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HomeMy WebLinkAbout2008-11-06 NAC Planning Report - AddendumRE: BACKGROUND Attached for reference: Exhibit 1: Exhibit 2: NORTHWEST ASSOCIATED CONSULTANTS, NC. 4800 Olson Memorial Highway, Suite 202, Golden Valley, MN 55422 Telephone: 763.231 .2666 Facsimile: 763.231 .2661 planners@nacplanning.com PLANNING REPORT — Addendum TO: Eric Johnson FROM: Scott Richards DATE: November 6, 2008 FILE NO: 708.02 -- 08.06 Oak Park Heights -- Revisions to MPCA Permit and Amended Conditional Use Permit for Expansion of the A.S. King Ash Disposal Facility In June of 2008, Xcel Energy made application for an amended conditional use permit to allow modification of the existing conditional use permit approvals for the A.S. King Plant Ash Disposal Facility. The Planning Commission considered the application at a public hearing on July 10, 2008 and continued the public hearing to the August 14, 2008 meeting in order for XceI to work with the City on a number of the issues and to hold a community meeting on the application. At the community meeting held on July 31 , 2008, a list of issues were identified associated with dust from the hauling and the landfill surface. Additionally, the neighborhood requested Xcel to commit to a definitive end date for landfill operations. Xcel has indicated that an operational end date of 201 1 with final closure activities completed no later than 201 2 would be acceptable. The City Council, at their August 12, 2008 meeting, approved a request from Xcel for a timeline extension to December 31, 2008. This enabled Xcel to have more time to evaluate alternatives for disposing ash at the ash disposal facility and to address continuing issues with City staff. Xcel has now provided a revised set of plans and photo renderings for Planning Commission and City Council review. Planning Report dated July 3, 2008 2008 Permit Modification, A.S. King Ash Disposal Facility, Revised CUP Application dated 10/23/08 REVISED PROJECT The revised application, according to Xcel, has been significantly changed from the application made in June. Xcel has provided the following narrative to describe the proposed changes: "The proposed expansion, shown on Sheet 4 of the plan set, will yield an additional 58,351 CY of ash capacity, and 62,638 CY of total capacity including final cover soils and drainage improvements. At present, all bottom ash (slag) is utilities and all fly ash (SDA ash) is landfill. However, Xcel Energy has identified a utilization opportunity SDA ash. Assuming 50% SDA ash utilization, the proposed expansion will increase the landfill's life by approximately one year. The proposed expansion will increase the landfill life by approximately one year. The proposed expansion will occur only in areas that are already lined; no new construction is required for this expansion. The vertical expansion will have a peak elevation of 847.5 feet MSL." (The previously proposed peak elevation was 877.4 feet.) "This is the peak elevation originally established in the 1995 Solid Waste permit and 1996 CUP, and was voluntarily lowered by Xcel Energy in a 2007 permit modification. This proposed expansion simply restores the peak elevation that has been previously approved by the City and the MPCA. Xcel Energy is cognizant of the neighborhood's desire to have a definitive end date for landfill operations. To address this issue, Xcel Energy will commit to an operational end date of 2011 with final closure activities completed no later than 2012, regardless of remaining capacity at that time. ISSUES ANALYSIS Visual Impacts. Xcel has updated the visual impact analysis for the proposed final cover. Photographs were taken from three vantage points, one on Highway 36 with a view to the southeast; another from Beach Road with a view to the south; and another from Cover Manor with a view to the northwest. The views show current conditions and views as proposed under the latest proposal. The latest proposal views show no or little impact to the views of the St. Croix Valley, of the tree line of Valley View Park, or of the Washington County Government Center. The proposed expansion is a significant improvement over the previously proposed scenario. The peak elevation will be 30 feet (847.5 versus 877.4) less than what was proposed previously. The views will be preserved and the topography will not be significantly changed with a large hill in the site. Landscaping. Xcel has proposed that final landfill grades will be vegetated with grass mixtures with no enhanced landscaping at this time. They have proposed deferring any landscaping in that the final plan designs are not completed and the landscaping should be coordinated with a park design. Secondly, the final contours are relatively flat, with less intrusive topography lines, so the need for landscape screening is not as important. It is expected that landscaping would occur, within the allowances of the MPCA, in conjunction with park improvements. 