Impediments and Solutions to Sustainable,Watershed-Scale Urban Stormwater Management: Lessons from Australia and the United States

In urban and suburban areas, stormwater runoff is a primary stressor on surface waters. Conventional urban stormwater drainage systems often route runoff directly to streams and rivers, thus exacerbating pollutant inputs and hydrologic disturbance, and resulting in the degradation of ecosystem structure and function. Decentralized stormwater management tools, such as low impact development (LID) or water sensitive urban design (WSUD), may offer a more sustainable solution to stormwater management if implemented at a watershed scale. These tools are designed to pond, infiltrate, and harvest water at the source, encouraging evaporation, evapotranspiration, groundwater recharge, and re-use of stormwater. While there are numerous demonstrations of WSUD practices, there are few examples of widespread implementation at a watershed scale with the explicit objective of protecting or restoring a receiving stream. This article identifies seven major impediments to sustainable urban stormwater management: (1) uncertainties in performance and cost, (2) insufficient engineering standards and guidelines, (3) fragmented responsibilities, (4) lack of institutional capacity, (5) lack of legislative mandate, (6) lack of funding and effective market incentives, and (7) resistance to change. By comparing experiences from Australia and the United States, two developed countries with existing conventional stormwater infrastructure and escalating stream ecosystem degradation, we highlight challenges facing sustainable urban stormwater management and offer several examples of successful, regional WSUD implementation. We conclude by identifying solutions to each of the seven impediments that, when employed separately or in combination, should encourage widespread implementation of WSUD with watershed-based goals to protect human health and safety, and stream ecosystems.     

COMMUNITY RESPONSE TO STORMWATER POLLUTION IN AN URBANIZED WATERSHED1

ABSTRACT: A model is developed and tested to identify the factors influencing variation in community response to stormwater pollution. Basic constructs of the model use environmental hazard theory, integrated with analysis of community demographic and political forces affecting local government decision processes. Community stormwater response is measured by an index comprised of 12 response indicators. Selection criteria for the response indicators include their effectiveness, variability, and general representation of the spectrum of stormwater response activity. Observable activities are scored progressively based upon their relative ecosystem impacts. Weighted and unweighted indicator scores are computed, with a survey of stormwater experts providing the basis for the weights. Results indicate a wide variation in response levels among the selected communities. Regression analysis identifies four significant predictors of response at the watershed scale: the mean age of householder over 25, the total tax rate, community type (city or township), and the amount of green staff (presence of recycling coordinators, foresters, or environmental planners). This mix of predictors demonstrates the applicability of hazard theory to stormwater response, as community stormwater response is influenced by the capacity and economic means to effect change - two central constructs of hazard theory.     

Integrated Approaches in Urban Storm Drainage: Where Do We Stand?

Integrated approaches to urban stormwater drainage management are being increasingly advocated as necessary for advancing more sustainable and holistic management of urban water environments. In this paper, the status of integrated approaches in the management of urban stormwater discharges to receiving waterways is summarized. The starting point of the paper is with the recent scientific contributions, revealing that integration is being pursued and implemented predominantly at two conceptual levels. These include 1) integrating the technical system with the receiving waterway environment, and 2) considering the interaction and influence of the human system with the technical system through processes such as stakeholder and public participation. Additionally, it is argued that the evolving shift towards the implementation of water-quality-based strategies advances the need for further development and application of integrated models and approaches. The cases of online physically based models for predictive control and integrated source control and public participation are presented as examples of such ongoing developments in pursuit of integrated urban stormwater management.     

Impediments to Integrated Urban Stormwater Management: The Need for Institutional Reform

It is now well established that the traditional practice of urban stormwater management contributes to the degradation of receiving waterways, and this practice was more recently critiqued for facilitating the wastage of a valuable water resource. However, despite significant advances in alternative “integrated urban stormwater management” techniques and processes over the last 20 years, wide-scale implementation has been limited. This problem is indicative of broader institutional impediments that are beyond current concerns of strengthening technological and planning process expertise. Presented here is an analysis of the institutionalization of urban stormwater management across Sydney with the objective of scoping institutional impediments to more sustainable management approaches. The analysis reveals that the inertia with the public administration of urban stormwater inherently privileges and perpetuates traditional stormwater management practices at implementation. This inertia is characterized by historically entrained forms of technocratic institutional power and expertise, values and leadership, and structure and jurisdiction posing significant impediments to change and the realization of integrated urban stormwater management. These insights strongly point to the need for institutional change specifically directed at fostering horizontal integration of the various functions of the existing administrative regime. This would need to be underpinned with capacity-building interventions targeted at enabling a learning culture that values integration and participatory decision making. These insights also provide guideposts for assessing the institutional and capacity development needs for improving urban water management practices in other contexts.     

