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EPA REGION 68TH ANNUAL MS4 OPERATOR’S CONFERENCESAN ANTONIO, TEXAS, JUNE 2006

An Introduction to Stormwater Quality Ordinance Writing: Examples from the Field

MICHAEL F. BLOOM, PE, CFM, CPSWQ, DEEAssociate


An Introduction to Stormwater Quality Ordinance Writing: Examples from the Field

MICHAEL F. BLOOM, PE, CFM, CPSWQ, DEEAssociate

TOPICSTOPICSTOPICSTOPICS

• Ordinance writing processOrdinance writing process

• Required ordinance componentsRequired ordinance components

• Flexible vs. inflexible approachesFlexible vs. inflexible approaches

• Other considerationsOther considerations

• How to adopt an ordinanceHow to adopt an ordinance

• Traps and pitfallsTraps and pitfalls

• Repercussions of poor writingRepercussions of poor writing

• ReferencesReferences

• QuestionsQuestions

• Ordinance writing processOrdinance writing process

• Required ordinance componentsRequired ordinance components

• Flexible vs. inflexible approachesFlexible vs. inflexible approaches

• Other considerationsOther considerations

• How to adopt an ordinanceHow to adopt an ordinance

• Traps and pitfallsTraps and pitfalls

• Repercussions of poor writingRepercussions of poor writing

• ReferencesReferences

• QuestionsQuestions

ORDINANCE WRITING PROCESSORDINANCE WRITING PROCESSORDINANCE WRITING PROCESSORDINANCE WRITING PROCESS

• Identify problems and issuesIdentify problems and issues

• Formulate objectivesFormulate objectives

• Develop policiesDevelop policies

• Write ordinanceWrite ordinance

• Identify problems and issuesIdentify problems and issues

• Formulate objectivesFormulate objectives

• Develop policiesDevelop policies

• Write ordinanceWrite ordinance

IDENTIFY PROBLEMS AND ISSUESIDENTIFY PROBLEMS AND ISSUESIDENTIFY PROBLEMS AND ISSUESIDENTIFY PROBLEMS AND ISSUES

• Clean Water Act complianceClean Water Act compliance

• Flood damage reductionFlood damage reduction

• Floodplain managementFloodplain management

• Open space preservationOpen space preservation

• Water qualityWater quality

• Erosion and sediment controlErosion and sediment control

• Rapid developmentRapid development

• Operations and maintenanceOperations and maintenance

• FundingFunding

• Drainage infrastructure capacity and growthDrainage infrastructure capacity and growth

• Clean Water Act complianceClean Water Act compliance

• Flood damage reductionFlood damage reduction

• Floodplain managementFloodplain management

• Open space preservationOpen space preservation

• Water qualityWater quality

• Erosion and sediment controlErosion and sediment control

• Rapid developmentRapid development

• Operations and maintenanceOperations and maintenance

• FundingFunding

• Drainage infrastructure capacity and growthDrainage infrastructure capacity and growth

FORMULATE OBJECTIVESFORMULATE OBJECTIVESFORMULATE OBJECTIVESFORMULATE OBJECTIVES

• Purpose:Purpose:– State official government positionState official government position– Communicate to stakeholders, staff, and elected officialsCommunicate to stakeholders, staff, and elected officials– Provide basis for interpretation of rulesProvide basis for interpretation of rules– Provide program directionProvide program direction– Identify long term impactsIdentify long term impacts– Identify necessary program changesIdentify necessary program changes– Evaluate implementationEvaluate implementation

• Format:Format:– Program specific (e.g. separate objectives for floodplain Program specific (e.g. separate objectives for floodplain

development and illicit discharge control)development and illicit discharge control)– FocusedFocused

• Purpose:Purpose:– State official government positionState official government position– Communicate to stakeholders, staff, and elected officialsCommunicate to stakeholders, staff, and elected officials– Provide basis for interpretation of rulesProvide basis for interpretation of rules– Provide program directionProvide program direction– Identify long term impactsIdentify long term impacts– Identify necessary program changesIdentify necessary program changes– Evaluate implementationEvaluate implementation

