CHARGES FOR URBAN RUNOFF: ISSUES IN IMPLEMENTATION1

ABSTRACT: Maryland officials have identified stormwater utilities as a potential method of financing programs to control nutrients in urban stormwater runoff that are proposed in Maryland's Chesapeake Bay Nutrient Reduction Plan. This paper reviews a number of issues related to the equity, efficiency and acceptability of user charge schemes. Overall, charges are found to be preferable to property taxes from both equity and efficiency perspectives. In addition, evidence suggests that elected officials will support creation of utilities. Obstacles to the implementation of utilities are identified.     

A WATER QUALITY‐BASED APPROACH FOR WATERSHED WIDE BMP STRATEGIES1

ABSTRACT: Watershed management strategies generally involve controlling nonpoint source pollution by implementing various best management practices (BMPs). Currently, stormwater management programs in most states use a performance‐based approach to implement onsite BMPs. This approach fails to link the onsite BMP performance directly to receiving water quality benefits, and it does not take into account the combined treatment effects of all the stormwater management practices within a watershed. To address these issues, this paper proposes a water quality‐based BMP planning approach for effective nonpoint source pollution control at a watershed scale. A coupled modeling system consisting of a watershed model (HSPF) and a receiving water quality model (CE‐QUAL‐W2) was developed to establish the linkage between BMP performance and receiving water quality targets. A Monte Carlo simulation approach was utilized to develop alternative BMP strategies at a watershed level. The developed methodology was applied to the Swift Creek Reservoir watershed in Virginia, and the results show that the proposed approach allows for the development of BMP strategies that lead to full compliance with water quality requirements.     

An Open Source GIS‐Based Decision Support System for Watershed Evaluation of Best Management Practices

Economic costs, water quantity/quality benefits, and cost effectiveness of agricultural best management practices (BMPs) at a watershed scale are increasingly examined using integrated economic‐hydrologic models. However, these models are typically complex and not user‐friendly for examining the effects of various BMP scenarios. In this study, an open source geographic information system (GIS)‐based decision support system (DSS), named the watershed evaluation of BMPs (WEBs), was developed for creating BMP scenarios and simulating economic costs and water quantity/quality benefits at farm field, subbasin, and watershed scales. This DSS or WEBs interface integrated a farm economic model, the Soil and Water Assessment Tool (SWAT), and an optimization model within Whitebox Geospatial Analysis Tools (GAT), an open source GIS software. The DSS was applied to the 14.3‐km² Gully Creek watershed, a coastal watershed in southern Ontario, Canada that drains directly into Lake Huron. BMPs that were evaluated included conservation tillage, nutrient management, cover crop, and water and sediment control basins. In addition to assessing economic costs, water quantity/quality benefits, and cost effectiveness of BMPs, the DSS can be also used to examine prioritized BMP types/locations and corresponding economic and water quantity/quality tradeoffs in the study watershed based on environmental targets or budget constraints. Further developments of the DSS including interface transfer to other watersheds are also discussed. Editor's note : This paper is part of the featured series on SWAT Applications for Emerging Hydrologic and Water Quality Challenges. See the February 2017 issue for the introduction and background to the series.     

Comparing Costs of Onsite Best Management Practices to Nutrient Credits for Stormwater Management: A Case Study in Virginia

Best management practices (BMPs) are widely used to mitigate impacts of increased impervious surfaces on stormwater runoff. However, there is limited detailed and up‐to‐date information available on the cost of designing, constructing, and maintaining BMPs over their lifetime. The objective of this study is to analyze BMPs recently constructed by the Virginia Department of Transportation (VDOT) to quantify their total cost per pound of phosphorus removed annually. A motivating factor for the study is recent changes to regulatory guidelines in Virginia which allow for full or partial substitution of purchased nutrient credits in lieu of constructing onsite BMPs to achieve compliance with stormwater quality regulations. Results of the analysis of nine BMPs found their cost ranged from $20,100 to $74,900, in 2014 dollars, per pound ($44,313‐$165,126 per kg) of phosphorus removed. Based on these results and assuming current credit prices procured by VDOT, purchasing nutrient credits is a cost‐effective option for the agency, especially when factoring in the cost of additional right of way for the BMP. Based on this finding, we expect compliance with stormwater quality regulations through credit purchases to become more widely used in Virginia. Moving forward, we suggest more direct tracking of BMP costs to support comparisons between BMP costs across a range of types and conditions to credit purchases for meeting stormwater regulations.     