Benefit–Cost Analysis of StormwaterQuality Improvements

The major purpose of this paper is to explore the potential value of benefit–cost evaluation for stormwater quality management decisions at a local level. A preliminary benefit–cost analysis (BCA) screening method is used for maximum extent practicable (MEP) analysis, identifying promising management practices, and identifying societal and economic tradeoffs for local stormwater problems. Ballona Creek, a major urban storm drain in Los Angeles, California, USA, is used to illustrate the practicality of the benefit–cost evaluation. The Ballona Creek example demonstrates the economic limits of stormwater management in an urban region and attests to the value of coordinated basinwide management compared to uncoordinated management by individual landowners. Evaluation results suggest that in urban areas, the benefit of stormwater quality improvements might be far greater if accompanied by comprehensive redesign of drainage networks and neighboring land uses. In this case, benefit–cost analysis is found to be useful for evaluating and understanding stormwater management alternatives despite the uncertainties in characterizing stormwater quality and the effects of stormwater management on improving receiving water quality.     

Nonstructural Urban Stormwater Quality Measures: Building a Knowledge Base to Improve Their Use

This article summarizes a research project that investigated the use, performance, cost, and evaluation of nonstructural measures to improve urban stormwater quality. A survey of urban stormwater managers from Australia, New Zealand, and the United States revealed a widespread trend of increasing use of nonstructural measures among leading stormwater management agencies, with at least 76% of 41 types of nonstructural measures being found to be increasing in use. Data gathered from the survey, an international literature review, and a multicriteria analysis highlighted four nonstructural measures of greatest potential value: mandatory town planning controls that promote the adoption of low-impact development principles and techniques; development of strategic urban stormwater management plans for a city, shire, or catchment; stormwater management measures and programs for construction/building sites; and stormwater management activities related to municipal maintenance operations such as maintenance of the stormwater drainage network and manual litter collections. Knowledge gained on the use and performance of nonstructural measures from the survey, literature review, and three trial evaluation projects was used to develop tailored monitoring and evaluation guidelines for these types of measure. These guidelines incorporate a new evaluation framework based on seven alternative styles of evaluation that range from simply monitoring whether a nonstructural measure has been fully implemented to monitoring its impact on waterway health. This research helps to build the stormwater management industry’s knowledge base concerning nonstructural measures and provides a practical tool to address common impediments associated with monitoring and evaluating the performance and cost of these measures.     

Stormwater Control Measures for Runoff and Water Quality Management in Urban Landscapes

This study develops and tests a novel optimization method for optimally selecting and sizing stormwater control measures (SCMs) in urban landscapes for selected design storms. The developed methodology yields SCMs that capture and retain stormwater via onsite percolation, remove stormwater pollutants, and minimize stormwater control expenditures. The resulting environmental optimization problem involves integer and real variables imbedded in an objective function that is subjected to multiple constraints. This study's methodology aims at practicality and ease of implementation in the solution of the SCM sizing and selection optimization problem while taking into account the main factors that govern stormwater management in urban landscapes. The near‐optimal global solution of the SCM selection and design problem is obtained with nonlinear programming and verified with the average of multiple solutions calculated with multiple runs of an optimization evolutionary algorithm. The developed methodology is illustrated with one stormwater project in the City of Los Angeles, California.     

Perspectives on the Use of Green Infrastructure for Stormwater Management in Cleveland and Milwaukee

Green infrastructure is a general term referring to the management of landscapes in ways that generate human and ecosystem benefits. Many municipalities have begun to utilize green infrastructure in efforts to meet stormwater management goals. This study examines challenges to integrating gray and green infrastructure for stormwater management, informed by interviews with practitioners in Cleveland, OH and Milwaukee WI. Green infrastructure in these cities is utilized under conditions of extreme fiscal austerity and its use presents opportunities to connect stormwater management with urban revitalization and economic recovery while planning for the effects of negative- or zero-population growth. In this context, specific challenges in capturing the multiple benefits of green infrastructure exist because the projects required to meet federally mandated stormwater management targets and the needs of urban redevelopment frequently differ in scale and location.     

