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7.2 ORGANIZATIONAL STRUCTURES/ FUNCTIONS 7.2.1 Local Government Stormwater Function The single most important factor governing the effectiveness of the stormwater function will be how it is organized. The establishment of any stormwater program will have the following general functions in common. While no two governmental units need operate exactly the same, nevertheless some similarities are common to all. Administration This function provides the general and administrative activities necessary for the local stormwater management program to operate. Several sub-groups 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 include:
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 "nonfunctional" in the sense that they are not work activities. However, they are required for general support of the program, and this category is simply the most suitable one in which to group them. Planning and Engineering This is the function that identifies the pre-determined objectives, plans, and programs necessary to carry out the mission of the stormwater program. 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. Some sub- functions that are included in this category are:
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 in 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 must either be removed by maintenance crews or it 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 four 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. Operations and Maintenance The active operation of the physical stormwater infrastructure of the local government must include a regularly scheduled inspection and maintenance program. Maintenance operations, both routine and remedial, are necessary if the local government 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. Both routine and remedial maintenance are required to ensure that the systems work as effectively as possible when storms occur. The primary work tasks and related support activities included under the operations and maintenance category are:
Financial This is the means to the end--how the necessary resources are made available to the local government to carry out the stormwater mission. This includes the associated public accounting practices that assure the electorate their resources are being utilized properly. There is a tendency among managers to organize around individuals. There will be many competing variables and the determination of the overall structure requires serious forethought. 7.2.2 Interaction with Other Departments Since many public works entities are organized functionally, many internal conflicts and work overlaps occur. This is especially problematic when dealing with stormwater functions. Since stormwater is the excess rainfall that runs off after rain events, all departments that own real property must address it. Usually, site drainage is a function of the development of the particular site and was handled as part of the initial building of the facility. It may become a concern if ongoing maintenance is required or water quality or quantity issues must be addressed. Funding of these functions may not be adequate to provide the necessary level of service. Some examples of potential overlap between any local government's departments may include:
Development and implementation of a stormwater utility often changes the manner in which stormwater services are delivered, and which organizational unit within the local governmental structure is responsible for providing the services. These changes translate into shifts in manpower levels, annual operating budgets and, on occasion, the internal reorganization of the affected governmental units. Most Florida communities have implemented their stormwater utilities to improve their ability to provide existing services and, in numerous cases, new stormwater management services to the citizens. Generally this improvement requires increases in both staff and budget for administrative, planning, engineering, regulatory, and operation and maintenance activities. While some communities have utilized consultants to provide specialized services in the areas of planning, stormwater modeling, and the preparation of contract documents for capital improvement projects in order to prevent the expansion of staff, this practice still requires additional budget to cover the consultants' contracts. The delivery of services in many Florida communities is fragmented with different services being provided by different departments. As an example, new stormwater management facilities are designed by the engineering department, permitted through a different department, constructed under the management of the capital projects department and, upon completion, turned over to the roads department for maintenance. When the stormwater activities are funded from the same revenue stream (the stormwater utility), some communities have reorganized their departments so that all of these functions are consolidated in a stormwater management department which is responsible for all of the functions that are paid for through stormwater utility revenues: administration, planning and engineering, regulation and enforcement, and operations and maintenance activities. The resulting reorganization clearly shifts power within the governmental structure and can create internal supporters and critics based on who is gaining and losing staff, budget, and prestige. Development of a consensus between the various departments that provide stormwater management services in a community is an important consideration for the successful development and implementation of a stormwater utility. Any process that shifts staff, budget and prestige between managers and departments, and especially those processes that require internal reorganization, are tenuous and require careful attention to educating all levels of staff; directing and focusing managers who are increasing their department's size, budget and responsibilities; and especially, placating managers who are losing staff and resources. Failure to address these issues can produce very vocal critics at all levels of the staff who, at a minimum, lower morale and increase the length and cost of successful reorganization and improvements in the delivery of services. In the worst case, the vocal internal critic can sabotage the process and cause such internal turmoil that the entire stormwater utility is undermined and the implementation process ends in failure. Perhaps the best omen of successful stormwater utility implementation is the emergence of a champion who, through his/her enthusiasm, preparation and protracted effort, facilitates the development of public, political, and institutional support of the stormwater utility. A champion can be a mayor, a respected member of the city commission or the board of county commissioners, a senior manager, or an influential and determined community activist who wants to solve the community's chronic stormwater problems and, perhaps, leave a legacy for his or her grandchildren. Identification of one or more champions at an early stage of the stormwater utility development process, and the cultivation of the champion(s), is perhaps on of the most important initial activities that a community can undertake toward long-term success of their utility. All local government departments need to be sensitive to stormwater quantity and quality issues. As discussed in an earlier chapter, local governments must address a variety of stormwater requirements necessitated by local ordinances, state, and federal laws. To effectively and efficiently deal with these requirements, the stormwater organization must be provided adequate resources. These regulations must not be relegated to a low priority status or completely ignored.
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