Economic analysis of best management practices to reduce watershed phosphorus losses

In phosphorus-limited freshwater systems, small increases in phosphorus (P) concentrations can lead to eutrophication. To reduce P inputs to these systems, various environmental and agricultural agencies provide producers with incentives to implement best management practices (BMPs). In this study, we examine both the water quality and economic consequences of systematically protecting saturated, runoff-generating areas from active agriculture with selected BMPs. We also examine the joint water quality/economic impacts of these BMPs-specifically BMPs focusing on barnyards and buffer areas. Using the Variable Source Loading Function model (a modified Generalized Watershed Loading Function model) and net present value analysis (NPV), the results indicate that converting runoff-prone agricultural land to buffers and installing barnyard BMPs are both highly effective in decreasing dissolved P loss from a single-farm watershed, but are also costly for the producer. On average, including barnyard BMPs decreases the nutrient loading by about 5.5% compared with only implementing buffers. The annualized NPV for installing both buffers on only the wettest areas of the landscape and implementing barnyard BMPs becomes positive only if the BMPs lifetime exceeds 15 yr. The spatial location of the BMPs in relation to runoff producing areas, the time frame over which the BMPs are implemented, and the marginal costs of increasing buffer size were found to be the most critical considerations for water quality and profitability. The framework presented here incorporates estimations of nutrient loading reductions in the economic analysis, and is applicable to farms facing BMP adoption decisions.     

Optimal nonpoint source pollution control strategies for a reservoir watershed in Taiwan

The purpose of this study is to develop a model for optimal nonpoint source pollution control for the Fei-Tsui Reservoir watershed in Northern Taiwan. Several structural best management practices (BMPs) are selected to treat stormwater runoff. The complete model consists of two interacting components: an optimization model based on discrete differential dynamic programming (DDDP) and a zero-dimensional reservoir water quality model. A predefined procedure is used to locate suitable sites for construction of various selected BMPs in the watershed. In the optimization model, the objective function is to find the best combination of BMP type and placement, which minimizes the total construction and operation, maintenance, and repair (OMR) costs of the BMPs. The constraints are the water quality standards for total phosphorus (TP) and total suspended solids (TSS) concentrations in the reservoir. A zero-dimensional reservoir water quality model of the Vollenweider type is embedded in the optimization framework to simulate pollutant concentrations in Fei-Tsui Reservoir. The resulting optimal cost and benefit of water quality improvement are depicted by the model-derived trade-off curves. The modeling framework developed in the present study could be used as an efficient tool for planning a watershed-wide implementation of BMPs for mitigating stormwater pollution impact on the receiving water bodies.     

EFFECTWENESS OF INTEGRATED STORMWATER MANAGEMENT IN A PORTLAND,OREGON, WATERSHED1

ABSTRACT: The City of Portland's stormwater management program, winner of EPA's Environmental Excellence Award for 1996, is committed to partnership-based, cost-effective, “green” approaches to healthy neighborhoods and water quality. The stormwater program encourages innovative, non-structural pollution reduction techniques like native landscaping, stormwater pollution reduction bioswales and ponds, and public involvement and education. Effectiveness of stormwater best management practices (BMPs) has been difficult to determine on a citywide basis. Recognizing this problem, the City of Portland launched the Parkrose Pilot Project in 1994 to test the effectiveness of a wide range of BMPs in a small watershed in north Portland, the Parkrose catchment, and monitor the results prior to citywide implementation. This catchment was selected because of its small size (144 acres), its representative mix of land uses, and an extensive record of water quality monitoring data. This paper examines the City's strategy in selecting the Parkrose study area as a pilot watershed, the BMPs chosen for use in the watershed, and the results of the program to date. Final success of the Parkrose project will be gauged by the attainment of measurable pollution reduction within the catchment while providing opportunities for meaningful participation by the local community in achieving water quality. Involvement by private citizens in the community is crucial to the success of the project and to ensure compliance with the federal mandate to reduce pollutants to the maximum extent practicable.     