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.     

Managing stormwater for urban sustainability: an evaluation of local comprehensive plans in the Chesapeake Bay watershed region

This study uses a developed plan coding protocol in evaluating the quality of 76 comprehensive plans to examine whether local comprehensive plans have adequately integrated the concepts of sustainable stormwater management. The Chesapeake Bay watershed was chosen for the investigation because degraded stormwater runoff from nearby urban and suburban jurisdictions have critically polluted the watershed. The findings indicate that the majority of local governments have not sufficiently incorporated the sustainable stormwater management principles into their comprehensive plans. Five plan components (factual basis, goals and objectives, inter-organizational cooperation, policies, tools and strategies, and implementation) appear weak in realizing the concepts. The current study concludes by providing policy implications and recommendations to increase awareness and understanding of sustainable stormwater management concepts and to produce better implementation plans that integrate stormwater, ecosystem, and environmental planning comprehensively.     

Full Water‐Cycle Monitoring in an Urban Catchment Reveals Unexpected Water Transfers (Detroit MI,USA)

A goal in urban water management is to reduce the volume of stormwater runoff in urban systems and the effect of combined sewer overflows into receiving waters. Effective management of stormwater runoff in urban systems requires an accounting of various components of the urban water balance. To that end, precipitation, evapotranspiration (ET), sewer flow, and groundwater in a 3.40‐hectare sewershed in Detroit, Michigan were monitored to capture the response of the sewershed to stormwater flow prior to implementation of stormwater control measures. Monitoring results indicate that stormflow in sewers was not initiated unless rain depth was 3.6 mm or greater. ET removed more than 40% of the precipitation in the sewershed, whereas pipe flow accounted for 19%–85% of the losses. Flows within the sewer that could not be associated with direct precipitation indicate an unexpected exchange of water between the leaky sewer and the groundwater system, pathways through abandoned or failing residential infrastructure, or a combination of both. Groundwater data indicate that groundwater flows into the leaky combined sewer rather than out. This research demonstrates that urban hydrologic fluxes can modulate the local water cycle in complex ways which affect the efficiency of the wastewater system, effectiveness of stormwater management, and, ultimately, public health.     

Review of Urban Stormwater Quality Models: Deterministic,Stochastic, and Hybrid Approaches1

Abstract: The growing impact of urban stormwater on surface‐water quality has illuminated the need for more accurate modeling of stormwater pollution. Water quality based regulation and the movement towards integrated urban water management place a similar demand for improved stormwater quality model predictions. The physical, chemical, and biological processes that affect stormwater quality need to be better understood and simulated, while acknowledging the costs and benefits that such complex modeling entails. This paper reviews three approaches to stormwater quality modeling: deterministic, stochastic, and hybrid. Six deterministic, three stochastic, and three hybrid models are reviewed in detail. Hybrid approaches show strong potential for reducing stormwater quality model prediction error and uncertainty. Improved stormwater quality models will have wide ranging benefits for combined sewer overflow management, total maximum daily load development, best management practice design, land use change impact assessment, water quality trading, and integrated modeling.     

The Ability of Urban Residential Lawns to Disconnect Impervious Area from Municipal Sewer Systems1

Abstract: Runoff from urban catchments depends largely on the amount of impervious surface and the connectivity of these surfaces to the storm sewer drainage system. In residential areas, pervious lawns can be used to help manage stormwater runoff by intercepting and infiltrating runoff from impervious surfaces. The goal of this research was to develop and evaluate a simple method for estimating the reduction in stormwater runoff that results when runoff from an impervious surface (e.g., rooftop) is directed onto a pervious surface (e.g., lawn). Fifty‐two stormwater runoff reduction tests were conducted on six residential lawns in Madison, Wisconsin during the summer of 2004. An infiltration‐loss model that requires inputs of steady‐state infiltration rate, abstraction (defined here as surface storage, vegetation interception and cumulative total infiltration minus steady‐state infiltration during the period prior to steady‐state), and inundated area was evaluated using experimental data. The most accurate results were obtained using the observed steady‐state infiltration rates and inundated areas for each test, combined with a constant abstraction for all tests [root mean squared (RMS) difference = 1.0 cm]. A second case utilized lawn‐averaged steady‐state infiltration rates, a regression estimate of inundated area based on flow‐path length, and lawn‐specific abstractions based on infiltration rate (RMS difference = 2.2 cm). In practice, infiltration rates will likely be determined using double‐ring infiltration measurements (RMS difference = 3.1 cm) or soil texture (RMS difference = 5.7 cm). A generalized form of the model is presented and used to estimate annual stormwater runoff volume reductions for Madison. Results indicate the usefulness of urban lawns as a stormwater management practice and could be used to improve urban runoff models that incorporate indirectly connected impervious areas.     