• Format:Format:– Program specific (e.g. separate objectives for floodplain Program specific (e.g. separate objectives for floodplain

development and illicit discharge control)development and illicit discharge control)– FocusedFocused

Source: http://www.ci.arlington.tx.us/planning/pdf/Subdivision_Regulations_20050621.pdf

DEVELOP POLICIESDEVELOP POLICIESDEVELOP POLICIESDEVELOP POLICIES

• Central to ordinanceCentral to ordinance

• Describe how to achieve objectivesDescribe how to achieve objectives

• May require technical analysis to deriveMay require technical analysis to derive

• Examples:Examples:– Should rules vary from one watershed to Should rules vary from one watershed to

another?another?

– Should provisions apply to small or large Should provisions apply to small or large drainage areas?drainage areas?

– Should private concerns operate Should private concerns operate stormwater facilities?stormwater facilities?

– Who should pay for new infrastructure?Who should pay for new infrastructure?

– Should utility fees use gross lot size or Should utility fees use gross lot size or imperviousness?imperviousness?

• Central to ordinanceCentral to ordinance

• Describe how to achieve objectivesDescribe how to achieve objectives

• May require technical analysis to deriveMay require technical analysis to derive

• Examples:Examples:– Should rules vary from one watershed to Should rules vary from one watershed to

another?another?

– Should provisions apply to small or large Should provisions apply to small or large drainage areas?drainage areas?

– Should private concerns operate Should private concerns operate stormwater facilities?stormwater facilities?

– Who should pay for new infrastructure?Who should pay for new infrastructure?

– Should utility fees use gross lot size or Should utility fees use gross lot size or imperviousness?imperviousness?

Source: http://www.ci.arlington.tx.us/planning/pdf/Subdivision_Regulations_20050621.pdf

WRITE THE ORDINANCEWRITE THE ORDINANCEWRITE THE ORDINANCEWRITE THE ORDINANCE

• Policy document NOT a Policy document NOT a design manualdesign manual

• Address “What” and Address “What” and “Why”“Why”

• Include “How” in other Include “How” in other documentsdocuments

• Policy document NOT a Policy document NOT a design manualdesign manual

• Address “What” and Address “What” and “Why”“Why”

• Include “How” in other Include “How” in other documentsdocuments

• Participants:Participants:– Engineering, public works, planning, environmental Engineering, public works, planning, environmental

management, legal, and other affected departmentsmanagement, legal, and other affected departments– Interest groups and stakeholdersInterest groups and stakeholders– Elected officialsElected officials– ConsultantsConsultants

• Use “model” or borrowed ordinancesUse “model” or borrowed ordinanceswith caution: Objectives and policieswith caution: Objectives and policiesmay differ!!may differ!!

• Participants:Participants:– Engineering, public works, planning, environmental Engineering, public works, planning, environmental

management, legal, and other affected departmentsmanagement, legal, and other affected departments– Interest groups and stakeholdersInterest groups and stakeholders– Elected officialsElected officials– ConsultantsConsultants

• Use “model” or borrowed ordinancesUse “model” or borrowed ordinanceswith caution: Objectives and policieswith caution: Objectives and policiesmay differ!!may differ!!

WRITE THE ORDINANCEWRITE THE ORDINANCEWRITE THE ORDINANCEWRITE THE ORDINANCE

ORDINANCE COMPONENTSORDINANCE COMPONENTSORDINANCE COMPONENTSORDINANCE COMPONENTS

• Legal authorityLegal authority

• Technical basisTechnical basis

• Administrative apparatusAdministrative apparatus

• Enforcement provisionsEnforcement provisions

• Legal authorityLegal authority

• Technical basisTechnical basis

• Administrative apparatusAdministrative apparatus

• Enforcement provisionsEnforcement provisions

LEGAL AUTHORITYLEGAL AUTHORITYLEGAL AUTHORITYLEGAL AUTHORITY

• Ordinance must follow from Ordinance must follow from political body’s authority under political body’s authority under state lawstate law

