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8.2. SR 07-02-2012
REQUEST FOR ACTION TO ITEM NUMBER Ma or and Ci Council 8.2 AGENDA SECTION MEETING DATE PREPARED BY General Business ul 2, 2012 ustin Femrite, Ci En ~ eer ITEM DESCRIPTION REVIEWED B)/ Storm Water Utility Fee Rebecca Haug, Environmental Administrator REVIEWED BY Cal Portner, Ci Administrator ACTION REQUESTED Approve the findings of the Storm Water Utility Feasibility Study and authorize staff to proceed with the steps detailed for implementation of a Storm Water Utility Fee. BACKGROUND/DISCUSSION As directed at the November 14, 2011, City Council meeting, staff worked with a consultant, Stantec, on the preparation of a Feasibility Study that studied the current and future funding of the city's Storm Water Program. The Feasibility Study is attached for your review. Representatives from Stantec will present the findings of the study. The Feasibility Study details the expected shortcomings of the existing Storm Water Utility (formerly Surface Water Management) budget and funding options. The study recommends the creation of a Storm Water Utility Fee to fund the ongoing and increasing costs associated with the utility. If the action requested is approved, staff would proceed with the following steps to implement the fee: 1. Finalize a Storm Water Utility Fee Ordinance for adoption by the City Council. This step would include holding a public hearing on the proposed ordinance. 2. Finalize the details and procedures to bill and collect the user fee revenues. FINANCIAL IMPACT Currently, the city funds the Storm Water Utility with an annual $50,000 tax levy. If the Council decides to move forward with the Storm Water Utility Fee, beginning in 2013, revenue for the utility will come from the fees collected instead of the tax levy. If the Council decides not to move forward with the Storm Water Utility Fee, the estimated tax levy contribution needed to fund the utility in 2013 will need to be increased to $635,514. ATTACHMENTS ^ Storm Water Utility Feasibility Study aow[~tlt e,~ Action Motion by Second by Vote FOllow Up Pp1lE8Ef #Y i V ~ ~,. c~r~ ~ EI. River - Storm Water Utility Feasi bi I ity Study City of Elk River, MN June 2012 Project Number 193802143 ,lam Stantec City of Elk River Project No: 193802143 Storm Wafer Utility ,~~,~,.~ Stantec Consulting Services Inc. (~h~~ ~ 2335 Highway 36 West St. Paul MN 55113 Tel: (651) 636-4600 Fax: (651) 636-1311 Stantec June 25, 2012 Mr. Justin Femrite, City Engineer City of Elk River 13065 Orono Parkway NW Elk River, MN 55330 Re: Storm Water Utility Stantec File No. #193802143 Dear Justin: Transmitted herewith is our Feasibility Study in regards to funding solutions for the Storm Water Utility for the City of Elk River. The study explains the draft MS4 Permit, the Storm Water Utility budget, purpose of a Storm Water Utility Fee, the benefits, implementation, and recommendations. Respectfully, STANTEC CONSULTING SERVICES INC. ~~ Stan Hanson Senior Project Manager Stanfiec CITY OF ELK RIVER -STORM WATER UTILITY Table of Contents 1.0 EXECUTIVE SUMMARY ....................................................................................................1.1 2.0 INTRODUCTION ................................................................................................................2.2 2.1 STORM WATER REGULATIONS ......................................................................................2.2 2.2 STORM WATER RUNOFF .................................................................................................2.2 2.3 STORM WATER CONVEYANCE SYSTEM .......................................................................2.3 2.4 EXISTING STORM WATER UTILITY .................................................................................2.3 3.0 STORM WATER UTILITY ..................................................................................................3.5 3.1 PROPOSED STORM WATER UTILITY BUDGET WITH CURRENT MS4 REGULATIONS ........................................................................................................................................ .... 3.5 3.2 TABLE 1 -STORM WATER UTILITY ESTIMATED BUDGET (EXISTING PERMIT)..... ....3.6 3.3 NEW MS4 REQUIREMENTS ......................................................................................... ....3.7 3.4 PROPOSED STORM WATER UTILITY BUDGET WITH NEW MS4 REGULATIONS (GENERAL FUND REVENUE) ....................................................................................... ....3.8 3.5 TABLE 2 -STORM WATER UTILITY ESTIMATED BUDGET (NEW PERMIT) ............. ....3.9 3.6 PURPOSE OF A STORM WATER UTILITY ................................................................... ..3.10 3.7 TABLE 3 - 2012 MCSC STORM WATER UTILITY FEES .............................................. ..3.11 4.0 PROPOSED STORM WATER UTILITY FEES ................................................................4.12 4.1 HOW THEY ARE CALCULATED .....................................................................................4.12 4.2 PROPOSED STORM WATER UTILITY BUDGET WITH STORMWATER UTILITY FEE REVENUE .........................................................................................................................4.13 4.3 TABLE 4 -STORM WATER UTILITY ESTIMATED BUDGET (NEW PERMIT WITH STORM WATER UTILITY FEES) ...................................................................................................4.14 4.4 REQUIREMENTS TO IMPLEMENT .................................................................................4.15 5.0 RECOMMENDATIONS ....................................................................................................5.16 6.0 CONCLUSIONS ...............................................................................................................6.17 TABLES Table 1: Storm Water Utility Estimated Budget (Existing Permit) Table 2: Storm Water Utility Estimated Budget (New Permit) Table 3: 2012 MCSC Storm Water Utility Fees Table 4: Storm Water Utility Estimated Budget (New Permit with Storm Water Utility Fees) APPENDICES Appendix A -Task List -New and Revised Items Based On the MS4 Draft Permit Appendix B -Storm Water Utility Ordinance Appendix C -Definitions and Abbreviations Une Te~am.lnfinite S©~utions. Project No. 193802143 Stanfiec CITY OF ELK RIVER -STORM WATER