FINANCING ABATEMENT OF MINE DRAINAGE POLLUTION: CASE STUDY APPALACHIA1

ABSTRACT A financing program for the prevention, control, and abatement of mine drainage pollution was developed using Appalachia as a case example. The financing program was selected by using three performance criteria in a screening process-applicability of financing program to pollution problem, feasibility of program to unit costs and capturing potential benefits, and feasibility of program to economic and legal consideration. Effluent charges with some modifications are suggested as the appropriate financing mechanism.     

Urban channel adjustments in a management context: an Australian example

The impact of urbanization on stream channels has been investigated in a range of areas; the degree and extent of the channel adjustments have been demonstrated; and for a few areas these characteristics have recently been placed into a spatial context. A method of rapid field survey for depicting the channel network of urban areas in terms of near natural, adjusted, and channelized systems is illustrated for the urban area of Armidale NSW, for which Armidale Dumaresq Council had prepared a stormwater management plan. Such a survey could enable channel characteristics and adjustments, as well as water quantity and quality, to be included in the management plan. Possible options for management to address are suggested for each of the channel categories. A channel classification system of the kind suggested can provide a basic complement for the further development of the stormwater management plan, can afford a basis for specifying management alternatives, and can be helpful in demonstrating the options offered for community consultation.     

A Case Study of Form-Based Solutions for Watershed Protection

Despite an array of policies at the federal and state level aimed at regulating stormwater discharges, engineered solutions enforced by local governments often fall short of meeting water quality standards. Although the implications of land use planning and development regulations are important for stormwater management, they are often overlooked as critical initial steps to improving water quality. This study explores the role of ‘form-based’ regulations as tools for achieving urban planning and water quality objectives. Form-based codes are a new generation of development codes aimed at regulating urban development based on urban form and density, rather than land use. We present an exploratory case study of the feasibility of form-based codes in the Jordan Lake Watershed in North Carolina, a rapidly growing region where fragmented local governments face stringent nutrient reduction standards under new state regulations. Through program analysis and interviews, we explore the viability of form-based codes for reducing development impacts on Jordan Lake’s water quality. We consider the legal feasibility of code enforcement, regional and local barriers and opportunities, and implementation given existing regulatory frameworks. Our findings suggest that high quality information and data modeling are foundational to gaining support for a consensus agreement on the sources and degree of water quality impairment. Furthermore, implementing form-based solutions for water quality is greatly aided by (1) experienced regional planning bodies that have regulatory authority, and (2) local governments whose staff are experienced in implementing complex development ordinances, reviewing architectural renderings, and communicating development requirements with the public and developers.     

EMERGING STATE ROLES IN URBAN STORMWATER MANAGEMENT1

ABSTRACT: The technology of urban stormwater management has far outpaced its actual application in new urban development. This article documents that implementation gap, but shows that state and local governmental measures, particularly storm drainage regulations, can lead to improved performance in the private sector. Although state stormwater management programs are in their infancy, they are already having a measurable effect in stimulating the adoption of local governmental programs to manage urban storm water. Pioneering state programs in Maryland, New Jersey, and Pennsylvania, described in this article, provide models for states contemplating the formulation of stormwater management programs.     

River Basin Export Reduction Optimization Support Tool; a tool to screen options for reducing nutrient loads while minimizing cost

Excess loading of nitrogen and phosphorus to river networks causes environmental harm, but reducing loads from large river basins is difficult and expensive. We developed a new tool, the River Basin Export Reduction Optimization Support Tool (RBEROST) to identify the least-cost combinations of management practices that will reduce nutrient loading to target levels in downstream and mid-network waterbodies. We demonstrate the utility of the tool in a case study in the Upper Connecticut River Basin in New England, USA. The total project cost of optimized lowest-cost plans ranged from $18.0 million to $41.0 million per year over 15 years depending on user specifications. Plans include both point source and non-point source management practices, and most costs are associated with urban stormwater practices. Adding a 2% margin of safety to loading targets improved the estimated probability of success from 37.5% to 99%. The large spatial scale of RBEROST, and the consideration of both point and non-point source contributions of nutrients, make it well suited as an initial screening tool in watershed planning.     

