Tim Carter, Ph.D., University of Georgia River Basin Center
Courtney Reich, AICPEcological Planning Group, Inc.
Ron Feldner, P.E.
In partnership with:Center for Watershed Protection
Chatham County-Savannah Metropolitan Planning CommissionGeorgia Department of Natural Resources Environmental Protection
Division
Georgia Stormwater Utility HandbookHandbook Outline
Section I: Introduction & Background
Section II: Stormwater Management Program (SWMP) Assessment & Funding Analysis
Section III: Six Steps to Setting Up a Stormwater Utility
Section IV: Conclusions and Additional Resources
Drivers for Local Stormwater Management Programs (SWMPs)
Recurring Flooding Problems
Land Development Pressures
Aging Infrastructure and O&M
Streambank ErosionCapital Project
Implementation
Ecosystem Preservation & Restoration
Regulatory ComplianceCitizen LawsuitsWater Quality
ManagementEnvironmental
StewardshipPreservation of Property
Values
Obstacles to Local SWMP Implementation
Understanding of Watershed ImpactsProgram Needs & PrioritiesProgram Organization & ResponsibilitiesInadequate FundingPoorly Defined Extent of Service Policy
& Level of Service PolicyStakeholder & Elected Official EducationOther
Drivers for Local SWMPsThe State of Georgia’s
State Water Plan recommends that local governments set up and implement Stormwater Utilities to address non-point source pollution (i.e. stormwater runoff). The State Water Plan states that Stormwater Utilities should be utilized as a mechanism for funding the administration, operations and maintenance, and capital costs of local stormwater management programs and non-point source pollution controls. Plan compliance will assist with EPD permitting efforts.
The Coastal Comprehensive Plan recommends that local governments “develop stormwater utility programs across the region” to meet specific watershed management goals outlined in the Plan. In addition, the Plan outlines performance standards for local governments to achieve “excellence standards” and one of those standards includes implementing a stormwater utility. Plan compliance also will support maintaining Qualified Local Government Status with DCA.
Section I: Introduction and Section I: Introduction and BackgroundBackground
A Stormwater Utility Provides a Vehicle for:
Consolidation of Program Responsibilities Among Several Departments
Generation of Funding that is Stable, Adequate, Fair and Equitable (SAFE) An Organizational Entity
Implementation of a Program that is Comprehensive, Cohesive and Consistent Year to Year
Pg ES-4, Guidance for Municipal Stormwater Funding, EPA
Stormwater Utility OverviewFormal Organizational and Financial Entity
Stand Alone Stormwater Enterprise FundSeparate Budget Under Existing Water &
Sewer Consistent and Stable Revenue StreamAssigns Costs to Parcels in a Fair and
Equitable MannerFunctions as a User Fee based System
Similar to other Public Utilities (water, sewer, sanitation, etc.)
Stormwater User Fee OverviewStormwater User Fee: A charge assigned to a parcel
for Stormwater Management Services provided by the local government
The user fee charge is the amount paid by the customer for the stormwater runoff demand that the parcel imposes on the City (or County) Drainage System and the Program
The user fees paid by the customers fund the Stormwater Program
Stormwater Utilities in GeorgiaIn 1998, the City of Griffin set up the first
Stormwater Utility in Georgia.
In 2004, less than ten Stormwater Utilities were established in Georgia, but many communities were considering the option.
In 2008, approximately 35 Stormater Utilities are established in Georgia with over 90% in metro Atlanta.
By 2015, the total number of Stormwater Utilities in Georgia could approach 100!