Best management practices for nutrient and sediment retention in urban stormwater runoff

Stormwater management infrastructure is utilized in urban areas to alleviate flooding caused by decreased landscape permeability from increased impervious surface cover (ISC) construction. In this study, we examined two types of stormwater detention basins, SDB-BMPs (stormwater detention basin-best management practice), and SDB-FCs (stormwater detention basin-flood control). Both are constructed to retain peak stormwater flows for flood mitigation. However, the SDB-BMPs are also designed using basin topography and wetland vegetation to provide water quality improvement (nutrient and sediment removal and retention). The objective of this study was to compare SDB (both SDB-BMP and SDB-FC) surface soil P concentrations, P saturation, and Fe chemistry with natural riparian wetlands (RWs), using sites in Fairfax County, Virginia as a model system. The SDB-BMPs had significantly greater surface soil total P (P(t)) concentrations than the RWs and SDB-FCs (831.9 +/- 32.5 kg ha(-1), 643.3 +/- 19.1 kg ha(-1), and 652.1 +/- 18.8 kg ha(-1), respectively). The soil P sorption capacities of SDB-BMPs were similar to the RWs, and were greater than those of SDB-FCs, appearing to result in greater soil P removal and retention in SDB-BMPs compared with SDB-FCs. Increased Fe concentrations and relatively greater amounts of more crystalline forms of Fe in SDB-BMP soils suggested increased sediment deposition compared with RW and SDB-FC soils. Data suggest that SDB nutrient and sediment retention is facilitated in SDB-BMPs. When stormwater management is necessary, use of SDB-BMPs instead of SDB-FCs could foster more responsible urban development and be an appropriate mitigation action for receiving aquatic ecosystems.     

Coupling PCSWMM and WASP to Evaluate Green Stormwater Infrastructure Impacts to Storm Sediment Loads in an Urban Watershed

We coupled rainfall–runoff and instream water quality models to evaluate total suspended solids (TSS) in Wissahickon Creek, a mid‐sized urban stream near Philadelphia, Pennsylvania. Using stormwater runoff and instream field data, we calibrated the model at a subdaily scale and focused on storm responses. We demonstrate that treating event mean concentrations as a calibration parameter rather than a fixed input can substantially improve model performance. Urban stormwater TSS concentrations vary widely in time and space and are difficult to represent simply. Suspended and deposited sediment pose independent stressors to stream biota and model results suggest that both currently impair stream health in Wissahickon Creek. Retrofitting existing detention basins to prioritize infiltration reduced instream TSS loads by 20%, suggesting that infiltration mitigates sediment more effectively than detention. Infiltrating stormwater from 30% of the watershed reduced instream TSS loads by 47% and cut the frequency of TSS exceeding 100 mg/L by half. Settled loads and the frequency of high TSS values were reduced by a smaller fraction than suspended loads and duration at high TSS values. A widely distributed network of infiltration‐focused projects is an effective stormwater management strategy to mitigate sediment stress. Coupling rainfall–runoff and water quality models is an important way to integrate watershed‐wide impacts and evaluate how management directly affects urban stream health.     

Understanding heavy metal and suspended solids relationships in urban stormwater using simulated rainfall

Urban stormwater from simulated rainfall on three different landuses in Queensland State, Australia (residential, industrial, commercial) was analysed for heavy metals and physico-chemical parameters such as Dissolved Organic Carbon (DOC) and Total Suspended Solids (TSS). Rainfall events were simulated using a specially designed rainfall simulator for paved surfaces. Event mean concentration samples were separated into five different particle sizes and analysed individually for eight metal elements (Zn, Fe, Cr, Cd, Cu, Al, Mn and Pb). Multivariate data analysis was carried out for the data thus generated. It was found that DOC and TSS influence the distribution of the metals in the different particle size classes. Zn was correlated with DOC at all three sites. Similarly, Pb, Fe and Al were correlated with TSS at all sites. The distribution of Cu was found to vary between the three sites, whilst Cd concentrations were too low to assess any relationships with other parameters. No correlation between Electrical Conductivity (EC), pH and heavy metals was found at the three sites. The identification of physico-chemical parameters influencing the distribution process kinetics of heavy metals in urban stormwater will significantly enhance the efficiency of urban stormwater management systems.     

