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!