SUBJECT: WINTER STORM PREPAREDNESS DATE: October 5, 2015

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1 COUNCIL AGENDA: 10/27/15 ITEM: 3.6 CITY OF fir SANjOSE CAPITAL OF SILICON VALLEY Memorandum TO: HONORABLE MAYOR AND CITY COUNCIL FROM: David Sykes SUBJECT: WINTER STORM PREPAREDNESS DATE: October 5, 2015 Approved RECOMMENDATION Date '"MA- Accept the staff presentation on Winter Storm Preparedness. BACKGROUND The latest forecasts from the National Weather Service indicate a high probability of strong El Nino conditions in the northern Pacific Ocean. El Nino conditions may result in increased tidal activity, stronger than normal storm activity, and greater than normal rainfall activity. While it is too early to forecast specific impacts of these El Nino conditions, the City of San Jose is committed to protecting all its residents and businesses, and is engaged in comprehensive storm planning and preparation efforts to mitigate the impacts of a potentially severe storm season on the community. The City Council-approved Emergency Operations Plan contains detailed procedures for preparing for, responding to, and recovering from all hazards, including flooding, cold weather, and other emergencies, and directs the emergency management efforts should an emergency or disaster occur. Annex F of the EOP addresses flood hazards, such as the riverine flooding and coastal flooding experienced by San Jose in 1983,1995, 1998, and 2014, and includes an appendix specific to the Alviso district given its historic potential for flooding. In compliance with the plan, the City is currently in the preparedness phase and is coordinating preparedness efforts across all departments and offices and with our local agency and public utility partners. These preparedness efforts including coordinating planning activities, coordinating flood control activities, training flood management teams, and exercising emergency management capabilities. This memo provides a summary of some of the preparation activities underway or planned in advance of the storm season, as well as a general description of the emergency response activities that would occur in a storm emergency situation. More details and the latest updates regarding El Nino and weather forecasts, waterway status, storm system conditions, storm preparation and emergency response activities, and programs to assist the homeless and other vulnerable populations will be provided during the City Council meeting on October 27.

2 Page 2 ANALYSIS Storm Sewer System and Public Infrastructure Preparation The Department of Transportation and the Department of Public Works are responsible for maintaining, improving and managing the City's public right-of-way infrastructure, including the storm sewer system. Throughout the year, DOT and DPW, in partnership with other departments and agencies, including the Santa Clara Valley Water District, are focused on ensuring that the City's infrastructure remains functional during a storm and that the community is protected to the extent possible from any related storm impacts. Water District Flood Protection As the primary water resources agency for the County of Santa Clara, the Water District plays an important role in protecting the homes, business and public infrastructure from the effects of flooding. A main factor for ensuring that flooding does not occur within San Jose is the capacity and functionality of local waterways. Since the early 1980s, the Water District has invested more than a billion dollars in flood protection programs, including constructing major flood protection projects along the Guadalupe River and other waterway improvement projects. In preparation for the increased flows expected this year, the Water District has been clearing sediment and debris from rivers, streams, channels and other facilities to increase waterway capacity. The Water District will be holding its annual winter preparedness workshop on October 29, which will include updates on the National Weather Service's extended winter forecast, reservoir levels and releases, on-line stream and rain gauge information, sandbag operations, watershed maintenance, construction projects, and other activities that help prepare for the winter storms. City staff will be participating in this meeting to ensure that the City's storm preparation activities and storm emergency response actions are in alignment with the information and work provided by the Water District. Pacific Gas & Electric Winter Storm Response Pacific Gas & Electric now has an entire department dedicated to preparing and responding to emergencies and natural disasters. Through repeated exercises and thorough self-re views that seek constant improvement, the company's Emergency Preparedness and Operations team helps coordinate all-hands responses to events such as the 2014 Napa earthquake and the 2015 September wildfires, including working closely with first-responders. A combination of preparedness, practice and technology has PG&E ready to respond to winter storms. The Storm Sewer System The City's storm sewer system is designed to convey storm water away from developed areas to local creeks and rivers, and ultimately to San Francisco Bay. The storm water collection

