DRAFT 11/24/03 Program Elements Report
This report discusses key elements and associated
costs necessary to address Stormwater Management Program priorities identified
by the Committee and Town staff. The
discussion is general in nature with supplemental details included to differentiate
between a “minimal approach”, a “moderate approach” and an “aggressive
approach” for provision of stormwater management services within the Town’s
jurisdiction. The cost estimates are based on the Consultant’s experience with
similar stormwater management programs operating in other communities and
related to the Town of
The Program development involves a “building block”
approach in which the foundations of the Program are laid while the most
pressing current problems are addressed at an adequate level. The distribution of costs associated with the
Program efforts will change as we identify and focus on those Program elements
that will be approached aggressively at the outset of the Program implementation,
and those for which action will be deferred until future years as the Program
develops.
Each Program priority is addressed with
consideration given to the Committee’s input on program priorities and
appropriate response strategies. The
currently proposed Program does not include costs for accounting, general
overhead, or other miscellaneous Program costs that may be incurred depending
on the final stormwater utility that is implemented.
Administration
Leadership
is a key Program element necessary to provide the community with a clearly
identified point of contact and to assume oversight responsibility for
effective stormwater system planning, regulatory compliance, system
design/construction/maintenance, and enforcement of standards. In addition,
Program leadership is critical for effective coordination with other
municipalities,
Program Coordinator – Priority
#8: Establish clear stormwater program leadership that the public recognizes.
–
Priority #9: Integrate programs to
utilize resources efficiently.
It
is not proposed that the Town centralize, by reorganization, the services
currently provided by the Public Works Department and the Engineering
Department; but rather establish a leadership position within the existing
organization that would be responsible for organizing and coordinating delivery
of comprehensive stormwater management services to the community using
available Town resources supplemented by contract services.
In
addition to a Program leadership position, additional technical and
administrative support staff will be necessary to manage the Program at the
different levels of involvement described below:
Minimal: Add a
Program Manager position in the Engineering Department with oversight
responsibility for the entire Stormwater Management Program. Add one technician position in the Engineering
Department to assist with regulatory compliance, field inspections, water
quality sampling, and responding to citizen requests-for-assistance.
Moderate: Same as
Minimal with two additional staff positions in the Engineering Department: An
additional technician would be necessary to increase water quality testing, to
inspect and evaluate identified water quality and quantity problems, and to
provide additional field inspection capability with regard to regulatory
compliance. An administrative staff
position would be necessary to manage increased reporting requirements, to
track responses to reported problems, to assist with development plan review,
to coordinate an expanded public education program, and to oversee a stormwater
management “hotline” to be added in the Engineering Department.
Aggressive: Same as
Moderate with one additional technician position in the Engineering Department
to coordinate Program-related construction activities including both design
work and field inspections.
|
Minimal |
Moderate |
Aggressive |
|
$130,000 |
$220,000 |
$270,000 |
Special
Programs
Special
programs include such activities as public education, drainage assistance,
hazard mitigation, stream inventory/assessment, and technology
enhancement. Some of these activities,
such as public education/outreach and stream inventory/assessment are
regulatory requirements under the National Pollutant Discharge Elimination
System, Phase II (NPDES-II) permit program and are also identified community
priorities. Improved technology
utilization will increase both the efficiency and the effectiveness of Program
service delivery, allowing the Town to transition from reactive to proactive
responsiveness.
Public
Education and Outreach - Priority # 5: Develop a formal
public education and involvement program.
Minimal: $0.25 per
month per capita would provide for production and direct mailing of a limited
number of printed Program materials.
This level would meet the minimum standards established for NPDES model
programs.
Moderate: $0.50 per
month per capita would make it possible to utilize multiple media sources to
distribute a variety of Stormwater Management Program messages and information
of importance to the community.
Aggressive: Same as
Moderate with the addition of one administrative staff position in the Engineering
Department to develop and coordinate public education and outreach activities,
volunteer efforts, and training programs associated with stormwater management
issues and concerns. It has been shown
in other programs that engaging citizens, schools, and businesses is a cost
effective approach to improving Program performance and effectiveness.
|
Minimum |
Moderate |
Aggressive |
|
$ 12,500 |
$ 25,000 |
$ 64,000 |
Drainage Assistance Program – Priority #6: Define the
level of service and performance standards for the Town’s Stormwater Program.