UTILITY Executive Summary June 25, 2012 1.0 Executive Summary The Minnesota Pollution Control Agency (MPCA) requires the City of Elk River to comply with State and Federal National Pollutant Discharge Elimination System (NPDES) Program rules and regulations. The City is also designated as a Municipal Separate Storm Sewer System (MS4), which requires the City to obtain a permit to discharge stormwater to lakes, rivers and wetlands. The purpose of these regulations is to improve water quality by reducing pollutants in storm water discharges. The MPCA periodically reviews the MS4 regulations and will be increasing the MS4 requirements due to the number of impaired rivers and lakes in the State. The City currently finances their storm water utility through general tax revenue. The City dedicates $50,000 from general property tax revenues toward meeting the state storm water regulation. The City's current staffing level and storm water utility budget will not be able to meet the new requirements of the newly revised MS4 permit. As a result of the expected increased regulatory costs for maintaining the stormwater utility, the City Council authorized staff to look into the implementation of a storm water utility fee to meet the new regulations and provide a fair and equitable funding solution. This report presents the rationale and steps to guide the creation of the Elk River Storm Water Utility fee to offset expenses due to the increased stormwater regulations. A storm water utility fee is generally considered a more equitable mechanism for a funding storm water utility because the charge is based upon the amount of runoff generated from a property. Storm water utility fees are also collected from tax exempt properties like churches, schools, and government -all of whom use the municipal storm water system. The storm water utility fee is not associated in any way with property value, property taxes, or the owner's income. It is based on the amount of impervious surface and the size of the property. A "Residential Equivalency Factor" (REF) is the basic unit for the fee structures. One REF represents the runoff volume generated by a typical single family residence. The storm water utility assigns REF's for non-single family residential property based on property size and percentage of impervious surface. This report recommends implementing a $3 per REF per month fee structure to offset the expenditures needed to comply with the new MS4 requirements. The proposed fee will raise approximately $650,000 per year in additional revenue for the Storm Water Utility budget to meet the requirements of the permit and maintain the City's stormwater infrastructure. Maintaining the status quo of sources and amount for funding the Storm Water Utility budget will create a bottom line deficit in 2013. Une Te~am.lnfinite S©~utians. Project No. 193802143 1 . 1 Stanfiec CITY OF ELK RIVER -STORM WATER UTILITY Introduction June 25, 2012 2.0 Introduction 2.1 STORM WATER REGULATIONS The Federal Clean Water Act (CWA) mandates states to develop water quality standards and establish a comprehensive storm water management program to regulate storm water runoff. The Minnesota Pollution Control Agency administers the CWA locally and is charged with the establishment of a Municipal Separate Storm Sewer System (MS4) general permit. The MS4 permitting program gives municipality's approval to discharge stormwater to lakes, rivers, and wetlands. The City of Elk River was designated an MS4 in 2003. The MS4 permit requires the City of Elk River to create a stormwater Pollution Prevention Program (SWPPP) which contains six components. These components are 1) Public education and outreach, 2) Public participation, 3) Illicit discharge detection and elimination, 4) Construction site runoff controls, 5) Post-construction runoff controls, and 6) Pollution prevention and municipal good housekeeping measures. Each year, the City is required to complete tasks under each of the SWPPP components and hold a public meeting. The MPCA reviews the MS4 permit regulations. The permit runs on a 5-year cycle. A draft MS4 permit containing an increased level of regulatory requirements is currently out for public review and is proposed to be adopted by September, 2012. The new regulations continued in the revised MS4 permit, are unfunded Federal and State mandate that will cause additional expense for the City. The MPCA has taken a stronger stance on water quality regulations over the years due to numerous lakes, rivers and trout streams throughout the state. The state of Minnesota is heavily dependent on recreational tourism and clean lakes and rivers are a major consideration when implementing higher water quality standards. 2.2 STORM WATER RUNOFF stormwater runoff occurs when the water from rainfall and snowmelt exceeds the capacity of the ground to infiltrate it. stormwater travels overland, through streets and gutters, into storm sewers or conveyance channels, and eventually to receiving waters (ponds, rivers, lakes, and wetlands). As the stormwater travels, it picks up sediment and pollutants and carries it along to the receiving waters. The amount of runoff is a function of the impervious surfaces in the watershed. The greater the amount of impervious surfaces, the greater the runoff. Urban development tends to increase the percentage of impervious surfaces. This in turn increases the rate, volume, and velocity of stormwater runoff, as well as the amount of pollutants picked up by the runoff. Urban storm water runoff may contain high levels of contaminants, such as sediment, suspended solids, nutrients, heavy metals, pathogens, toxins, Project No. 193802143 2.2 Stanfiec CITY OF ELK RIVER -STORM WATER UTILITY Introduction June 25, 2012 oxygen-demanding substances, polycyclic aromatic hydrocarbons (PAHs) and floatable solid wastes. The increase in these pollutants to the rivers and lakes has caused an increase in the number of impaired waters in the state. Impaired waters as defined by the MPCA are waters that do not meet the water quality standards for one or more water quality parameters; thus, they are defined as "impaired". The Mississippi River, Elk River and Upper and Lower Lake Orono are listed by the MPCA as impaired waters within the City of Elk River. Due to the impaired status of these waters the MPCA