3 Page 3 network includes more than 1,170 miles of sewer pipelines, 34,000 drain inlets, 1,320 outfalls, 4,000 miles of curb and gutter, and 29 pump stations. Various channels, culverts, ditches, detention and debris basins make up the remainder of the drainage system. The majority of the water relies on gravity to drain out of the storm sewer system and into the waterways. The pump stations are used to pump storm water from lower lying areas into adjacent waterways when necessary. Since the mid 1980s, the City's design standard requires that storm sewer systems be constructed to convey a 10-year storm event (a storm large enough to have a 10% chance of occurring in any year). The 10-year event is widely recognized as a reasonable and safe standard, and it is employed by jurisdictions nationwide. However, most of the City's storm drainage system was constructed before 1980, with over 93% of the system designed to a 3-year storm event standard. In many areas that have been annexed to the City, the capacity is even less than a 3-year event. On occasions of heavy and extended rainfall, the waterways and storm sewer system can become overwhelmed and unable to quickly drain water from the street due to their limited capacity. This can be caused by high levels in the rivers, creeks, streams, and drainage channels that prevent them from accepting the amount of water being collected by the storm sewer system. It can also occur when a portion of the storm sewer system has reached its own capacity and is unable to accept the amount of water flowing on the streets, or there is a blockage in the storm system preventing water from flowing through it. Regardless of the cause, whenever the runoff from a storm exceeds the capacity of the waterways or storm sewer system, the street system is typically designed to allow water build up along the gutters and into the street. Eventually, the water will travel through the roadway network until it either enters another portion of the storm sewer system or directly flows into a waterway. This process is called overland release. In many cases, street flooding is localized and subsides as rainfall decreases or ceases. In more severe situations, DOT and DPW are able to mitigate impacts by diverting traffic around flooded areas, closing streets, or in some cases, diverting water off of the streets with portable pumps. Regular Storm Sewer System Maintenance and Preparation Each year, DOT and DPW perform a variety of storm sewer system preventive maintenance and storm preparation efforts, all of which have already been completed or are progressing on schedule. The following is an overview of some of the key storm related efforts: All of the City's 34,000 storm drain inlets are being cleaned to remove litter, leaves and other debris that could block or restrict the flow of storm water. Areas most prone to early season flooding, such as Alviso and Downtown, have been completed. Once all the inlets are cleaned, a second cleaning of catch basins will occur in December and January in selected areas where needed. All of the City's storm water detention basins, drainage channels and swales were cleared of sediment, vegetation and other debris to ensure they are functioning at full capacity. All of the City's 26 storm pump stations have been thoroughly inspected and maintained to ensure they are functioning properly and at full capacity. The wet wells at each pump

4 Page 4 station were cleaned earlier this summer and will receive another cleaning after the initial rains. DOT and DPW have conducted a series of storm planning and coordination meetings to review and update storm emergency response procedures, coordinate and confirm progress related to all storm preparation activities, share information about improvements or changes in the storm sewer system, and to ensure that all staff, equipment and resources are prepared for the upcoming storm season. DOT is producing a supply of sandbags to be available at the City's corporation yards until the Water District delivers there supply in November. The Water District will be providing supplies of sandbags during the storm season at various locations through the City, including the City's Mabury and Central Service Yards, Alviso, and the Water District facility in Almaden Valley. Additional Preparations for Alviso and Other Critical Areas/Issues Due to the higher than normal amount of rain and other storm activity expected this season, DOT and DPW are implementing additional storm preparation and storm response efforts for areas more prone to flooding, such as Alviso, or to deal with issues that might arise during intense or extended storms. Alviso requires special attention during the storm season due to its low elevation several feet below sea level. The primary storm sewer pump station serving Alviso pumps storm flows into the Guadalupe River and is sized to address a 3-year return storm. When peak rainfall exceeds the pump station's capacity, water ponds in the streets until the pumps catch up, or until additional portable pumping capacity is added. For the Alviso area, DOT and DPW are performing the following additional storm preparation activities: Additional portable pumps are being rented and will be stationed in the Alviso area so that they can be deployed at key locations in advance of a storm or quickly when needed. These pumps will augment the existing pump stations in order to prevent flooding. The Water District is also stationing a pump in the Alviso area as an additional backup measure. All of the storm drain inlets will receive a second cleaning during the storm season to reduce the possibility of flooding caused by the buildup of debris in the storm system. All of the storm pipes are being cleaned to ensure that they are clear of debris and sediment and functioning at their fullest capacity. Maintenance staff will be assigned to monitor and operate the Alviso Gold Street Pump Station prior to a predicted storm event and throughout the entire event. 24/7 On-duty supervisory staff will be deployed to the Alviso area once rain is reported to monitor conditions and coordinate needed maintenance activity.

