paragraph Number 3 of Section 18.05.010 of the Carlsbad Municipal Code (Ordinance 8073) be amended to read as follows: ! & t 5. ! f i i ! . i i E -i January 10, 1978 -6- "Structures existirig within the City of Carlsbad's .seier service arm, as of the date ~f' this ordinance, bcirig served by septic system may obtain a sewr connxtion Demit if the City's PuSlSc Health Officer Tim Flanagan City Engineer cc : PWA Planning Department I e- -. , til PROCESSING STEPS FOR SEPTIC TANK PERMITS NEW * SUBDIVISIONS . L . " . , . .. .. , .. t I .. I' I I I I .I I .. I *I 1 1""' , I (COMM.,ANO I CITY COUNCIL I I I I I 1 1 I I I '1 *t' ' .. I. I E XI STI A! G I I I I I I I I I I I 1 t lL I I. I .. 1 I 1% I 1 .. I I I SUBMIT ~IMR I PLANS AND PREPARE IMP PLANS 4-1 TO CITY U?OSED '* 'C - .. HEMORAPIDlli.? - February 14, 7978 TO : FROPI:: City Engineer SUBJECT: C i ty I'lanager Sep-tic Tank Systems as an Alternate Nethod of Sewage Disposal. BAC KGROUi!D : At the January 17, 1978 City Council Meeting there was considerable discussion by Council members on an engineering staff report concerning the use of "Septic - Tank Systems as an Alternate Method of Sewage Disposal." The staff report prinarily addressed the technical aspects of septic systems while the Council discussion centered on various policy issues. This report (Agenda Bill 5308) . was referred back to staff for additional work addressing policy issues. -- The purpose of this menorandurn is to identify policy issues and to analyze the effects of adopting certain policies. I think it will be helpful .to summarize some of the key points that were con- tained in the initial engineering report. These are: I. A septic system is an interim system which is generally utilized only when a public sewer system is not available. Septic systems eventualTy fail ("creeping failure phenomenon"). Present County Health Department pol icy is to plan for this certain failure by requiring each lot served by a septic system to have an unencumbered 100% minimum reserve area to be used when the initial system fails. 2. 3. 4. When septic systems fail approximately 95% of the system failures repQrted were repaired without hooking up to a public sewer. Septic systems cause minimal degradation of ground water quality. Health and safety hazards of septic systems would be minimal if the'Cfty adopts all the County ordinances, policies and procedures with respect to septic systems. The basic staff conclusion in the technical report was that septic systems are technically feasible alternatives to the public sewer system if the County pro- cedures and report recommendations are adopted. POLICY CONSIDERATIONS: - I think it will be helpful to list the policy considerations that were discussed in the staff presentation and Council discussion at the January 17, 1978 Council Hecting. Some considerations may overlap, but basically they are: 1. Should there be a limit to the size of projects that will utilize septic systems; i.e., should there be limitations as to the number of equivalent . t. .* 94EHO TO: City Manager -2- C dwe? 1 i ng units (EDU' s) 'per project? dc- e.. February 14, 1978 2. Should the total number of septic systems in the City be lirnited.and, if so, should there be a "septic tank allocation system" similar to the sewer allocation system if only a finite number of septic permits will be allaned? Should septic systems be limited to specific areas of the City (i.e., sewer . i nfi 1 'I area)? Should there be restrictions against commercial and industrial projects (restaurants, warehouses)? 3. 4. 5. 60 Should septic systems only be considered after application for sewer atlo- cation is denied? What economic hardships will occur if septic systems are restricted? 7. Should capacity in future sewer systems be reserved for those already on septic systems? on converting from sep'tic system to public sewer? Vi11 conversions to public. sewer service use up reserve capacity in the next phased plant enlargement?) Should septic users pay sewer plant connection charges now? WhqFare the legal and budget problems of this? How will we fund future public sewer projects such as plant expansion, pump station expansion, new trunk lines? (What. about new septic permits? Should there be controls 8. G 9. 10. \!hat other alternatives are available in place of individual septic systems (comuni ty or neighborhood septic systems, satellite) treatment plants? If large scale development on septic is al1owed;will it reduce chances of success for sate1 1 ite plants and water reclamation projects? 11. Is there a limit to basin capacity? 12. Will land use densities, as outlined in Land Use Element of General Plan, occur if there are no limits to septic systems? (What will impact be on City's ability to serve with public facilities, low cost housing, etc.?) 13. What is the effect on cost of housing if each building is constructed with septic system and then converts to a dry sewer (or builds sewer mains)? 14. ltlhat will be the impact of projects on such things as sewer line or pump station assessment districts? sewer reimbursement- certificates? 