will be requiring a Total Maximum Daily Load (TMDL) protocols be established. A TMDL is a process and formula that determines the maximum amount of a specific pollutant that can be discharged to a waterbody and still meet water quality standards. Since the City of Elk River resides within drainage areas of impaired water, the City will be required to meet water quality standards set by the TMDL. 2.3 STORM WATER CONVEYANCE SYSTEM The MPCA requires the City of Elk River to obtain a Municipal Separate Storm Sewer System (MS4) general permit. The MS4 general permit gives the City permission to discharge storm water to lakes, rivers and wetlands. The MPCA defines the municipal separate storm sewer system as a conveyance or system of conveyances including roads with drainage systems, municipal streets, catch basins, curbs, gutters, ditches, man-made channels or storm drains that are owned by the City that discharges stormwater into waters of the state. The City is required through the MS4 permit to properly manage the stormwater discharges and reduce the pollutants that enter the public conveyance system. The principal conveyance systems in Elk River are the streets, catch basins, curb, gutters and the storm pipe. The City is required to maintain these items but also to enforce that the waters that enter the public conveyance system are meeting the MPCA's water quality requirements. 2.4 EXISTING STORM WATER UTILITY The City of Elk River has developed and managed a storm water program to comply with the MS4 regulations since 2003. The City has designated $50,000 each year from the general property tax revenues to finance the storm water program. Funding also comes through impact fees charged to developers. This funding has allowed the City to comply with the minimum storm water requirements set forth by current State and Federal regulations. Each city within the MS4 program is required to file an annual report to the MPCA that summarizes actions the City has taken to comply with the MS4 permit and achieve measurable goals for each minimum control measure. These measures include Public Education, Public Participation, Illicit Discharge Detection and Elimination, Construction Site Runoff Control, Post- construction Runoff Control, and Pollution Prevention/Good Housekeeping. Project No. 193802143 2.3 Stanfiec CITY OF ELK RIVER -STORM WATER UTILITY Introduction June 25, 2012 The City has been able to use various means of communication to comply with the Public Education requirement. The City uses utility bill inserts, the cable access channel, and the City's website to provide information on storm water education to residents. Working with Sherburne Soil & Water Conservation District (SWCD), each year the City presents environmental-themed messages along with storm water education to elementary school students. The City also continues to partner with the SWCD and the Lake Orono Improvement Association on various storm water-related projects. Each year, a public hearing is held to allow for public comments on the program, in which City staff indicates how the City has met each of the minimum control measures. The City has established ordinances or regulatory mechanisms that deal with reducing pollutants entering the City's storm sewer system. These mechanisms address illicit discharge, construction site runoff, and post-construction storm water management for new development and redevelopment. Through each of these, the City is required to document field inspections, violations, and enforcement actions taken. Good housekeeping is required through the MS4 permit by inspecting outfalls to receiving waters and sedimentation basins/ponds. The City meets the requirement for an MS4 by inspecting at least 20% of its outfalls and ponds each year and providing any necessary maintenance as required. Mapping the City's storm sewer system is required. The City has begun to map all the sediment basins and storm sewer pipes throughout the City but has not fully completed this activity due to limited staff time and budget constraints. Project No. 193802143 2.4 Stanfiec CITY OF ELK RIVER -STORM WATER UTILITY STORM WATER UTILITY June 25, 2012 3.0 STORM WATER UTILITY 3.1 PROPOSED STORM WATER UTILITY BUDGET WITH CURRENT MS4 REGULATIONS The City staff has developed an estimated budget for the storm water utility based on no changes to the current MS4 regulations. The proposed budget is shown in Table 1. The expenditures are very similar to items that the City has budgeted for in recent years. There are mandatory items that the City must budget for that are required by the current MS4 permit. Twenty percent of all sediment ponds must be inspected on an annual basis. The ponds are designed to retain storm water runoff and to capture pollutants and sediment. There are approximately 110 sediment ponds in the City of Elk River. The City has not removed any of the sediment in the ponds, and this is an item that the City will need to budget for in the coming years. The MPCA requires testing of sediment for copper, arsenic and polycyclic aromatic hydrocarbons (PAHs), both carcinogenic and non-carcinogenic within the sediment prior to excavation. Excavation of 3,000 cubic yards or greater of sediment requires a MPCA permit review. If the sediment contamination exceeds MPCA requirements the sediment must be removed and disposed of at a permitted landfill. It can be very expensive to remove and dispose of the sediment in accordance with MPCA regulations. An average pond is 1 acre in size. Excavation of 2 feet of sediment would generate over 3,000 cubic yards of material. Removal and disposal of the sediment per MPCA requirements would have an average cost over $150,000. The City has budgeted $75,000 starting in 2013 with an annual increase of $25,000 each year. Lake Orono is listed as impaired water by the MPCA. One of the activities that are scheduled in the next five years is to dredge the lake and remove excess sediment accumulation that typically contains phosphorus and other contaminants. The staff has budgeted $800,000 for this expenditure. The City is also budgeting $5,000 starting in 2013 and providing this amount every other year for taking depth measurements on the amount of sediment buildup in Lake Orono. Maintaining the status quo of sources for funding the Storm Water Utility budget, general property taxes and impact fees, will create a bottom line deficit in 2014. 