Where Did the Agricultural Nonpoint Source Trades Go? Lessons from Virginia Water Quality Trading Programs

Governmental agencies, nongovernmental organizations, and agricultural organizations promote water quality trading programs as an innovative policy to engage agricultural producers in conservation activities. Cost analyses suggest regulated sources can reduce compliance costs by purchasing agricultural nonpoint source credits. Yet, such “point‐nonpoint” trades are rare. This article assesses the demand for agricultural nonpoint sources in well‐developed nutrient trading programs in Virginia for industrial and municipal wastewater treatment plants, municipal stormwater programs, and land developers. Evidence suggests nutrient trading programs in Virginia will not stimulate investments in pollutant reduction practices on working agricultural lands. The lack of demand for agricultural nonpoint source credits can be attributed to a substantial degree to the design features and incentives present in multiple overlapping regulatory programs. The legal setting that dampens regulated source demand for nonpoint source credits in Virginia is broadly representative of conditions found elsewhere in the United States.     

Education campaigns to reduce stormwater pollution in commercial areas: Do they work?

A monitoring and evaluation program was undertaken, involving six different styles of evaluation to determine whether a low-cost, eight month education campaign that operated within a small commercial district was successful at changing people's behavior and reducing stormwater litter loads. This project also tested newly developed guidelines for monitoring and evaluating all types of non-structural stormwater quality best management practices (BMPs). The project evaluated: the extent and quality of the campaign's implementation; the degree to which it changed the awareness, attitudes, self-reported behavior and actual behavior of merchants and the public; and the nature of changes in stormwater litter loads. Overall, the education campaign produced mixed results, with the net result being modestly positive. Specifically, it was: unsuccessful at significantly influencing the knowledge or attitudes of merchants or the public; modestly successful at influencing the behavior of merchants and the public; and modestly successful at reducing litter loads in stormwater. At a theoretical level, the project highlights how using different 'styles' of BMP evaluation can help to build a more complete picture of a BMP's performance. At a practical level, the project helped to improve the monitoring and evaluation guidelines and produced evidence-based design guidelines for future campaigns that aim to reduce littering in commercial areas.     

REEXAMINING BEST MANAGEMENT PRACTICES FOR IMPROVING WATER QUALITY IN URBAN WATERSHEDS1

ABSTRACT: Municipalities will be implementing structural best management practices at increasing rates in their effort to comply with Phase II of the National Pollutant Discharge Elimination System (NPDES). However, there is evidence that structural best management practices (BMPs) by themselves may be insufficient to attain desired water quality standards. This paper reports on an analysis of the median removal efficiencies of structural BMPs and compares them to removal efficiencies estimated as being necessary to attain water quality standards in the Rouge River in Detroit, Michigan. Eight water quality parameters are reviewed using data collected from 1994 to 1999 in the Rouge River. Currently, five of the eight parameters in the Rouge River including bacteria, biochemical oxygen demand, and total suspended solids (TSS) exceed the required water quality standards. The reported analysis of structural BMP efficiencies reveals that structural BMPs appear capable of reducing only some of the pollutants of concern to acceptable levels.     

A systematic approach for the comparative assessment of stormwater pollutant removal potentials

This paper describes the development of a methodology to theoretically assess the stormwater pollutant removal performances of structural best management practices (BMPs). The method combines the categorisation of the relative importance of the primary removal processes within 15 different BMPs with an evaluation of the ability of each process to remove a pollutant in order to generate a value representing the pollutant removal potential for each BMP. The methodology is demonstrated by applying it separately to a set of general water quality indicators (total suspended solids, biochemical and chemical oxygen demand, nitrates, phosphates and faecal coliforms) to produce a ranked list of BMP pollutant removal efficiencies. Given the limited amount of available monitoring data relating to the differential pollutant removal capabilities of BMPs, the resulting prioritization will support stakeholders in making urban drainage decisions from the perspective of pollutant removal. It can also provide inputs to existing urban hydrology models, which aim to predict the treatment performances of BMPs. The level of resilience of the proposed approach is tested using a sensitivity analysis and the limitations in terms of BMP design and application are discussed.     