• Texas:Texas:– Type A, B, C, or Home Rule Type A, B, C, or Home Rule

MunicipalityMunicipality– County (Not Called an Ordinance)County (Not Called an Ordinance)

• Ordinance must follow from Ordinance must follow from political body’s authority under political body’s authority under state lawstate law

• Texas:Texas:– Type A, B, C, or Home Rule Type A, B, C, or Home Rule

MunicipalityMunicipality– County (Not Called an Ordinance)County (Not Called an Ordinance)

Source: http://www.capitol.state.tx.us/statutes/lg.toc.htm

Source: http://www.cleanwaterclearchoice.org/downloads/COH_Ordinance_Final.pdf

TECHNICAL BASISTECHNICAL BASISTECHNICAL BASISTECHNICAL BASIS

• Establish clear and measurable Establish clear and measurable performance standardsperformance standards

• Avoid furnishing detailed design Avoid furnishing detailed design informationinformation

• Flexible vs. inflexible?Flexible vs. inflexible?

• Establish clear and measurable Establish clear and measurable performance standardsperformance standards

• Avoid furnishing detailed design Avoid furnishing detailed design informationinformation

• Flexible vs. inflexible?Flexible vs. inflexible?

Source: http://www.nctcog.org/envir/SEEclean/stormwater/resources/ordinances/MesquiteOrdinance.pdf

TECHNICAL BASIS EXAMPLE

ADMINSTRATIVE APPARATUSADMINSTRATIVE APPARATUSADMINSTRATIVE APPARATUSADMINSTRATIVE APPARATUS

• Ordinance must clearly state Ordinance must clearly state who is responsible for carrying who is responsible for carrying out municipal actionsout municipal actions

• Ordinance must clearly state Ordinance must clearly state who is responsible for carrying who is responsible for carrying out municipal actionsout municipal actions

Source: http://www.fortworthgov.org/dem/PDF/Article3_amended.PDF

ADMINISTRATOR EXAMPLE

ENFORCEMENT PROVISIONSENFORCEMENT PROVISIONSENFORCEMENT PROVISIONSENFORCEMENT PROVISIONS

• Elements:Elements:– ApprovalsApprovals– InspectionsInspections– PenaltiesPenalties

• Phased Phased enforcementenforcement

• Elements:Elements:– ApprovalsApprovals– InspectionsInspections– PenaltiesPenalties

• Phased Phased enforcementenforcement



ENFORCEMENT EXAMPLE


ENFORCEMENT EXAMPLE

ORDINANCE STYLE:ORDINANCE STYLE:FLEXIBLE VS. INFLEXIBLEFLEXIBLE VS. INFLEXIBLE


• FlexibleFlexible– State general policiesState general policies– Implement with judgmentImplement with judgment– Allows varied interpretationsAllows varied interpretations– Allows for creative solutionsAllows for creative solutions– Seeks “best” solutions for site issuesSeeks “best” solutions for site issues

• InflexibleInflexible– Very specific technical requirementsVery specific technical requirements– Includes specific administrative requirementsIncludes specific administrative requirements– Implement standard solutionsImplement standard solutions– ““One size fits all” approachOne size fits all” approach

• FlexibleFlexible– State general policiesState general policies– Implement with judgmentImplement with judgment– Allows varied interpretationsAllows varied interpretations– Allows for creative solutionsAllows for creative solutions– Seeks “best” solutions for site issuesSeeks “best” solutions for site issues

• InflexibleInflexible– Very specific technical requirementsVery specific technical requirements– Includes specific administrative requirementsIncludes specific administrative requirements– Implement standard solutionsImplement standard solutions– ““One size fits all” approachOne size fits all” approach

FLEXIBLE ORDINANCE EXAMPLE

New Development:

New developments that include an increase in imperviousness shall include permanent stormwater management features which reduce the discharge of pollutants to the maximum extent practical.