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The revised rules will put addition requirements and strain on the Storm Water Utility budget to comply with the minimum control measures. Below are a few of the proposed revisions that will be included in the MS4 rules. The City will be required to develop and implement a program to address Total Maximum Daily Loads (TMDLs) with applicable Waste Load Allocation (WLA) requirements. This means implementing programs and projects to reduce pollutant loadings to selected impaired waters. The City will be required to update mapping of all storm pipes 12 inches or greater in diameter, including storm water flow direction in those pipes. Outfalls to receiving waters (a total of 556 in Elk River) will need to be assigned a unique identification number with an associated geographic coordinate. This task alone will put undue strain on staff time and may need to be contract work. At least three high priority storm water-related issues will need to be emphasized for education and outreach, such as TMDL targets, changing business practices, promoting adoption of residential Best Management Practices (BMPs), or lake improvements through lake associations. The City will be required to develop and implement aPost-Construction Storm Water Management program that requires the use of any BMPs with highest preference given to green infrastructure techniques and practices such as infiltration, evapotranspiration, reuse/harvesting, conservation design, urban forestry, and green roofs. The City will need to enforce no net increase from pre-project conditions for storm water runoff volumes, total suspended solids (TSS), and total phosphorus (TP) on new development projects. Redevelopment projects will be required to show a net reduction for these same parameters. The City will be required to develop a pond assessment schedule and procedures. The assessment process will need to include schedules and procedures for determining the TSS and TP treatment effectiveness for all City-owned ponds. The City will be required to determine the watershed area, percentage of impervious cover, permanent storage volume, and temporary water quality storage volume for each City-owned pond (a total of 110). The above requirements are just a short sampling of the new requirements in the draft MS4 permit. A more complete list of requirements based on the draft MS4 permit is shown in ©ne Team.lnfinote Sa~utions. Project No. 193802143 3.7 Stanfiec CITY OF ELK RIVER -STORM WATER UTILITY STORM WATER UTILITY June 25, 2012 Appendix A. The City's current staffing levels and storm water utility budget will not be able meet the new requirements of the MS4 permit. 3.4 PROPOSED STORM WATER UTILITY BUDGET WITH NEW MS4 REGULATIONS (GENERAL FUND REVENUE) The City staff has developed an estimated budget for a Storm Water Utility based on the proposed changes to the MS4 regulations. The proposed budget with status quo funding is shown in Table 2. There are numerous expenditures that have been added to meet the new requirements that are projected to be in effect in September 2012. Sediment pond management will need to have significant increases in funding through the Storm Water Utility Plan. Mapping and data collection is proposed to have a budget of $55,000 in 2013, with an annual budget of $5,000 each year thereafter. Hydrologic Surface Water Modeling will be a new requirement that is being budgeted at $285,000 in 2014 with an annual budget of $10,000 annually. To comply with the stormwater requirements in redevelopment, staff is proposing a budget of $200,000 in 2013 and $200,000 every other year thereafter. Due to the impaired waters status of the Mississippi River and Lake Orono, staff is budgeting for testing in 2013 and then having significant increases over the next four years. These expenditures will be used to comply with the new TMDL requirements for the Mississippi River and Lake Orono. The proposed budget shown in Table 2 would require significant increases in the general fund contribution to fund the utility. As another option staff is proposing a storm water utility fee be considered to cover the expenses of this utility. The staff is proposing a Storm Water Utility Fee that would generate $650,000 the first year and then be increased in 2014. 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C m v N O ~ o ~ z ,~°C ~ ~,,+ a` Stanfiec CITY OF ELK RIVER -STORM WATER UTILITY STORM WATER UTILITY June 25, 2012 3.6 PURPOSE OF A STORM WATER UTILITY A storm water utility is generally considered a more equitable mechanism for funding storm water improvement projects because the charge is based upon the amount of runoff generated from a property. Thus the area of impervious surface coincides to the volume of storm water generated from a property. The larger the property's buildings and parking lots therefore increased volume of storm water resulting in increased cost to provide water quality treatment. Municipalities create storm water utilities so that dedicated funds are available to operate, maintain, manage, construct or reconstruct their municipal storm water drainage systems. A storm water utility fee is a dedicated revenue source intended to alleviate the burden on general funds. Essentially, the storm water utility fee is identical to a water or sanitary sewer utility fee, in which the utility's users finance the utility's infrastructure costs. The storm water utility fee is not associated in any way with property value, property taxes, or the owner's income. Storm water utility fees are also applied to tax exempt properties like churches, schools, and government -all of whom use the municipal storm water system. Storm water utility fees have been a popular avenue for many cities throughout Minnesota to offset the increased costs that come with storm water regulations. Table 3 shows various cities similar in size to or in the vicinity of Elk River that have storm water utility fees in place. The majority of these cities has had this fee in place for the last several years and generate from $270,000 to $3,000,000 in revenue per year. This information is from a 2012 survey conducted by the Minnesota Cities Storm Water Coalition (MCSC). Seventy-six Cities' that