MODELING COST-EFFECTIVENESS OF AGRICULTURAL NONPOINT POLLUTION ABATEMENT PROGRAMS ON TWO FLORIDA BASINS1

ABSTRACT: A model was developed to evaluate the cost-effectiveness of alternative “best management practice” (BMP) implementation schemes on two agricultural basins in Florida. The model selectively applies BMPs throughout the basin on a field by field basis, estimates the associated costs, and predicts the relative water quality improvement (reductions in nitrogen and phosphorus). The water quality model links field scale simulation (for detailed BMP evaluation) with basin delivery and attenuation functions to predict the basin-wide effects of any combination of BMPs. Fifteen BMP scenarios were evaluated to aid in prioritizing BMPs for implementation in these basins. Applying the maximum level of BMPs is estimated to cost around $1.2 million (annually), while the four most cost-effective BMPs would cost only one quarter as much, yet are projected to provide approximately 90 percent of the water quality improvement.     

Comparing Green and Grey Infrastructure Using Life Cycle Cost and Environmental Impact: A Rain Garden Case Study in Cincinnati,OH

Green infrastructure (GI) is quickly gaining ground as a less costly, greener alternative to traditional methods of stormwater management. One popular form of GI is the use of rain gardens to capture and treat stormwater. We used life cycle assessment (LCA) to compare environmental impacts of residential rain gardens constructed in the Shepherd's Creek watershed of Cincinnati, Ohio to those from a typical detain and treat system. LCA is an internationally standardized framework for analyzing the potential environmental performance of a product or service by including all stages in its life cycle, including material extraction, manufacturing, use, and disposal. Complementary to the life cycle environmental impact assessment, the life cycle costing approach was adopted to compare the equivalent annual costs of each of these systems. These analyses were supplemented by modeling alternative scenarios to capture the variability in implementing a GI strategy. Our LCA models suggest rain garden costs and impacts are determined by labor requirement; the traditional alternative's impacts are determined largely by the efficiency of wastewater treatment, while costs are determined by the expense of tunnel construction. Gardens were found to be the favorable option, both financially (~42% cost reduction) and environmentally (62‐98% impact reduction). Wastewater utilities may find significant life cycle cost and environmental impact reductions in implementing a rain garden plan.     

Roles of environmental movement organisations in land-use planning: case studies of the Niagara Escarpment and Oak Ridges Moraine,Ontario, Canada

The paper explores the roles of environmental movement organisations (EMOs) in land-use planning, including domain creation (establishment of new or modified landscape planning boundaries) and regime change (adoption of new or modified legal and planning rules). The research involved two case studies of land-use planning processes: the Niagara Escarpment and Oak Ridges Moraine, Ontario, Canada. The two cases together reveal an evolution of land-use planning towards collaborative processes on mainly private lands in Southern Ontario during the period from 1960 to 2002. The results suggest that EMOs can create new planning domains through agenda setting activities, build landscape value and vision, educate governments and the public, and work to maintain and alter regimes. Collaborative planning has emerged as an important process in which some EMOs are now participating.     

Using the soil and water assessment tool to estimate achievable water quality targets through implementation of beneficial management practices in an agricultural watershed

Runoff from crop production in agricultural watersheds can cause widespread soil loss and degradation of surface water quality. Beneficial management practices (BMPs) for soil conservation are often implemented as remedial measures because BMPs can reduce soil erosion and improve water quality. However, the efficacy of BMPs may be unknown because it can be affected by many factors, such as farming practices, land-use, soil type, topography, and climatic conditions. As such, it is difficult to estimate the impacts of BMPs on water quality through field experiments alone. In this research, the Soil and Water Assessment Tool was used to estimate achievable performance targets of water quality indicators (sediment and soluble P loadings) after implementation of combinations of selected BMPs in the Black Brook Watershed in northwestern New Brunswick, Canada. Four commonly used BMPs (flow diversion terraces [FDTs], fertilizer reductions, tillage methods, and crop rotations), were considered individually and in different combinations. At the watershed level, the best achievable sediment loading was 1.9 t ha(-1) yr(-1) (89% reduction compared with default scenario), with a BMP combination of crop rotation, FDT, and no-till. The best achievable soluble P loading was 0.5 kg ha(-1) yr(-1) (62% reduction), with a BMP combination of crop rotation and FDT and fertilizer reduction. Targets estimated through nonpoint source water quality modeling can be used to evaluate BMP implementation initiatives and provide milestones for the rehabilitation of streams and rivers in agricultural regions.