2 Trails /Park. The ultimate end use for the landfill, as proposed by Xcel, has been public access to the facility for both active and passive recreational uses. The proposed expansion will not impact existing trails or the park area proposed in the southwest corner of the site. Xcel has requested that the development of park amenities be held until after the disposal facility is closed in 2012. The current use of the trails and green space can continue during the final phase of the landfill expansion. Xcel has indicated to the City that it is committed to funding the additional enhancements but requests the City take the lead in planning and developing the park project. Xcel has further offered to work with the City to gain MPCA approval for site modifications associated with park development. Utilities. There are a number of sanitary and stormwater sewer lines that pass through the ash disposal facility. The City Engineer is concerned with long term maintenance issues of sewer lines that are buried so deep and in areas that cannot be accessed. The City Engineer will issue a separate report outlining the utility issues. He has indicated the need for a structural analysis of the utilities within the landfill areas based upon the current proposal by Xcel. This must be completed before the City can recommend an amended conditional use permit. While the City may have agreed to certain conditions in the past, in particular related to utilities, the City now reserves the right to place reasonable conditions on this amended conditional use permit. Dust Control. The public meeting identified dust issues associated with both the haul road and the landfill surface as a primary citizen concern. Xcel Energy has responded to this issue by taking the following actions, which will be incorporated into the facility's 2009 Operations and Maintenance Plan: 1. Increasing water applications to control dusting. 2. Modifying equipment to prevent ash from getting on the trucks' under carriage, thus reducing tracking onto the road. 3. Installing a security camera system to audit ash transport compliance. 4. Establishing a landfill hotline to record complaints. 5. Scheduling regular street sweeping between the plant and the landfill. CONCLUSION 1 RECOMMENDATION Based upon the preceding review, City staff recommends the Planning Commission hold on any recommendation at their November 13, 2008 meeting. Staff would like to opportunity to review a structural analysis of the utility lines in the landfill based upon Xcel's current proposal. This item should be continued to the December 11, 2008 meeting. The City Engineer would also like to review the 1995 Solid Waste Permit prior to making final recommendations. 3 PLANNING REPORT TO: FROM: DATE: RE: FILE NO: 7 98. 02.0 8.06 BACKGROUND Manuel Castillo, representing Xcel Energy, has made application for an amended conditional use permit to allow modification of the existing conditional use permit approvals for the A.S. King Plant Ash Disposal Facility. The ash disposal facility expansion has been submitted to the Minnesota Pollution Control Agency (MPCA) for review. Xcel Energy had plans to close the site in Oak Park Heights by the year 2010. A new law has placed a moratorium on permitting new landfills until the MPCA conducts rule making to address landfill siting. The proposed expansion of the A.S. King Plant Ash Disposal Facility will provide additional time for Xcel Energy to evaluate options for ongoing ash disposal while the MPCA rule making process is conducted. The City Council approved a conditional use permit in October 1996 to expand the ash disposal facility. That expansion also included vacating significant roadway right -of -way in areas that had been platted but never developed. The plan, approved in 1996, was followed although Xcel Energy proposed minor modifications as part of the final phase of construction in 2006. That amended conditional use was approved by the City Council in April 2006. The property is zoned 1, Industrial which accommodates the use as permitted. Attached for reference: Exhibit 1: Exhibit 2: Exhibit 3: Exhibit 4: Exhibit 5: Exhibit 6: Exhibit 7: ENCLOSURE 3 NORTHWEST ASSOCIATED CONSULTANTS, INC. 4800 Olson Memorial Highway, Suite 202, Golden valley, MN 55422 Telephone: 763.231.25 65 Facsimile: 763.231.2561 planners @nacplanning.corn Eric Johnson Scott Richards July 3, 2008 Oak Park Heights -- Revisions to MPCA Permit and Amended Conditional Use Permit for Expansion of the A.S. King Ash Disposal Facility Existing Conditions Currently Permitted Final Cover Proposed Final Cover Final Cover Solis and Plantings Perspective Amended Conditional Use Permit April 25, 2006 Visual Impact Analysis (16 pages) Comments from the City Arborist PROPOSED PROJECT The applicant has provided the following narrative to describe the proposed changes: The expansion includes a 7.9 acre ash footprint located entirely within the 46 acre p , permitted landfill area. The expansion will be developed with a combination of 3H:11/ and 3% to 5% slopes to a peak elevation of 877.4 feet MSL. The expansion will provide 219,400 cubic v ards of total new airspace, including new liner subgrade, perimeter. berms, ash, final cover, and surface grading west of the expansion to improve drainage. The finished grading plan is shown in Figure 1. The final cover rades were previously permitted to a peak elevation of 847.5 feet MSL. g This height limitation was imposed to prevent overloading an existing sanitary sewer located beneath the site. The expansion fill plan is designed to maintain this same height limitation over the sewer. Alt but 1.6 acres of the expansion ash footprint is located over existing lined areas of the Kin g p Ash Disposal Facility. A new liner (Phase VII liner) will be constructed for the 1.6 acre unlined area. Portions of the expansion area have already received final cover; in which case the cover will either be stripped or in one area abandoned in place prior to placing lacin more ash. New final cover will be placed over the entire expansion area and will be connected to the existing final cover. The expansion will be developed with a single liner /perimeter berm construction event in Summer 2009, which will prepare the site for the complete expansion. The development of the new berms will necessitate the relocation of the walking trail on the north side; trail relocation will be done prior to berm construction to minimize impacts. It is anticipated that final cover will also be constructed in 2009 to the limits shown on the p Final Cover Phasing Plan in Figure 2. It is anticipated that the south portion of the expansion area (south of the existing sanitary sewer) will be filled first and be ready to receive final cover in 2010. The north portion of the expansion area is anticipated to be filled b y February 2011 and thus would be ready to receive final cover in Summer 2011. This sequence of development and closure is reflected in the Closure Phasing Plan in Figure 2. ISSUES ANALYSIS Comprehensive Plan. The Land Use Plan designates this area as park facilities /open space. When the ash disposal site is filled and capped, it is anticipated the area will be used for passive and active recreational areas. Zoning. As noted, the area is zoned 1, Industrial. ' The ash disposal site is a permitted use and the conditional use permit granted in 1996 adopted the final cell development plan. Ian. An changes to that plan, as now being proposed, require an amended conditional use permit. Visual Impacts. Xcel Energy was requested to complete a visual impact analysis for the p roposed final cover. Photographs were taken from three vantage points, one on Highway 36 with a view to the southeast; another from Beach Road with a view to the � v south; and another from Cover Manor with a view to the northeast. The views show current conditions, views as approved and views as proposed under the new application. The existing and approved views show no or little impact to views of the St. Croix Valley, of the tree line of Valley View Park, or of the Washington County Government Center. The proposed expansion would adversely impact these views. With the initial application, Xcel did not propose any landscaping adjacent to or on the expansion area. Staff requested that Xcel study ways to reduce the visual impacts. p Two additional views were created (Figure 4D and 5D) that added tree plantings in areas forward of the expansion or on soils not impacted by the landfill liner. Xcel representatives have indicated that their ability to spread the ash was complicated b y existing the existin utilities on site. Additionally, both Xcel and the City are interested in providing an area in the northeast corner of the site for park and recreational purposes. Landscaping. Xcel has provided the two conceptual views with landscaping which does mitigate some of the visual impact of the expansion. Xcel cannot guarantee that the MPCA will allow any type of plantings on the