completed the survey have implemented a storm water utility fee. The maximum monthly storm water utility fee that is currently being implemented is the City of Bloomington at $15.78 per residential property per month. Fifty-six cities responding to the survey have a monthly fee greater than $3 per month. ©ne Team.lnfinote Sa~utions. Project No. 193802143 3.10 Stanfiec CITY OF ELK RIVER -STORM WATER UTILITY STORM WATER UTILITY June 25, 2012 3.7 TABLE 3 - 2012 MCSC STORM WATER UTILITY FEES City 2012 Total Revenue Monthly Residential Fee Annual Residential Fee 1 Alexandria $525,000 $3.00 $36.00 2 Andover $360,000 $2.57 $30.80 3 Arden Hills $550,000 $3.40 $40.76 4 Bemidji $1,000,000 $6.44 $77.28 5 Blaine $875,000 $1.75 $21.00 6 Buffalo $393,000 $5.00 $60.00 7 Grand Ra ids $500,000 $5.35 $64.20 8 Champlin $325,000 $2.50 $52.00 9 Chaska $580,000 $4.50 $54.00 10 Clo uet $350,000 $4.00 $48.00 11 Coon Rapids $1,400,000 $3.47 $41.60 12 Mankato $1,200,000 $3.00 $36.00 13 Fergus Falls $400,000 $5.00 $60.00 14 Golden Valley $2,228,920 $7.33 $88.00 15 Grand Rapids $500,000 $5.35 $64.20 16 Hutchinson $615,250 $2.93 $35.16 17 Ma lewood $2,014,130 $6.28 $75.36 18 Moorhead $2,190,045 $10.21 $122.52 19 North Branch $270,000 $4.90 $58.80 20 Plymouth $3,000,000 $5.00 $52.00 21 Ramsey $620,000 $3.18 $38.20 22 Roseville $1,910,000 $11.15 $133.80 23 Shorewood $216,000 $5.04 $60.48 24 St. Cloud $800,000 $2.10 $25.20 25 St. Louis Park $2,044,655 $5.17 $62.00 Average $994,680 $5 $57 Project No. 193802143 3.11 Stanfiec CITY OF ELK RIVER -STORM WATER UTILITY Proposed Storm Water Utility Fees June 25, 2012 4.0 Proposed Storm Water Utility Fees 4.1 HOW THEY ARE CALCULATED Storm water utility fees are based on the user's share of the costs for the utility. This is the most equitable and practical means of financing these ongoing operations. Conceptually, users pay a storm water utility fee in proportion to the amount of storm water runoff generated by their property during a defined design storm. A storm water utility fee is charged to all "users" within the city based on the amount of runoff that each property generates. The runoff generated relates directly to the amount of hard surface, or impervious area, found on the property. Hard surfaces such as rooftops, driveways, and parking lots prevent rainfall from infiltrating into the ground, thus increasing the amount of runoff that a property generates. Consequently, a property with more impervious area uses the system to a greater extent than a property with less hard surface. The amount of impervious surface was used to determine the fee structure. The general land use classification and current parcel coverage within the City of Elk River were used for the generation of this SWU. A typical residential lot defines the SWU fee structure's basic unit, the "Residential Equivalency Factor" (REF). This typical residential lot is not representative of any particular residential lot and is used only as a means to calculate the REFs. The typical residential lot for one (1) REF is noted below: • Average Residential Lot Size = 0.35 acres • Average Impervious Area = 21% or 3,231 SF The REFs are divided between two property types noted below: • Residential = 1 REF • Commercial/Industrial/Apartments/Other =Impervious Area/3,231 SF Residential property, regardless of size, and agricultural property that includes a single family/twin home are assigned 1 REF. For other land uses, the REF value is based on the comparative amount of runoff generated by calculated actual impervious areas to the amount generated by the typical residential lot. Project No. 193802143 4.12 Stanfiec CITY OF ELK RIVER -STORM WATER UTILITY Proposed Storm Water Utility Fees June 25, 2012 A spreadsheet has been developed which identifies the property types and REF per parcel. Summarized below is the number of REFs per parcel at the time of this report. It's expected the total number of REFs will continue to change over time based on further review and as additional development occurs. Residential 7,347 REFs Commercial/Industrial/Other 10,826 REFs Total 18,173 REFs 4.2 PROPOSED STORM WATER UTILITY BUDGET WITH STORMWATER UTILITY FEE REVENUE The budget identified for the storm water utility is approximately $650,000/year. Therefore, the approximate rate/REF is $36/year as noted below. Estimated Budget = $650,000 Total REFs = 18,173 REFs Rate/REF/Year = $36 ($650,000/18,173 REFs) Table 4 shows the storm water utility budget with a storm water utility fee implemented to generate additional funding. 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A Storm Water Utility Ordinance establishes the user fee system as the principal funding mechanism for the City's storm water management program. A DRAFT Storm Water Utility Ordinance is included in Appendix B. The DRAFT Storm Water Utility Ordinance includes the following topics noted below: • Methodology for computing the storm water utility fees for each existing land use category • Storm water utility billing process for parcels being billed for sewer/water billings and parcels being billed for storm water utility but not being billed for sewer/water billings • Non-payment penalties and process for collecting unpaid fees • Storm water utility fee appeals process ©ne Team.lnfinote Sa~utions. Project No. 193802143 4.15 Stanfiec CITY OF ELK RIVER -STORM WATER UTILITY Recommendations June 25, 2012 5.0 Recommendations The following recommended actions necessary to proceed with the implementation and integration of the storm water utility fee are as follows: A. Adoption of a Storm Water Utility Ordinance (Appendix B). B. Establish procedures to bill and collect the user fee revenues. C. Integration of the new storm water funding mechanism into the existing City systems. The recommended actions necessary to maintain the storm water utility are: 1. Add new parcels to the system as development projects are closed out. 2. Review and update these existing land use designations as necessary as development proceeds. 