Section II: Stormwater Management Section II: Stormwater Management Program (SWMP) Assessment & Program (SWMP) Assessment &
Funding AnalysisFunding Analysis
Program Components & Functional Areas
AdministrationBilling & Financial ManagementStormwater Planning & EngineeringCapital ImprovementsOperations & MaintenanceRegulation and Enforcement
Pg 3-9, GA Stormwater Management Manual
Program Level of Service MatrixLevel of Service Operation and
MaintenanceProgram Management
and ComplianceCapital Improvement
Program
ExceptionalFully preventative / 100%
routine
Comprehensive planning, NPDES compliance, full
implementationPrioritized / Fully Funded
ComprehensiveMixture of routine and
inspection based
Proactive Planning, NPDES compliance,
systematic implementation
Phased implementation/allocated
budgets
Expanded Inspection-based onlyPriority planning, NPDES
compliance, partial implementation
Complaint, inspection-based, moderate budget
Average Responsive onlySome planning, partial
compliance, partial implementation
Critical needs only/ minimum budget
Minimal Non-responsiveNo planning, non-
compliance, limited implementation
No planning / no budget
Pg 30, Stormwater Magazine, November/December 2005
Cost of Service (COS) ComparisonCurrent and Future COS Compairison
$47,250
$0
$462,876
$195,000
$116,250
$31,500
$658,840
$325,000
$0
$100,000
$200,000
$300,000
$400,000
$500,000
$600,000
$700,000
Administration GIS O&M CIP
Program Element
Fu
nd
ing
Current COS Future COS Funding Gap = $450,000Funding Gap = $450,000
• There are numerous There are numerous stormwater management stormwater management program funding methods program funding methods and variations for local and variations for local governmentsgovernments
• There is a big difference There is a big difference between “resources”, between “resources”, “money” and “revenue”“money” and “revenue”
Source: Andy Reese, Multi-Jurisdictional Stormwater Agency Presentation
Funding StrategiesMoney (Taxes, SPLOST, Plan Review Fees)
Typically limited in amountNot reliable
Revenue (Stormwater Payments/User Fees)Stable, reliable and consistentIncome and cash flow
Resources (Grants, Volunteers) Low cost to government – “OPM”
Pg 2-1, Guidance for Municipal Stormwater Funding
Funding the Program…..General Fund*General Obligation BondsRevenue BondsDevelopment Impact FeesSpecial Assessments/Tax DistrictsUser Fees/Stormwater Utilities*Development Review FeesGEFA LoansIn-lieu of Construction FeesSPLOSTFederal & State Grants
Section III: Six Step ProcessSection III: Six Step Process
Stormwater Utility Due DiligenceFive Key Areas of
Focus:PoliticalFinancialLegalInformationalTechnical
Pg ES-4, Guidance for Municipal Stormwater Funding, EPA
Six Step ProcessStep 1: Education & OutreachStep 2: Define/Establish StructureStep 3: Data Compilation Step 4: Rate Structure & AnalysisStep 5: Billing & Database SystemsStep 6: Ordinance Adoption &
Implementation
Step 1: Public Education & Outreach
A well thought out education and outreach plan can be the key to acceptance of the future program and the success of the future Stormwater Utility.
Successful public education and outreach plans engage key stakeholders early in the process and keep them involved throughout.
Public Education Strategies: Plan Development Message Delivery Public Meetings Web Based Surveys Newsletters Local Media/Cable TV Phone Bank Civic Organizations
Step 2: Define Structure/Organization
Step 3: Data CompilationParcel Specific Data
Parcel IdentificationLand UseExisting Utility Database AccountsParcel Ownership & AddressImpervious Surface Coverage
Step 3: Data CompilationData Sources & Repositories
Regional Development CentersSAGIS (Savannah Area)Georgia GIS ClearinghouseState University WebsitesLocal Planning DepartmentUnited States Geologic SurveyOther government sources
Step 4: Rate Structure & Rate Study AnalysisPotential Rate Methodologies
Impervious Area*Impervious Area + Gross AreaGross Area/Intensity of Development/Land UseOthers
Common Rate ModifiersUniform/Flat Rate (with or w/o Tiers)Water Quality Charge/Factor
Typical User Fee CreditsDetention Ponds & Structural ControlsOnsite GreenspaceGreen Growth Guidelines/LID
* Most Common Rate Methodology Used in Georgia and Nationwide
How a Fee is Calculated:Equivalent Residential Unit (ERU) = Billing Unit
ERU = single-family residential median impervious area
Example ERU:Rooftop = 1,400 sqftDriveway = 1,200 sqftSidewalk = 400 sqftTotal ERU = 3,000 sqft
==
Building Footprint = 10,000 sqftParking Lot = 14,000 sqftTotal Impervious Area = 24,000 sqftERU = 3,000 sq ftTotal ERUs = 24,000sqft/3,000sqft = 8 ERUs
Building Footprint = 10,000 sqftParking Lot = 14,000 sqftTotal Impervious Area = 24,000 sqftERU = 3,000 sq ftTotal ERUs = 24,000sqft/3,000sqft = 8 ERUs
1 ERU = $4.00/month8 ERUs = 8 x $4.00 = $32.00/month
Credit for Detention = 30%New Bill Amount $22.40/month
3 Residential Tiers3 Residential Tiers
1.0 ERU = 3,000 sqft
0.66 ERU < 2,000 sqft
1.33 ERU > 4,000 sqft
Step 5: Billing & Database Systems Three Billing System Options
Billing Issues
Existing Public Utility Bill*
Tax BillStand Alone Bill
What frequency?Billing database
source?Who should receive the
bill – the owner or the tenant?