capped areas of the landfill. Additionally, note that the views indicate trees that appear to be approximately 20 years old. The City Arborist has reviewed the two views and would require a full landscape y plan. Her memo is attached as Exhibit 7. Additionally, the City should receive configuration from MPCA that the landscaping as proposed by Xcel can be completed. Utilities. There are a number of sanitary and stormwater sewer lines that pass through the ash disposal facility. Of note is a 24 inch sanitary sewer line that passes directly under the expansion area. The proposed final cover plan indicates that the expansion area is separated into two areas on either side of this sanitary line. The City Engineer has expressed concerns with placement of additional fill over and directly on either side of this sanitary sewer line. There is concern with long term maintenance and access issues for this and the other lines that are adjacent to the expansion area. The City Engineer will issue a separate report outlining the utility issues. Trails /Park. The existing trail that passes through the capped portions of the site would need to be moved to the north of the expansion area. The final cover plan ( Exhibit 3) indicates the location of the moved trail. The City has worked with Xcel on the lon g term plans for development of park facilities once the site is capped. The initial plan indicates that the playfields and possibly pavilion would be constructed in the northwest corner of the site. As a condition of approval for this conditional use permit, timelines will be p laced on Xcel for park development and construction of the facilities. CONCLUSION 1 RECOMMENDATION Based upon the preceding review, City staff recommends the Planning Commission hold on any recommendation at their July 10, 2008 meeting. Staff is concerned with the 3 visual expansion acts of the ansion area as now planned, there is no final landscape plan, p p and it is uncertain whether MPCA would allow the landscaping as proposed in the . rams concept diagrams. Additionally, there are significant concerns of the City Engineer with g Y the placement of fill on and near the existing utility lines. Delaying the project an additional month will allow staff to work with representatives of Xcei Energy on these issues. City staff further recommends that Xcel Energy hold a community meeting for affected neighboring residents as to their plan prior to City Council consideration of their request. g g 4 Xcel Energy® October 23, 2008 Eric A. Johnson City Administrator 14168 Oak Park Blvd N. P.O. Box 2007 Oak Park Heights, MN 55082 Re: Conditional Use Permit (CUP) Amendment: Dear Mr. Johnson: 414 Nicollet Mall Minneapolis, Minnesota 55401-1993 Enclosed are 3 copies of a request to amend the existing CUP. The application has taken into account the public's comments, and the City of Oak Park Heights concerns. In addition to the amended CUP, Xcel Energy will file an application to modify the existing Minnesota Pollution Control Agency PermitSW-54. you have any questions regarding the file please contact Chuck Donkers at (612) 330- 6082. Sincerely, Manuel Castillo Sr. Environmental Analyst 612-330-6506 Encl: 3 c: Robert Criswell Jeff Travis Tom Smith John McCain Roger Clarke Chuck Donkers Scott Thomas ES Record Center MPCA Washington County King Plant McCain & Associates MP8 w/o enclosures MP8 w/o enclosures MP8 w/o enclosures Xcel Energy@ October 23, 2008 Eric A. Johnson City Administrator 14168 Oak Park Blvd N. P.O. Box 2007 Oak Park Heights, MN 55082 Re: Conditional Use Permit (CUP) Amendment: Dear Mr. Johnson: Enclosed are 3 copies of a request to amend the existing CUP. The application has taken into account the public's comments, and the City of Oak Park Heights concerns. In addition to the amended CUP, Xcel Energy will file an application to modify the existing Minnesota Pollution Control Agency PermitSW-54. you have any questions regarding the file please contact Chuck Donkers at (612) 330- 6082. Sincerely, Manuel Castillo Sr. Environmental Analyst 612-330-6506 Encl: 3 c: Robert Criswell Jeff Travis Tom Smith John McCain Roger Clarke Chuck Donkers Scott Thomas ES Record Center MPCA Washington County King Plant McCain & Associates MP8 w/o enclosures MP8 w/o enclosures MP8 w/o enclosures 414 Nicollet Mall Minneapolis, Minnesota 55401-1993 2008 Permit Modification A.S. King Ash Disposal Facility Revised CUP Application 10/23/08 X Environmental Services 414 Nicollet Mall, RSQ8 Minneapolis, MN 55401 -1993 Project Summary 2008 Vertical Expansion A.S. King Ash Disposal Facility October 22, 2008 Introduction The King Generating Plant was renovated under