– Priority #9: Integrate programs to utilize resources efficiently.
The Drainage Assistance Program is an effective
means of responding to citizens’ requests-for-assistance by providing technical
advice to residents at no cost, and sharing in the costs of repair or
replacement of qualified storm drainage facilities serving primarily private
properties. The Town has an adopted
policy outlining a local Drainage Assistance Program; however, the program is
not currently funded. This program may include retrofits, new construction or
maintenance of existing facilities for water quantity or quality improvements.
Minimal: Provide for a few minor projects, which would
benefit more then one property.
Moderate: Perform up to two minor projects and one major
project per year.
Aggressive: Perform up to three minor projects and two major
projects per year.
|
Minimum |
Moderate |
Aggressive |
|
$ 15,000 |
$ 50,000 |
$ 100,000 |
Hazard
Mitigation and Floodplain Management – Priority #2: Address stormwater quantity (flooding) as an integral component within
the program.
As
part of the Federal Emergency Management Agency (FEMA) requirements for
emergency response, communities must have a Hazard Mitigation Plan in
place. The plan identifies means and
measures the community will use to mitigate impacts from flooding and other
natural disasters and to administer the National Flood Insurance Program
(NFIP). The activities associated with the plan require coordination between
the local stormwater management program and Town/County/State emergency
management agencies.
Minimal: Prepare a
Town Hazard Mitigation Plan and update it as necessary for changing conditions
and regulations. Utilize State and Federal flood maps and models only.
Administer the NFIP program at a minimal level, including use of the existing
Cooperating Technical Community (CTP) agreement between
Moderate: Same as
Minimal plus gather additional, detailed drainage system information including
data necessary for watershed modeling and master planning, in addition to the
State flood maps. Expand
inter-jurisdictional cooperative efforts to promote efficient, integrated
hazard mitigation and stormwater management programs. Apply for cost-share
grants with the NC Division of Emergency Management for limited mitigation
measures. Administer the local NFIP program at a higher level of participation
including the Community Rating System (CRS) and the Increased Cost of
Compliance (ICC) strategies.
Aggressive: Same as
Moderate with increased level of data collection necessary for watershed
modeling, master planning, and implementation of increased mitigation
measures. Provide leadership role in
establishing functional, cooperative, inter-jurisdictional endeavors that will
benefit all jurisdictions. Utilize
digital aerial photography and geographic information system software to expand
and automate analyses of local and regional stormwater management issues.
|
Minimum |
Moderate |
Aggressive |
|
$40,000 |
$80,000 |
$160,000 |
Stream
Restoration Program - Priority #3: Address
stormwater quality as an integral function within the program.
- Priority #4: Protect and restore
natural stream corridors.
The Town does not currently have a designated stream
restoration program. Town activities
associated with stream restoration are limited and are applied on an “as
needed” basis, typically in response to citizen complaints.
Minimal: Identify
and prioritize stream reaches and riparian areas in need of restoration for
water quality or quantity purposes. Develop a plan of action for future
restoration projects.
Moderate: Same as
minimal with additional funding for easement acquisition, restoration design
and one restoration project per year.
Aggressive: Same as
moderate with additional funding for two or three restoration projects per
year.
|
Minimum |
Moderate |
Aggressive |
|
$10,000 |
$50,000 |
$75,000 |
Technology
Utilization
– Priority #8: Establish clear stormwater program leadership that the public
recognizes.
-
Priority #9: Integrate programs to utilize resources efficiently.
The use of geographic information systems (GIS) as a
tool for stormwater management and related database management continues to
evolve in the Town. As technologies improve and more complex data sets are
established, additional staff, equipment and software will be required.
Minimal: Purchase
and utilize advanced computer software for GIS database management, staff
training, service request tracking, website applications, and
construction/maintenance project planning and tracking.
Moderate: Same as
Minimal with the addition of contracted assistance from an information system
consultant to customize the software application(s) for specific Town needs and
conditions. Funding would be programmed for technology updates and support and
for employee training.
Aggressive: Same as
Moderate with the addition of contracting for consultant services to develop
sophisticated computer modeling tools for master planning and watershed
analysis. Funding would be programmed to
update modeling software, to secure additional software application services,
and for training of employees as necessary.