15. What policies must be adopted for other sewer districts (LCblD, Or;C.rD)? 16. Should dry sewer lines be required? a." . b 17. Shoi I c -3- d City or SpecIdl 'Distract maintain ,nc to public system only on-site)? February 14, 192% ivludaI septic systems (s mitar 18. Nhat was intended when exemption was made in moratorium ordinance3 new development? For individual lots? For 19. DISCUSSION : A detailed analysis of all these and other policy questions would make for an interesting research project towards an advanced degree in Public Administration. However, such a detailed analysis is beyond the time constraints and staff auaita- bi 1 i ty to research. Should lot size be a criteria? (2 timis the minimum zoning or ? ) Based on the previous Council discussions, I believe that the following policies should be presented to Council for consideration: 1. Individual septic sewer systems shall be approved for 511 existing singte - family residential lofs- subject to the following requirements: a) An approved private sewage disposal system conforming to all rules, regulations, policies, codes ,and ordinances of the County of..San Diegcr shall be provided for each lot. Appropriate fees shall be #aid by the applicant to the County of San Diego for processing private sewage disposal applications and permits. ;c b) Where possible, the public sewer sgystem shall be extended for future use to within one fo?E%T%e--l-ot in a m%fiZr-aKil6~~i~n approved by the City Engineer. of providing an exemption to the sewer moratorium for septic systems), (This would be consistent with the initial intent 2. Septic sewer systems shall be approved for all subdivisions of land into four or less single family residential lots subject to: An approved private sewage disposal system conforming to all rules, regulations, policies, codes, and ordinances of the County of San Diego shall be provided for each lot. applicant to the County of San Diego for processing private sewage dis- posal applications and permits. The public sewer system shall be extended for future use to within one foot of each lot. The sewer line shall be constructed in a manner and location approved by the City Engineer. except as otherwise provided for by ordinance. Each residential lot shall have a mnjmlm are_a-of _lIS,OOO squace feet per dwelling --.-.- unit. All of the required area shall meet the County of Appropriate fees shall be paid by the This shall apply to all zoning i c c MEF~O' TO: city Manager 3. 4. ' e. 5. -4- February 14, 197b San Diego requirements for a leach field or seepage pit area without regard to percolation tests. --- (This requirement will exclude from the required lot area slopes in excess of 25%, deep fill areas, ravines, etc.) providing that the land to be subdivided has not been subdivided since February 21 , 1978. bility of the "four-by-four" .progressive subdivisions whereby a lot could conceivably be split eacK,year from 1 to 4, to 16, to 64, to 256 . . . lots). (This would eliminate the possi- e Septic sewer systems shall be approved for all comercial and industrial properties where an i-ndustrial ____ - -. waste pert-mi_t--is n.03 required, subject to County Health--Department approval for a septic pemi t. office, warehouse, and industrial uses that discharge only domestic sewage. It would exclude such uses as restaurants, automotive repair, metal plating, - etc. a1 location). (This would a1 low Projects involving industrial waste would have to compete for sewer A1 1 commercial and industrial developments UOth new_ and existing lots which propose to develop with a septic system shall also be subject to the approval of the City Engineer. Septic sewer systems shall not be approved for major subdivisions (5 or more lots) unless specificam allowed by subsequent rural estate'zoninb ordinances. The effect of this policy would eliminate concerns 'about: need to limit total number of EDU's; need for "septic tank allocation system"; ground water Contamination in basins; reservations for a significant amount of future expanded capacity; reducing the chance of success for inland satellite treatment plants; need to strictly control conversions from failed septic systems to the pub1 i g sewer sys tern; need to consider public maintenance of on-site septic systems; changes that could occur to the Land Use Elemnt of the General Plan if large areas of the City developed at lower density due to septic system requirements for leach field areas; lot size criteria; possibility that most future development would be constructed with septic system and then converted over to public system when capacity was avai 1 ab1 e. Septic sewer systems shall - not pay sewer connectio_n fees at the time of building permit issuance,but shall pay the full sewer connection fee in effect at the time that connection to the public sewer system is approved. (This policy will tend to somewhat reduce availability of plant expansion funds now, but will more fairly charge each future connection for . 