the Metro Emissions Reduction Program (MERP); this renovation resulted in the need for additional landfill capacity. Xcel Energy had plans to construct a new facility and close the existing site in 2010/2011, however a moratorium was placed on permitting new landfills in 2008. The proposed expansion of the A.S. King Ash Disposal Facility (Moelter Landfill) will provide additional time for Xcel Energy to evaluate options and develop utilization markets while the MPCA conducts rule- making to address the landfill moratorium. I n June 2008, Xcel Energy applied for an amended CUP to allow for the expansion of the A.S King Ash Disposal Facility. Since that time, Xcel Energy has: 1) had more time to evaluate alternatives to disposing of ash at the Moelter Landfill; 2) hosted a public meeting to listen to citizens' concerns; and 3) has had several discussions with City staff regarding landfill expansion issues. Xcel Energy has addressed many of the issues identified since its initial application and has significantly revised its proposal for the Moelter Landfill expansion. The public meeting identified dust issues associated with both the haul road and the landfill surface as a primary citizen concern. Xcel Energy has responded to this issue by taking the following actions, which will be incorporated into the facility's 2009 Operations and Maintenance Plan: 1) Increasing water applications to control dusting. 2) Modifying equipment to prevent ash from getting on the trucks' under carriage, thus reducing tracking on to the road. 3) Installing a security camera system to audit ash transport compliance. 4) Establishing a landfill hotline to record complaints. 5) Scheduling regular street sweeping between the plant and the landfill. The City identified concerns about excessive loading upon the sewer line, landscaping and park impacts. Xcel Energy has addressed these issues in this revised CUP application by incorporating previously - approved design criteria, established in City and State permits, which used in combination increase site capacity. Project Description The proposed expansion, shown on Sheet 4 of the plan set included as Attachment '1, will yield an additional 58,351 CY of ash capacity, and 62,038 CY of total capacity including final cover soils and drainage improvements. At present, all bottom ash (slag) is utilized and all fly ash (SDA ash) is landfill. However, Xcel Energy has identified a utilization opportunity SDA ash. Assuming 50% SDA ash utilization, the proposed expansion will increase the landfill's life by approximately one year. The proposed expansion will occur only in areas that are already lined; no new construction is required for this expansion. The vertical expansion will have a peak elevation of 847.5 feet MSL. This is the peak elevation originally established in the 1995 Solid Waste permit and 1996 CUP, and was voluntarily lowered by Xcel Energy in a 2007 permit modification. This proposed expansion simply restores the peak elevation that has been previously approved by the City and the MPCA. Xcel Energy is cognizant of the neighborhood's desire to have a definitive end date for landfill operations. To address this issue, Xcel Energy will commit to an operational end date of 2011 with final closure activities completed no later than 2012, regardless of remaining capacity at that time. Visual Impacts A visual impact analysis for the proposed expansion is provided as Attachment 2. Figures 1 and 2 of Attachment 2 are plan views of the landfill and surrounding area and show the active, uncapped area and proposed expansion area, respectively. Figures 1 and 2 also show the locations and fields of view for the photographic renderings that are included as Figures 3A & B through 5A & B. Photographs were taken from three vantage points, one on Hwy 36 with a view to the southeast (Figures 3A & B); one from Beach Road with a view to the south (Figures 4A & 4B); and one from Cover Manor with a view to the northeast (Figures 5A & B). The views show existing site conditions on May 15, 2008, along with superimposed renderings of the proposed expansion on the same photographs. The existing berm, visible from the Hwy 36 and Beach Road perspectives, provides a convenient reference point. The top of the berm has an elevation of 843 MSL, and the peak elevation for the vertical expansion is 847.6 feet MSL. Due to the relatively low profile of the proposed expansion, the enhanced landscaping that was previously proposed for screening is unnecessary for that purpose and might limit park amenity opportunities unless those amenities are designed in conjunction with landscaping design. Additional