Minimum
|
Moderate |
Aggressive |
|
$20,000 |
$50,000 |
$70,000 |
Finance and Billing –
Priority #1: Develop and implement a comprehensive Stormwater Program Master Plan that supports all of the
stormwater program priorities.
- Priority #10: Establish an understanding of the stormwater system as a “utility”.
Costs for financial administration and billing
services will depend on the final method chosen for managing the billing
system. Options include placing the
stormwater fee on a local utility bill, on the county tax bill, or establishing
an independent billing system solely for the stormwater utility bill. Based on experience with other stormwater
programs in
Minimal: Establish
and implement a basic billing and collections system. Impervious surface area data would be updated
continuously and aerial photography would be updated every five (5) years.
Moderate: Same as
Minimal with the addition of an annual independent audit of the Stormwater
Management Program financial data; and update of aerial photography every three
years.
Aggressive: Same as Moderate with the addition of contract
services for collection of delinquent fees; and update of aerial photography
every two years.
Minimum
|
Moderate |
Aggressive |
|
$ 60,000 |
$ 85,000 |
$125,000 |
Water Quality
To
ensure that Town facilities/operations and private development projects are and
remain in compliance with the NPDES-II regulations and the Town’s Land Use
Management Ordinance, and to protect streams and aquatic habitat, a more robust
water quality monitoring and mitigation program is needed in Chapel Hill. The following key areas must be implemented
and/or enhanced.
Illicit Connection Detection
and Elimination
- Priority #3: Address stormwater
quality as an integral function within the program.
- Priority
#7: Ensure compliance with Federal and State regulatory mandates.
The
Town is required to develop a plan to identify and eliminate illegal or illicit
connections to the drainage system. This
includes mapping of outfalls and enforcing appropriate ordinances to eliminate
such connections once identified. The NPDES-II regulations allow the Town five
years to fully implement a plan that, once approved, must continue in
perpetuity.
Minimal: By year 2005, the Town would have the
ordinance amended to meet the NPDES Phase II minimum measure, storm sewer
inventory completed and staff trained and in the field to identify existing or
potential illicit discharge problems. Follow up, enforcement and mitigation
activities would occur as time and resources allow.
Moderate: Same as Minimal and including an enforcement
mechanism for illicit discharge identification, sampling and enforcement
actions that would be implemented by year 2006.
An additional technician would be added to the Engineering Department to
perform onsite problem analyses, identify pollution source(s), propose
appropriate mitigation measure(s), and initiate enforcement action as
necessary. Also, a public education
program would be created to provide specific information about illicit
connections and their potential impacts.
Aggressive: Same as Moderate with additional water
quality testing to better identify the types and level of pollutants that are
present in streams, and where pollution source(s) might originate.
|
Minimum |
Moderate |
Aggressive |
|
$30,000 |
$70,000 |
$90,000 |
Industrial
Permit Compliance/Good Housekeeping Program
- Priority #7: Ensure compliance with Federal and
State regulatory mandates.
The
NPDES-II rules require municipal facilities such as maintenance yards, garages,
and treatment plants to apply for Industrial Permits. These permits require inspections of
facilities, development of appropriate operating procedures, implementation of
”good housekeeping” practices, training of staff, and annual reporting.
Minimal: Incorporate
Industrial Permit related training into existing training activities with some
minimal funding for printing or purchasing materials. Inspect Town buildings as part of routine
maintenance procedures, and identify problems.
Based on review of standards of practice in other
Moderate: Same as Minimal
except develop more formal and detailed training program with specific
materials provided to inform employees about water quality issues and standards
for maintenance and operations activities.
Hire a consultant to inspect key Town facilities every two years to
identify existing and/or potential problems.
Aggressive: Same as
Moderate except hire consultant to audit all Town facilities each year to
identify existing and/or potential problems.
Consultant would also be hired to provide comprehensive training for
Town employees.
Minimum
|
Moderate |
Aggressive |
|
$2,000 |
$10,000 |
$15,000 |
Erosion and Sediment Control - Priority #3: Address stormwater quality as an integral function within the program.
-
Priority #7: Ensure compliance with Federal and State regulatory mandates.