0.' C MEKO TO: City Planager -5- February '14, 1977 "replaceiiient cost" of capacity being utilized. the need for a records system to keep score on which parcels are exempt from future fees). No septic system permit shall be issued for an effluent disposal system that utilizes any system other than the conventional leach lines or seepage pit( s) - It will also eliminate 6. Tim Flanagan Ci ty Engineer TCF:ms r MEMO w\ N DUM TO : City Manager FROM : City Engineer DATE : July 5, 1978 SUBJECT: SEPTIC TANK SYSTEMS AS AN ALTERNATE METHOD OF SEWAGE DISPOSAL The City Council, at its June 20, 1978 meeting, referred Agenda Bill 5308, Supplement #2, back to staff for clarification as to the difference between residential and other than residential major subdivisions on septic systems. From a technical standpoint, there is really no difference between residential sanitary sewage and industrial/commerciaI sanitary sewage. A properly designed and constructed septic tank system wi I I work for any sanitary sewage system. Proper design would include consideration of: 1. adequate soil investigation; 2. adequate flow determination; 3. adequate reserve area (in case of failure of the effluent disposal system);. and 4. adequate site plan consideration including A. size, shape, location of building; B. size, shape of the lot; and C. topography. It was my recommendation, based on our initial study, that septic systems coul d be al lowed for a I I projects which woul d generate domestic sewage subject to several conditions which would encourage proper design. The main differences in residential versus non-residential use of septic systems for sanitary wastes are in the areas of proper maintenance, ability to cope with problems and on general planning impact. Proper maintenance of a septic system insures the longevity of the system. A non-residential use is more likely to include a maintenance program as a necessary part of doing business. Such a program can be a deductible business expense. A residential use is more I i kely to post- pone maintenance "until next month" if money is tight. It is not unusual to forget the system is on septic tanks when the property is sold. The new owner then has no maintenance program. Regarding the ability to cope with problems, a residential unit, if facing a failure, may also be facing an order to vacate. Accessibility for repair may be poor because of fences, walkways, patios, trees, etc. A non-residential use, if developed in conformance with recommended stan- dards, would be more accessible for repair because the development plan is more extensively engineered and constructed to include provisions for repair of such systems. i c +* City Manager -2- July 5, 1978 Generat planning issues should be of concern to the City. Residen- tial development places greater demand on public facilities than does non-residential development. There are always a number of people want- ing to develop residential subdivisions. This is not always so with non-residential and the City may wish to be able to respond to the right opportunity to develop a job base for our citizens. Another issue of si gni f i cance re 1 ates to I and use. Provi di ng sufficient space for backup systems and disposal areas in non-residential uses does not present a problem with conformance to the land use element. Providing adequate space in residential development would require a density that would, in most'cases, be considerably less than our land use element specifies. This has impact on our support base for other public facilities. In summary, there appear to be a number of reasons that could favor commercial or industrial sanitary septic systems as opposed to residen- tial septic systems. At this time, 1 would recommend that proposed de- velopment on all land uses be treated equitably and that major subdivi- sions in commercial or industrial areas be allowed under the same cir- cumstances a.s they are in rural estate residential areas. This could be accomplished with the addition of a fourth condition to my mem of June 14, 1978. That condition would read as follows: "The minimum lot size of any developable lot proposed for creation in a commercial or industri- al major subdivision proposing to use a septic tank system as an alter- nate method of sewage disposal shal I be one (I) acre." A one-acre minimum lot size would provide greater flexibility in site planning for a septic system (plus reserve area) than would a smalfer lot size. referred to in my recommendation adequately cover sol I conditions, flow determination, reserve areas, site planning and topography. Other conditions RECOMMENDATION It is my recommendation that City Council allow processing of major subdivisions, other than residential, on septic systems, subject to the design requirements as outlined in my previous memorandums dated June 14, 1978 as amended by addition of Condition 4 as outlined above; February 14, 1978; and January 10, 1978. City Engineer i' TCF: veb CC: Pub1 ic Works Administrator