3. Annually review the charge rate. 4. Annually update the Surface Water Management budget and annual cost to be funded by the SWU. 5. Periodically review the billing list. Project No. 193802143 5.16 Stanfiec CITY OF ELK RIVER -STORM WATER UTILITY Conclusions June 25, 2012 6.0 Conclusions The City of Elk River currently does not have the staffing levels or the funding mechanism in place to meet the requirements of the new MS4 regulations. The new MS4 regulations are a State and Federal unfunded mandate that the City will be required to meet. A storm water utility fee is a fair and equitable means that many Cities have implemented to comply with the increased cost due to the MS4 permit. Based on the MS4 requirements a fee of $3 per month per Residential Equivalency Unit (REU) is recommended. Project No. 193802143 6.17 Stanfiec CITY OF ELK RIVER -STORM WATER UTILITY Appendix A June 25, 2012 Appendix A New and Revised Items Based on the MS4 Draft Permit Source: Minnesota Cities Storm Water Coalition June 12, 2012 ©ne Team.lnfinote Sa~utions. 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Project No. 193802143 6.25 Stantec CITY OF ELK RIVER -STORM WATER UTILITY Appendix B June 25, 2012 ORDINANCE NO. XXXA AN ORDINANCE TO AMEND CHAPTER 11 OF THE CITY CODE, RELATED TO UTILITIES AND THE ESTABLISHMENT OF STORMWATER UTILITY CHARGES THE CITY COUNCIL OF THE CITY OF ELK RIVER HEREBY ORDAINS AS FOLLOWS: Section 11.10: Stormwater Utility Charges 11.10.01. Stormwater Utility and Authority. There is hereby established a public utility to be known as the Stormwater Utility for the City of Elk River. The Stormwater Utility shall be operated as a public utility pursuant to City Code and Minnesota Statutes, Section 444.075. 11.10.02. Purpose. The purpose of this ordinance is to provide a funding mechanism for the following services: A. The administration, planning, analysis, installation, operation, maintenance and replacement of public drainage systems. B. The administration, planning, implementation, construction, and maintenance of stormwater Best Management Practices (BMPs) to reduce the introduction of sediment and other pollutants into local water resources. C. Other education, engineering, inspection, monitoring, testing and enforcement activities as necessary to maintain compliance with local, State and Federal stormwater requirements. D. Activities necessary to maintain compliance with the National Pollutant Discharge Elimination System (NPDES) Municipal Separate Storm Sewer Systems (MS4) Permit requirements established by the Minnesota Pollution Control Agency, including preparation, implementation and management of a Stormwater Pollution Prevention Plan (SWPPP) to address the following control measures: 1) Public education and outreach on storm water impacts. 2) Public involvement/participation. 3) Illicit discharge detection and elimination. 4) Construction site stormwater runoff control. 5) Post-construction runoff control in new development and redevelopment. 6) Pollution prevention for municipal operations. Project No. 193802143 6.26 Stantec CITY OF ELK RIVER -STORM WATER UTILITY Appendix B June 25, 2012 11.10.03. Definitions Subd. 1. Residential Equivalency Factor, referred to herein as "REF", is defined as the average impervious area of residential property per dwelling unit located within the city. A typical 0.35 acre single-family residential parcel with 21% impervious shall represent the basic unit of the stormwater utility's charge structure. Subd. 2. REF Rate is defined as a utility fee applied to each REF or 3,231 square feet of impervious surface as established by resolution of the Elk River City Council as provided herein. Subd. 3. Residential is defined as the land use classification of parcels with one (1), or two (2) living unit. Subd. 4. Nonresidential Property is defined as any developed property that is not classified as residential by the definitions given above. Property that has a mixture of residential and nonresidential uses shall be considered nonresidential. This would include but not limited to Commercial, Industrial, and Apartments. Subd. 5. Impervious Area is defined as areas on a property that prevent or impede the infiltration of stormwater into the soil at the same rate as natural or pre-developed conditions. Common impervious areas may include, but are not limited to, rooftops, sidewalks, walkways, patio areas, driveways, parking lots, storage areas, compacted gravel or soil surfaces, and any other surface that prevents or impedes the natural infiltration of stormwater runoff. Subd. 6. Developed Land is defined as property altered from a natural State by construction or installation of more than five hundred square feet of impervious surfaces as defined in this Section. Subd. 7. stormwater Drainage System or System is defined as the existing constructed and natural stormwater drainage facilities and channels of the City and all improvements thereto which are the property and responsibility of the Utility, to be operated by the Utility to, among other things, conserve water, control discharges necessitated by rainfall events, incorporate methods to collect, convey, store, absorb, inhibit, treat, use or reuse water to prevent or reduce flooding, over-drainage, environmental degradation and water pollution or otherwise affect the quality and quantity of discharge from such system. 11.10.04. Rates and Charges Subd. 1. Minimum or Maximum Fees. The City Council may establish minimum or maximum monthly fees per property. Subd. 2. Estimated Charges. If, for any reason, precise information related to the use, development or impervious area of a premise is not available; then stormwater Utility Charges for such premise shall be estimated, and billed, based upon information then available to the City. Project No. 193802143 6.27 Stantec CITY OF ELK RIVER -STORM WATER UTILITY Appendix B June 25, 2012 Subd. 3. Standardized Charges. The following rules shall apply for the purpose of simplifying and equalizing charges: A. Atypical surface area of 0.35 acres containing 21% impervious (i.e. 3,231 sq. ft. of impervious surface) shall be used as the single-family residential equivalency factor. B. Parcels subject to these standardized charges shall not be eligible for adjustments (credits) to charges or adjustments to impervious area as set forth elsewhere herein. Subd. 4. Exceptions. The following land uses are exempt from the Stormwater Utility Fees established herein: A. Public Street right-of-way. B. Gravel Pits. C. Properties with an approved Industrial permit as regulated by the MPCA Subd. 5. Establishing Rates. Each developed property shall pay a