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1.5 STORMWATER UTILITY OPERATIONS A functional requirements analysis identifies what the community's stormwater management program needs to accomplish to overcome problems and meet identified needs. The "functional requirements" include support activities and expenses directly related to various operational functions (such as administrative oversight, logistical support, and computer time) as well as the work activities themselves. A centralized stormwater management division does not always provide Stormwater management services. Numerous Florida communities achieve their stormwater management objectives through the actions of a number of different departments. Five basic categories of functions are provided within the context of a stormwater management program, and the categories are comprised of related work elements. The functional requirements are divided into the following categories:
Each category is divided into closely related groups of activities in the detailed analysis, which follows. Many of the tasks are similar or common to more than one category, and numerous overlaps exist. Some tasks might be placed in more than one category, but the overall fabric of the stormwater management needs in a community is properly represented by the list of functional requirement categories. Stormwater management involves a wide variety of on-going operations including program administration, planning, engineering, facilities operations and maintenance, monitoring, permitting, enforcement, and public education. 1.5.1 Program Administration Seven subgroups of administrative functions and types of support expenses, including those associated with financial management and program development, are generally included under the category of program administration activities:
These activities, and occasionally the billing and collection of fees, are described as administrative functions. Overhead and logistical expenses (space, telephone, utilities, etc.) and capital outlays for office furniture and fixtures not attributable to other functions are also identified under the administrative category. Capital outlay and overhead costs are normally classified as "non-functional" aspects of the stormwater program in the sense that they are not work activities that are directly related to a specific function but are common to all functions. However, they are required for general support of the program, and this category is simply the most suitable one in which to group them. 1.5.2 Planning and Engineering The technical functions, engineering and planning, are directly influenced by stormwater master plans, basin studies and siting and sizing of the conveyance and treatment components of the stormwater management systems. These functions continue to be essential work elements as improvements are made to the community's program. The technical functions are grouped into eight categories:
Most of the planning and engineering activities for stormwater management are related to project design and construction, negotiation of permits, and coordination of operations and maintenance programs. 1.5.3 Regulation and Enforcement Individuals as well as developers, agricultural interests, and large companies contribute to the need for better regulation of the stormwater systems, suggesting that another facet should be incorporated into a community's regulatory program specifically to control and mitigate the general public's actions. Homeowners dump grass clippings, brush trimmings and other debris into drainage ditches and swales, which either be removed by maintenance crews so it does not contributes to pollution and blockages in downstream reaches. Home mechanics dispose of crankcase oil, antifreeze, and other wastes into stormwater systems, causing water quality impacts. Public education has proven to be effective in reducing the impact that individuals have on stormwater systems, but increased regulatory enforcement is also needed. Regulation and enforcement functions included in a community's stormwater program are separated into six distinct categories:
Experience in Florida communities has shown that regulatory efforts are among the most cost-effective and productive stormwater control measures. Regulations can be developed more quickly than capital projects, are less expensive than increased maintenance, tend to reduce the causes of problems quickly if vigorously pursued, and are permanent when applied consistently and repeatedly. 1.5.4 Maintenance Operations A community must undertake maintenance operations, both routine and remedial, if it intends to keep its stormwater infrastructure operational at or near its design capacities. Routine maintenance includes the normal cleaning activities required to keep the stormwater management systems in proper condition. Remedial maintenance involves repair and reconstruction short of total replacement, enlargement, or construction of entire stormwater systems. Remedial work is typically done as parts of systems deteriorate due to aging or are damaged. Both routine and remedial maintenance are required to ensure that the systems work as effectively as possible when storms occur. The ten primary work tasks and related support activities included under the operation category include the following headings:
The integrity of any stormwater management system to operate at Level of Service (LOS) adopted by the community lies in a combination of proper sizing and design and a suitable level of facilities maintenance to assure that the system components function as originally designed. Many communities in Florida are unable to meet their LOS goals due to undersized facilities constructed prior to 1980 and the inability to adequately maintain existing systems. 1.5.5 Capital Construction Most Florida communities have significant planned, deferred and future needs for stormwater system capital improvements. These needs are generally in the form of capital improvement program projects for conveyance improvements, treatment facilities, and reconstruction of aged and deteriorated components of the existing system, which have been identified through master planning and basin studies. Major types of capital investments and other capitalized expenditures that are required in a community have been summarized in five general categories:
Given the range of stormwater management and flooding problems evident in many communities, it is clear that both major and minor capital improvements are needed.
Additional information on the administration of a stormwater utility
including discussion of organizational and staffing issues, mission
statements and a case study of the City of Tallahassee's stormwater
utility is presented in Chapter
7 of this manual.
Chapter
8 provides information on a variety of sources for technical assistance
that is available to communities considering the development and implementation
of a stormwater utility.
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