5 Page 5 For other areas prone to flooding or other storm related issues, the following measures are underway: All of the sanitary sewer and storm sewer pipes surrounding key Downtown event areas are being cleaned to help ensure that problems do not arise during the holiday period and the Superbowl events. The areas include the one-mile radius surrounding the SAP Center, Convention Center, and San Jose State University. Additional backup equipment, such as pumps, are being deployed, and more extensive contingency plans are being developed at some of the City's older and less reliable pump stations, including stations serving the underpasses at Santa Clara/Cahill and Taylor/Stockton. Additional portable pumps are being obtained and will be deployed at locations prone to flooding, such as Zanker Road near Charcot Avenue long the Coyote Creek. New purchase orders and contracts are being established or existing ones are being increased to provide additional equipment, supplies, and services, such as cones and barricades, maintenance trucks, street sweeper units, and sewer trucks. DOT increased its contractual capacity and will implement a modified staffing plan to respond to and manage street tree related activity. Existing DOT construction inspectors will be placed on 24/7 standby or active duty during heavy storm periods to respond to fallen trees, broken tree limbs and other tree-related emergencies. The inspectors will also work with residents to provide guidance, facilitate needed permitting and coordinate with the City's contractors to perform tree work that residents are unable to complete or they request that the City perform on their behalf. Modified staffing plans to support severe or extended storm operations, if needed, have been developed. STORM EMERGENCY RESPONSE Throughout the annual storm season, the City remains in an increased level of readiness and remains in close contact with the National Weather Service's Monterey Field Office and the U.S. Army Corps of Engineers as well as other federal, state, regional, and local partners. The City monitors creek, river, and reservoir levels and tidal ranges to ensure early detection of dangerous flood conditions. The City monitors infrastructure conditions and historic flood hot spots in order to quickly address issues before hazards impact our residents and businesses. The City's Emergency Operations Center and supporting Departmental Operations Centers coordinate incident management activities throughout the City using the statewide Standardized Emergency Management System, which enables coordinated management of emergencies across all levels of government. These incident management activities include coordinated public information and warning for the affected population through the City's Emergency Public Information Office and our system of warning capabilities, including the County-operated AlertSCC and the Emergency