rate of three dollars ($3) per REF. The REF Rate so established shall be on file with the City Administrator/Clerk and shall be used to compute the stormwater charges for a given property based on the following formulas for each land use designation: Residential Charge = ($3) x (1 REF) Nonresidential Property Charge = (IMPERVIUS SURFACE AREA)/(3,231 sq. ft.) x ($3) 11.10.05. Stormwater Fee Adjustments. Stormwater Utility fees may be adjusted under the conditions Stated below. It shall be the responsibility of the property owner to provide justification for the fee adjustment. Subd. 1. Appeals Process. Any person liable for the payment of stormwater utility fees on a property may, appeal to the City Engineer for a utility fee adjustment if the person believes the utility fee to be incorrect. The request for adjustment shall be made in writing and shall State, in detail, the grounds upon which relief is sought. The Engineer may require the applicant to submit, at applicant's expense, supplemental information including, but not limited to, survey data certified by a registered land surveyor and engineering reports certified by a registered professional engineer. The director may grant an adjustment if it is found that: A. A substantial error was made in the calculation of the impervious area on a nonresidential property. B. The land use designation used to calculate the stormwater fee is inaccurate Acceptance and denials of appeals for adjustment shall be made in writing by the Engineer. No adjustment shall be made retroactively, except for initial appeals filed within one year of the effective date of this ordinance. Any person denied an adjustment by the Engineer may appeal the denial to the City Council by filing written notice of appeal with the city clerk within 30 days of receipt of the Director's Project No. 193802143 V.2U Stantec CITY OF ELK RIVER -STORM WATER UTILITY Appendix B June 25, 2012 decision. The City Council shall hear the appeal and affirm, modify or reverse the decision of the Director, applying the standards for granting adjustments set forth in this Section. 11.10.06. Collections and Penalties Subd. 1. Billing Schedule. The City shall render invoices for stormwater fees monthly, quarterly or semi-annually as the City Council shall determine suitable and necessary. Charges shall be payable to the City and may be rendered in conjunction with other utility billings. Subd. 2. Accounts in Name of Owner and/or Occupant. All accounts shall be carried in the name of the owner of the premises connected to the water and sewer services, and/or the occupant of the premises, if the owner is not directly paying for the services. Where the term "user" appears in this Code in reference to the payment for stormwater fees, the term shall include the owner and the occupant of the premises. Subd. 3. Required Information. The owner, occupant or person in charge of any premises shall furnish the City with such information as may reasonably be required relating to services provided by the City system. Willful failure to provide the information, willful falsification of the information, or willful failure to comply with any requirement or order issued pursuant to this Section shall constitute a violation of this Section. Subd. 4. Minimum Fee. The minimum stormwater utility fee that shall be billed by the City for all developed properties within the City of Elk River shall be one Residential Equivalency Factor. Subd. 5. Penalty for Late Payment. All charges for stormwater fees and miscellaneous service shall be due on the date specified by the City for the respective account. Penalty for past due bills shall be 5% of the total bill, except, no penalty shall be charged on past due sales tax. Subd. 6. Delinquent Accounts. All charges for stormwater utility fees shall be due on the date specified by the City for the respective amount and shall be delinquent twenty (20) days thereafter. The City shall endeavor to collect delinquent accounts promptly. When satisfactory arrangements for payment have not been made, delinquent accounts shall be certified to the City Administrator who shall prepare an assessment roll each year providing for assessment of the delinquent amounts against the respective properties served. The assessment roll shall be delivered to the Council for adoption on or before November 30th of each year for certification to the County Auditor for collection along with taxes. Such action shall be optional and may be subsequent to taking legal action to collect delinquent accounts. If the delinquent customer shall be a tenant who has vacated the property or an owner who no longer has an ownership interest because of mortgage foreclosure, cancellation of contract for deed or for any other reason, collection of the delinquent account shall, at the option of the City Administrator, be either through a collection agency or legal proceedings in accordance with the City's Collection Policy. Project No. 193802143 6.29 Stantec CITY OF ELK RIVER -STORM WATER UTILITY Appendix B June 25, 2012 Subd. 7. Liability for Payment of Services. The owner of developed property, and the occupant thereof, shall be jointly and severally liable to pay for the service to the premises and the service shall be furnished to the premises by the City only upon the condition that the owner and occupant of the premises shall be jointly and severally liable to the City for the charges. The owner of rental property agrees, as a condition of receiving service, to be personally liable for stormwater utility fees charged to the tenants, lessees, or other occupants. A claim for unpaid charges which have been billed to the occupant of the premises or the user of the service may be recovered against the owner or occupant in a civil action in any court of competent jurisdiction or in the discretion of the City Administrator may be certified to the County Auditor to be collected with taxes against the premises so served or reported to a collection agency. Money paid to the County Auditor on the account shall belong to the City and shall be remitted to the City Administrator by the County Auditor in the manner provided by law for the payment of other money belonging to the City. Project No. 193802143 6.30 Stantec CITY OF ELK RIVER -STORM WATER UTILITY Appendix B June 25, 2012 Subd. 