INFLEXIBLE ORDINANCE EXAMPLE

New Development:

New developments that include an increase in imperviousness of more than 1 acre shall include onsite stormwater management facilities which capture the first 0.5 inches of runoff and release that volume over a 24 hour period.



• FlexibleFlexible– Increases technical analysis requirementsIncreases technical analysis requirements– Increases engineering costsIncreases engineering costs– Increase staff qualifications and sizeIncrease staff qualifications and size– May be perceived as unfairMay be perceived as unfair– Little consistencyLittle consistency– Increased O&M diversityIncreased O&M diversity

• InflexibleInflexible– Forces conformity and consistencyForces conformity and consistency– May yield inappropriate solutionsMay yield inappropriate solutions– Reduced staff size and qualificationsReduced staff size and qualifications– Simpler “cook-book” engineeringSimpler “cook-book” engineering

• FlexibleFlexible– Increases technical analysis requirementsIncreases technical analysis requirements– Increases engineering costsIncreases engineering costs– Increase staff qualifications and sizeIncrease staff qualifications and size– May be perceived as unfairMay be perceived as unfair– Little consistencyLittle consistency– Increased O&M diversityIncreased O&M diversity

• InflexibleInflexible– Forces conformity and consistencyForces conformity and consistency– May yield inappropriate solutionsMay yield inappropriate solutions– Reduced staff size and qualificationsReduced staff size and qualifications– Simpler “cook-book” engineeringSimpler “cook-book” engineering

HOW TO ADOPT?HOW TO ADOPT?


TRAPS AND PITFALLSTRAPS AND PITFALLSTRAPS AND PITFALLSTRAPS AND PITFALLS

• Ordinance first, policies Ordinance first, policies secondsecond

• I can write this myself!I can write this myself!

• The developers and property The developers and property owners won’t mindowners won’t mind

• Adopt quickly for compliance Adopt quickly for compliance reasonsreasons

• This ordinance from Timbuktu This ordinance from Timbuktu will work!will work!

• Ordinance first, policies Ordinance first, policies secondsecond

• I can write this myself!I can write this myself!

• The developers and property The developers and property owners won’t mindowners won’t mind

• Adopt quickly for compliance Adopt quickly for compliance reasonsreasons

• This ordinance from Timbuktu This ordinance from Timbuktu will work!will work!

REPERCUSSIONS OF POORREPERCUSSIONS OF POORORDINANCE WRITINGORDINANCE WRITING

REPERCUSSIONS OF POORREPERCUSSIONS OF POORORDINANCE WRITINGORDINANCE WRITING

• Frequent revisions neededFrequent revisions needed

• Eroded public confidenceEroded public confidence

• Eroded political supportEroded political support

• Unanticipated consequencesUnanticipated consequences

• Frequent revisions neededFrequent revisions needed

• Eroded public confidenceEroded public confidence

• Eroded political supportEroded political support

• Unanticipated consequencesUnanticipated consequences

SELECTED REFERENCESSELECTED REFERENCESSELECTED REFERENCESSELECTED REFERENCES

• City of Fredericksburg:http://www.fbgtx.org/ordinance/stormwtr.htm

• City of Fort Worth:http://www.fortworthgov.org/dem/storm_ordinance.htm

• North Central Texas COG:http://www.nctcog.org/envir/SEEclean/stormwater/resources/ordinances.asp

• City of Arlington:http://www.ci.arlington.tx.us/environmentalservices/environmental_water_stormwater.html

• EPA Illicit Discharges:http://www.epa.gov/nps/ordinance/discharges.htm

• City of Houston, Harris County, Harris County Flood Control District, TxDOT Houston District:http://www.cleanwaterclearchoice.org/professionals/(Click on Construction, Development, or Industrial to view downloads)

• City of Carrollton:http://www.ci.carrollton.tx.us/development/engineering/Downloads.shtml

• Texas Statutes: http://www.capitol.state.tx.us/statutes/lg.toc.htm


QUESTIONS?

MICHAEL F. BLOOM, PE, CFM, CPSWQ, [email protected]

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