6 October 5, 2015 Page 6 Alert System. These incident management activities range from routine deployment of maintenance crews and inspection staff to large-scale emergency deployment of City, county, state, and federal resources during an extended state of emergency under the management of the City's EOC. At an operational level, DOT and DPW perform specific and coordinated roles when it comes to managing the storm sewer system and other public infrastructure during a storm. Both departments manage their storm emergency response activities out of a dedicated Department Emergency Operations Center. In general, DPW is responsible for monitoring and reporting creek, river, and reservoir conditions; observing and reporting flooding;, coordinating storm response efforts with the Water District; and supporting DOT field operations where necessary. DOT is primarily responsible for performing emergency repairs and keeping the storm system and other infrastructure functioning, keeping roadways clear of water, trees and other debris, providing safety measures where hazards exist in the public right of way, and performing any post storm event cleanup, maintenance and repairs. RESPONSES FOR VULNERABLE POPULATIONS Cold weather coupled with rain and potential flooding poses one of the greatest threats to the health and wellbeing of the approximately 2,800 unsheltered individuals in San Jose. Historically, the regional response to these potentially life-threatening conditions has been somewhat limited. During cold weather months - from November 30 through March 31 - the County opens its Cold Weather Shelter Program in Sunnyvale, Gilroy, and San Jose. This program, managed by the nonprofit HomeFirst, activates approximately 250 emergency shelter beds for unhoused residents. These beds operate on a nightly basis, offering shelter and food to residents. When the sites are projected to exceed capacity, beds are allocated through either a lottery system or a first-come, first-served basis. Even with the addition of these beds, however, there still remains a lack of viable, local options for homeless populations in San Jose to seek refuge when major storm systems pass through the region. With the approach of a strong El Nino season and the expected negative impact to unsheltered populations living in encampments, staff is planning several actions to help mitigate the threat to homeless individuals in San Jose this coming winter: Outreach - Currently, the City funds homeless outreach through non-profit partners, including HomeFirst, PATH, Bill Wilson Center, and Downtown Streets Team. During inclement weather, outreach workers will be directed to extend operating hours, target areas at risk of flooding, and direct or transport vulnerable individuals to safe locations. Overnight Warming Centers - A warming center is a short-term emergency shelter that operates overnight for a set period of time when temperatures or a combination of precipitation, wind, and temperature become dangerously inclement. Their paramount purpose is the prevention of death and injury related to exposure to the elements. Though

7 Page 7 several non-profit agencies have provided informal warming centers in the past during daytime operations, no systematic process is in place currently to activate overnight sites throughout the City. With the proper declarations, activation protocol, and funding for operations, three to four sites at libraries, community centers, and other public facilities could be opened this year to augment Santa Clara County's existing cold weather shelter program for unsheltered individuals in San Jose. Coordination with County - The County Office of Supportive Housing (OSH) is concurrently developing an inclement weather response plan. This may include the addition of more cold weather shelter beds, expanded outreach (provided via the Valley Homeless Healthcare Program and other service providers) and distribution of emergency supplies to individuals at risk. Staff will coordinate activation timing and planning with OSH to maximize all resources available. Faith-based Support - Utilizing the volunteer base and the physical space of faith-based institutions can be an effective tool to further enhance the community's ability to respond to inclement weather conditions. A current City ordinance allows a church or religious assembly to apply for a temporary shelter permit, allowing for overnight shelter for up to 15 people per location for up to 35 calendar days each year. Working with religious leaders and advocates, staff is currently working to establish a network of religious institutions willing to participate in an inclement weather response plan, further increasing available resources throughout San Jose. Housing staff is currently working with PRNS, Library, Public Works, and several other departments to identify sites and all necessary procedures and protocols needed to establish warming center sites at key locations throughout San Jose. The Housing Department will return to Council in late November with a separate memo that will include recommendations for funding appropriations and all other necessary actions to activate these sites for the upcoming winter season. PUBLIC OUTREACH AND EDUCATION The City's Office of Emergency Services provides outreach activities throughout the year to encourage all City residents and businesses to develop an emergency plan, build an emergency kit, and stay informed. In addition to the flyers and public information provided at outreach events, OES recommends that residents and business visit the website for hazard-specific information and emergency preparedness guidance. OES recommends that everyone prepare their homes for the local hazards, such as earthquakes, fires, floods, and acts of terrorism; ensure that they have proper insurance for the hazards they face; ensure that they stay informed through emergency warning systems, such as AlertSCC fhttps://alertscc.bbcportal.com) and the National Oceanographic and Atmospheric Administration Weather Radio (All Hazards) ( and prepare themselves, their families, and their employees for what to do during an emergency. The goal for emergency preparedness is to be self-sufficient during

8 Page 8 an emergency and for a minimum of 72 hours following an emergency. The City Manager's Communications Office also will be supporting OES to disseminate appropriate public information related to preparedness and in response to potential emergencies via social media, news media, and other communications channels. DAVID SYKES Assistant City Manager For questions, please contact David Sykes, Assistant City Manager, at (408)