Long term database management?
Delinquencies?Appeals?
Step 6: Ordinance Adoption & Stormwater Utility ImplementationOrdinance Adoption
Review Available Legal InformationCodify Utility Rate Structure DetailsTechnical & Legal Assistance
Commence BillingCustomer Service Program
Credit ApplicationsImplement “Business Plan”Public Outreach Follow Up
Section IV: Conclusions and Section IV: Conclusions and Additional ResourcesAdditional Resources
Information & Resources
Existing Local Government Stormwater Utility Contacts
Additional Web-based ResourcesGuidance for Municipal Stormwater FundingStormwater MagazineGeorgia Stormwater Management Manual
Stormwater Utility Handbook References
Now its your turn…Step 1: Program
overview: ReviewGarden City Example:Program Drivers:Future Program
COS:Funding Gap:
Now its your turn…Step 2: Community
InformationPopulationNumber of
HouseholdsDeveloped AcreageLand Use/Parcels
Garden City Example:Population: 11,289Number of Households:
3,981Developed Acreage:
14.6 (95%)Land Use/Parcels
Single Family Residential = 2953
NSFR = 738 Vacant = 636
Now its your turn…Step 3: Estimate the
potential revenue based on population.Population
Population* $8-$12 = Revenue per $1 of billing unit
Garden City Example: Population =
11,289 11,289 * $12 =
$135,468 $135,468 * $4.15 =
$562,492
Now its your turn…Step 3: Estimate the
revenue based on the number of households.Households
Households * 3 = monthly revenue per 1$ of billing unit
Monthly Revenue * 12 = annual revenue per 1$ of billing unit
Garden City Example:Households = 3,981
3,981* 3 = $ 11,943 $ 11,943* 12 = $
143,316 $143,316 * $4.15 =
$594,761
Now its your turn…Step 3: Estimate the
revenue based on the amount of developed acreage.Developed Acreage
Square miles *640 = total acreage
Total Acreage * percentage of developed acreage = developed acreage
Developed Acreage * $25 to $35 = Revenue per $1 of billing unit.
Garden City Example:Acreage = 14.6 sq
miles (85% developed) 14.6*640 = 9,344 9,344* 85%= 7942.4 8876.8 * $30 =
$266,304 $277,984 * $4.15 =
$1,105,162
Now its your turn…Step 3: Estimate the
revenue based on parcel land use.Parcel Land Use
SFR * 1 + NSFR * 3 - 10 for
Rural Counties or * 10 – 20 for heavily urbanized cities =
Monthly revenue per $1 of billing rate
Garden City Example:Parcel Land Use
SFR = 2953 * 1 = 2953 NSFR = 738 * 20 =
14,760 2,953 + 14,760 = 17,731 17,731 * 12 = $212,556 $212,556 * 4.15 =
$882,107
Now its your turn…Revenue Method
ComparisonPopulation =
$562,492Household =
$594,761Developed Acreage
= $1,105,162*Land Use/Parcel =
$882,107*
Revenue Estimate VariablesGarden City
Considerations: Heavily urbanized Significantly more commercial
and industrial development Small residential base
Rate Structure VariationsPublic Roads and
Properties
A Few Things to Take With YouSet Up & implementation of a Stormwater Utility
takes 15 to 24 months – Bet on it!Timing & schedule can be everything
Fiscal Year StartElection “Season”
Stakeholder involvement = best chance @ successBad News on set up cost: 2 to 4 months revenue
$80,000 to $350,000Existing data is cheaper than new data
Good News on set up cost: Payback potential
Where do we go from here to build on what we learned today?Discuss this information
with your local government and gauge interest.
Perform detailed SWMP Assessment, Quick Concept Study, and/or Funding Feasibility Study.
Go forth, and fund your program, but call if you need help!