landscaping beyond establishment of turf was therefore not included in these renderings. Landscaping, Trails and Parks Xcel Energy proposes public access to the facility for both active and passive recreation as the ultimate end -use for the landfill. The expansion will not impact existing trails or the planned end use. However, it would be prudent to defer development of park amenities until the disposal facility is closed in 2012. Current use of the hiking /biking trails and green space can continue during final development of the landfill expansion. At this time, it is proposed that final landfill grades will be vegetated with a grass mixture; no enhanced landscaping is proposed. There are two reasons for this proposal: 1) final park designs are not available, and landscaping should be coordinated with the park design; 2) the final contours are relatively flat, with less intrusive topographic lines, therefore the previously - proposed landscaping for screening purposes is unnecessary. Xcel Energy is committed to funding additional enhancements, however it wishes to have the city take the lead in planning and developing the park project. Xcel Energy will work with the City to gain MPCA approval for site modifications associated with park development. Terms and conditions for this work can be specified in the CUP. Utilities Earlier proposals had identified a final grade of 877.5 feet MSL, which triggered a concern regarding sewer pipe integrity. The current proposal calls for a final grade of 847.4 feet MSL. This elevation was previously analyzed and accepted without conditions in the CUP. Although it is not in the city's five -year plan, re- routing the sewer pipe has been contemplated. A possible route would cross along the facilities northern edge. If such a route is selected, Xcel Energy will work with city officials to establish an easement. Description of Visual Impact Analysis Figure 1 Figure 2 Figure 3A Figure 3B Figure 4A Figure 4B Figure 5A Figure 5B Visual Impact Analysis 2008 Vertical Expansion October 22, 2008 A.S. King Ash Disposal Facility MPCA Permit No SW-54 A.S. King Generating Plant Oak Park Heights, Minnesota Table of Contents Photo Rendering Location Map (current conditions) Photo Rendering Location Map (proposed expansion) Current Conditions, Camera Location 1 Proposed Expansion, Camera Location 1 Current Conditions, Camera Location 2 Proposed Expansion, Camera Location 2 Current Conditions, Camera Location 3 Proposed Expansion, Camera Location 3 Visual Impact Analysis 2008 Vertical Expansion A.S. King Ash Disposal Facility This report presents an analysis of visual impacts from the proposed vertical expansion of the A.S. King Ash Disposal Facility. The analysis consists of presentation of rendered photographs taken from three vantage points around the facility. For each vantage point, two depictions are presented: 1) Photograph showing existing conditions (how the site appears as of the date of the photograph) 2) Rendered photograph showing the proposed expansion (how the facility would appear with the vertical expansion, peak elevation 847.5) Photographs of the site were taken on May 7, 2008 for Camera Location 1 (north frontage road on Hwy 36 in front of the County Government Building), and on May 15 for Camera Location 2 (top of entrance ramp to westbound Hwy 36 at Beach Road) and Camera Location 3 (east facility property line, in front of Cover Manor). The coordinate locations and elevations for each camera location and target direction were surveyed so that an accurate perspective could be produced. In order to accurately portray the future conditions, a three - dimensional CAD model was developed for the proposed expansion. The CAD model was then `viewed" from the surveyed camera and target locations in a perspective mode that accurately displays a camera perspective view. A. "wireframe" model of the future conditions was extracted from the CAD model for each perspective and converted to a graphic file format for rendering. The wireframe models of future conditions were superimposed on the photographs, and rendered with a turf grass texture using Photoshop CS2 software to produce the final rendered images. Figures 1 and 2 show in plan view the Moelter Landfill site and surrounding area, including the currently - permitted, active (uncapped) ash fill area (Figure 1) and the proposed expansion fill area. (Figure 2) . Figures 1 and 2 also show the camera locations and fields of view for the base and rendered photographs. Figures 3A and 3B show existing conditions and proposed expansion, respectively, from Camera Location 1. 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