- Priority #9: Integrate programs to utilize resources efficiently.
Currently the Town’s soil erosion and sedimentation
control (SES) regulations are enforced by
Minimal: Utilize
existing Engineering Inspectors and Building Inspectors to identify major SES
violations as part of routine site inspections, and report violations to
Moderate: Same as
Minimal with the addition of one SES inspector in the Engineering Department
who would focus on identifying violations of SES regulations and would report
the violations to
Aggressive: Same as
Moderate with one additional SES inspector in the Engineering Department. The Town would assume full responsibility for
enforcement of SES regulations within its Planning Jurisdiction, including identification
of violations and implementation of mitigation measures. The Town Code would need to be revised to
reflect assumption of new responsibilities by the Town.
Minimum
|
Moderate |
Aggressive |
|
$0 |
$ 60,000 |
$ 120,000 |
Engineering, Modeling and Planning –
Priority # 1: Develop and implement a comprehensive Stormwater Program Master
Plan that supports all of the
stormwater program priorities.
Engineering
design and facility planning are important components of a comprehensive
Stormwater Management Program. They are
both involved in the study, design, regulatory compliance and inspection of
community stormwater management system components including streams, engineered
structures, riparian areas and other drainage infrastructure.
Minimal: By year 2011 Town staff
would complete or up-date hydrologic, hydraulic and water quality computer
models and GIS coverage’s of the four (4) largest drainage basins within the
Town’s Planning Jurisdiction, limiting analysis to the major tributaries. This will not provide the analysis of smaller
watershed and basins but will provide a broad look at the issues within major
watersheds such as Bolin, Booker, Morgan, and Little Creeks. Based on the
analysis, basin plans describing conditions and activities in the major basins
would be completed by this date.
Moderate: Same as Minimal except
complete modeling and basin planning of largest drainage basins by year 2008.
The use of consultants would be necessary to gather information, calibrate
models and develop basin plans. Smaller
basins will be modeled on a priority basis. Begin to install a limited number
of telemetered rain and stream gauges and sampling technologies in major
basins.
Aggressive: Same as
Moderate except complete modeling and basin plans of largest basins by year
2006 and establish schedule to complete modeling and basin plans of smaller
basins by year 2008. Install rain and stream gauges as necessary to collect
data for analysis of smaller basins.
Minimum
|
Moderate |
Aggressive |
|
$40,000 |
$200,000 |
$325,000 |
Development Review - Priority #4: Protect and restore natural stream corridors.
- Priority #6: Define
the level of service and performance standards for the Town’s Stormwater
Program.
- Priority
#7: Ensure compliance with Federal and State regulatory mandates.
Development review for stormwater management and
Resource Conservation District regulations has increased significantly with the
adoption of the Land Use Management Ordinance. Application of the regulations
requires significant staff time and resources to meet with developers, other
Town staff and contractors and to perform comprehensive development plan
reviews to ensure compliance with the Ordinance.
Minimal: Utilize
existing Town staff to meet with developers and to review development plans for
compliance with the Land use Management Ordinance requirements.
Moderate: Same as
Minimal with the addition of one staff engineer in the Engineering Department
responsible for reviewing development plans, performing limited site
inspections and providing technical assistance to staff and developers
regarding compliance with the stormwater management related regulations in the
Town’s Land Use Management Ordinance.
Aggressive: Same as
Moderate with the addition of one technician in the Engineering
Department. The staff engineer and
technician would share responsibilities for plan review and field inspections
to verify compliance. Technician would
perform selected follow-up inspections to verify ongoing performance and
condition of stormwater management facilities installed during initial
construction.
|
Minimum |
Moderate |
Aggressive |
|
$0 |
$60,000 |
$90,000 |
Operations – Priority #2: Address stormwater
quantity (flooding) as an integral component within the program.
- Priority #3: Address
stormwater quality as an integral function within the program.
- Priority #6: Define the
level of service and performance standards for the Town’s Stormwater Program.
Operations
inherently involve issues of the extent of service, the level of service and
the investment in the drainage system through maintenance and repair
activities. The extent of service is
used to identify and differentiate between public, private and shared-responsibility
parts of the community drainage system. Currently, the Town typically operates
and maintains only those parts of the drainage system that are within
Town-owned properties and rights-of-way, and/or are within public easements on
private property where the drainage system is conveying stormwater runoff
originating on public property. The
level of service defines the responsiveness, in terms of time and methods, of
the Town’s drainage system maintenance and repair activities.