Evolution and Application of Urban Watershed Management Planning

The development of Watershed Management Plans (WMPs) in urban areas aids municipalities in allocating resources, engaging the public and stakeholders, addressing water quality regulations, and mitigating issues related to stormwater runoff and flooding. In this study, 124 urban WMPs across the United States were reviewed to characterize historic approaches and identify emerging trends in watershed planning. Planning methods and tools were qualitatively evaluated, followed by statistical analyses of a subset of 63 WMPs to identify relationships between planning factors. Plans developed by a municipality or consultant were associated with more occurrences of hydrologic modeling and site‐specific recommendations, and fewer occurrences of characterizing social watershed factors, than plans authored by agencies, organizations, or universities. WMPs in the past decade exhibited greater frequency in the use of pollutant load models and spatially explicit hydrologic and hydraulic models. Project prioritization was found to increasingly focus on feasibility to implement proposed strategies. More recent plans additionally exhibited greater consideration for water quality, ecological health, and public participation. Innovation in planning methods and consideration of future watershed conditions are primary areas that were found to be deficient in the study WMPs, although analysis methods and tools continue to improve in the wake of advancing technology and data availability.     

Nutrient contribution of leaf litter in urban stormwater

This paper investigates the nutrient contribution from leaf litter in urban waterways, using data from a gross pollutant monitoring programme in a 50 ha catchment in an inner-city suburb of Melbourne, Australia. The data indicate that the potential nutrient contribution of stormwater leaf litter (greater than 5 mm) is about two orders of magnitude smaller than the typical nutrient loads in urban stormwater. The results suggest that removing leaf litter from urban waterways will do little to reduce the total stormwater nutrient load.1998 Academic Press     

Bioretention Design for Xeric Climates Based on Ecological Principles1

Abstract: Bioretention as sustainable urban stormwater management has gathered much recent attention, and implementation is expanding in mesic locations that receive more than 1,000 mm of annual precipitation. The arid southwestern United States is the fastest growing and most urbanized region in the country. Consequently, there is a need to establish design recommendations for bioretention to control stormwater from expanding urban development in this ecologically sensitive region. Therefore, we review the ecological limits and opportunities for designing bioretention in arid and semiarid regions. We incorporated USEPA Stormwater Management Model (SWMM) simulations to synthesize ecologically based design recommendations for bioretention in arid climates. From our review, an ideal bioretention garden area should be 6 to 8% of the contributing impervious drainage area (depending on region) with two layers of media, a 0.5‐m low‐nutrient topsoil layer above a 0.6‐m porous media layer that acts as temporary storage during a storm event. When planted with the suggested vegetation, this design maximizes stormwater treatment by promoting ecological treatment in the topsoil while promoting infiltration and evapotranspiration of stormwater by deep‐rooted shrubs that require no irrigation after establishment. This synthesis improves water resources management in arid and semiarid regions by introducing a sustainable bioretention design that protects local surface waters while reducing regional water demands for irrigation.     

USING A GIS FOR ESTIMATING INPUT PARAMETERS IN URBAN STORMWATER QUALITY MODELING1

ABSTRACT: Geographic Information Systems (GIS) are being used increasingly as a method of preparing, analyzing, and displaying data for watershed analysis and modeling. Although GIS technology is a powerful tool for integrating and analyzing watershed characteristics, the initial preparation of the necessary database is often a time consuming and costly endeavor. This demonstration project assesses the viability of creating a cost-effective spatial database for urban stormwater modeling from existing digital and hard-copy data sources. The GIS was used to provide input parameters to the Source Loading and Management Model (SLANM), an empirical urban stormwater quality model. Land use characteristics, drainage boundaries, and soils information were geocoded and referenced to a base data layer consisting of transportation features. GIS overlay and data manipulation capabilities were utilized to preprocess the input data for the model. Model output was analyzed through postprocessing by GIS, and results were compared to a similar recent modeling study of the same watershed. The project, undertaken for a small urban watershed located in Plymouth, Minnesota, successfully demonstrates that the use of GIS in stormwater management can allow even small communities to reap the benefits of stormwater quality modeling.