Minimal: Existing Town
staff and equipment resources would continue the current extent and level of
service and investment in drainage system maintenance and repairs. The current
street sweeping program would be evaluated and adjusted as necessary to
optimize water quality benefits.
Moderate: Same as
Minimal with the addition of a three-person construction crew (supervisor and
two laborers) and equipment in the Public Works Department to expand the
general maintenance and repair of the community drainage system and to increase
inspection and cleaning of the pipes, culverts, catch basins, inlets, ditches
and streams, including facilities on selected State roads. A primary objective of the additional
construction crew would be to address the backlog of identified drainage system
repairs.
Aggressive: Same as
Moderate with additional funding for private contract work as needed to
supplement Town resources in performing identified drainage system
construction, repair and maintenance activities and to provide supplemental
street sweeping.
Minimum
|
Moderate |
Aggressive |
|
$10,000 |
$150,000 |
$210,000 |
Regulation and
Enforcement
Regulation
and enforcement involve State and Federal mandates (NPDES-II regulations, Water
Supply Watershed regulations, etc.), erosion and sedimentation control
regulations, and a variety of regulations included in the Town’s Land Use
Management Ordinance and Code that relate directly or indirectly to stormwater
management.
NPDES Phase II Compliance - Priority #7: Ensure
compliance with Federal and State regulatory mandates.
The Town has prepared and
submitted a NPDES-II permit application in which it commits to addressing the
following six minimum measures: (1)
public education, (2) public involvement/participation, (3) illicit discharge
detection and elimination, (4) construction site stormwater runoff control, (5)
post-construction stormwater management, and (6) pollution prevention/good
housekeeping. In addition to
implementing a plan to address the above measures, the Town must provide the
resources necessary to manage and report on permit compliance and to update the
plan as needed.
We believe that the
Minimal measures proposed in previous portions of this summary report would
generally meet the minimum requirements of the Town’s NPDES-II permit application. Implementation of Moderate or Aggressive
measures would exceed the NPDES-II permit requirements in most cases.
Capital Improvements –
Priority # 1: Develop and implement a comprehensive Stormwater Program Master
Plan that supports all of the stormwater program priorities.
- Priority
#2: Address stormwater quantity (flooding) as an integral component within the
program.
- Priority #3: Address stormwater quality as
an integral function within the
program.
- Priority
#4: Protect and restore natural stream
corridors.
-
Priority #9: Integrate programs to utilize resources efficiently.
Capital
improvements associated with the Town’s Stormwater Management Program involve
major drainage system construction and/or renovation projects that are
necessary to address deficiencies in system condition and/or performance or to
mitigate identified problems caused by the existing system. Extraordinary maintenance (i.e. other than
routine maintenance) activities may also be identified as capital improvement
projects.
In
1996 the Town issued Street Improvement Bonds allocated for drainage projects
of $500,000, of this about $460,000 of the bonds had been spent through May,
leaving a balance of about $40,000. The
Town, however, has identified more than $675,000 in unmet stormwater
improvement capital projects. Also, there are no funds earmarked to handle
major emergency repairs. A dedicated funding source is needed to provide emergency
funds and money for new and existing major capital improvement projects (CIP).
The
Town currently requires dedication of easements on new drainage systems as part
of the development approval process. However, the Town does not currently have
legal access to many older sections of the publicly maintained drainage system.
The growth of the Town continues to place a burden on the older sections of the
drainage system and funding is needed for system reconstruction and
rehabilitation improvements to maintain reasonable levels of performance and
flood protection.
Minimal: Provide $200,000 per year dedicated to
capital improvement projects. These funds could be utilized as direct payment
for improvements or for payment of interest on loan or bond debt necessary to
fund larger and more costly improvement projects that may be necessary.
Moderate: Same as Minimal except increase annual
expenditure for capital improvement projects to $400,000 a year.
Aggressive: Same as
Moderate except increase annual expenditure for capital improvement projects to
$600,000 a year.
|
Minimum |
Moderate |
Aggressive |
|
$200,000 |
$400,000 |
$600,000 |