8. Disposition of Revenues. All revenues derived from charges imposed under this Section shall be respectively credited to the City Surface Water Management Fund, unless otherwise designated by City Council resolution. Passed this day of , 2012. CITY OF ELK RIVER By Mayor ATTEST: City Administrator Published this day of , 2012. Project No. 193802143 6.31 Stanfiec CITY OF ELK RIVER -STORM WATER UTILITY Appendix C June 25, 2012 Appendix C Definitions and Abbreviations Source: MS4 Draft Permit ©ne Team.lnfinote Sa~utions. Project No. 193802143 6.32 Stantec CITY OF ELK RIVER -STORM WATER UTILITY Appendix C June 25, 2012 "Best Management Practices" or `BMPs" means practices to prevent or reduce the pollution of the waters of the state, including schedules of activities, prohibitions of practices, and other management practices, an also includes treatment requirements, operating procedures and practices to control plant site runoff, spillage or leaks, sludge, or waste disposal or drainage from raw material storage. (Minn. R. 7001.1020, subp.5.) "Green Infrastructure" means a wide array of practices at multiple scales that manage wet weather and that maintains and restores natural hydrology by infiltrating, evapotranspiring, and harvesting and using stormwater. ON a regional scale, green infrastn~cture is the preservation and restoration of natural landscape features, such as forests, floodplains and wetlands, coupled with policies such as infill and redevelopment that reduce overall imperviousness in watershed. On the local scale, green infrastnicture consists of site and neighborhood-specific practices, such as bioretention, trees, green roofs, permeable pavements and cisterns. "Illicit Discharge" means any discharge to a municipal separate storm sewer that is not composed entirely of storm water except discharges pursuant to NPDES permit (other than the NPDES permit for discharge from the municipal separate storm sewer) and discharge resulting from firefighting activities (40 CFR 122.26 (b)(2)) "Impaired Water" mean waters identified as impaired by the Agency, and approved by the USEPA, pursuant to section 303(d) of the Clean Water Act (33.U.S.C. 303(d)). "Maximum Extent Practicable" or "MEP" means the statutory standard (33 U.S>C> 1342 (p)(3)(B)(iii)) that establishes the level of pollutant reduction that an Owner or Operator of Regulated MS4s much achieve. The USEPA has intentionally not provided a precise definition of MEP to allow maximum flexibility in MS4 permitting. The pollutant reductions that represent MEP may be different for each small MS4, given the unique local hydrologic and geologic concerls that may exist and the differing possible pollutant control strategies. Therefore, each permittee will determine appropriate BMPs to satisfy each of the six Minimum Control Measures (MCMs) through and evaluative process. The USEPA envisions application of the MEP standard as an iterative process. "Municipal separate storm sewer system" or "MS4" means a conveyance or system of conveyances including roads with drainage systems, municipal streets, catch basins, curbs, gutters, ditches, man-made channels, or storm drains: Owned or operated by a state, city ,town, county, district, association, or other public body, created by or pursuant to state law, having jurisdiction over disposal of sewage, industrial wastes, stormwater, or other wastes, ulcludulg special districts under state law such as a sewer district, flood control district, or drainage district or sunilar entity, or an Indian tribe or an authorized Indian tribe organization, or a designated and approved management Agency under Project No. 193802143 6.33 Stantec CITY OF ELK RIVER -STORM WATER UTILITY Appendix C June 25, 2012 section 208 of the federal Clea~l Water Act, Uiuted States Code, title 33, section 1288, that discharges alto waters of the state; b. "New Development' means all construction activity that is not defined as redevelopment. "Outfall" means the point source where a municipal separate storm sewer system discharges to receiving water, or the stormwater discharge permanently leaves the permittee's MS4. It does not include diffuse runoff or conveyances which connect segments of the same stream or water systems (e.g., when a conveyance temporarily leaves and MS4 at a road crossing). "Pipe" meaas a closed manmade conveyance device used to transport stormwater from location to location. The definition of pipe does not include foundation drain pipes, irrigation pipes, land drain the pipes, and road sub-grade drain pipes. "Receiving Water" means any lake, river, stream or wetland that receives stormwater dishcarges from an MS4. "Redevelopment' means any construction activity where, prior to the start of construction, the areas to be disturbed has 15 percent of more of impervious surface(s). "Reduce" means reduce to Maximum Extent Practicable (MEP) unless otherwise defined in the context in which it is used. "Stormwater" means stormwater nuloff, snow melt runoff, and surface nuloff and drainage. (Minn. R. 7090.0080, subp.l2.) "Stormwater Pollution Prevention Program" or "SWPPP" means a comprehensive program developed by the permittee to manage and reduce the discharge of pollutants in stormwater to and from the small MS4. "Total Maximum Daily Load" or "TMDL" means the sum of the individual Waste Load Allocations for point sources and load allocations for nonpoint sources and load allocations for nonpoint sources and natural background, as more fully defined in 40 CFR & 130.2, paragraph (i). A TMDL sets and allcoateds the maximum amount of pollutant that may be introduced into a water of the state and still assure attaimnent and maintenance of water quality standards. (Minn. R. 7052.0010. subp. 42) "Waste Load Allocation" or "WLA" means the portion of a receiving water's loading capacity that is allocated to one of its existing or future point sources of pollution, as more dully defined in Code of Federal Regulations, title 40, section 130.2, paragraph (h). hl the absence of a TMDL approved by USEPA under CFR 130.7, or an assessment and remediation plan developed and approved according to part 7052.0200, subpart 2, item C, a WLA is the allocation for an individual point source that ensures that the level of water quality to be achieved by the Project No. 193802143 6.34 Stantec CITY OF ELK RIVER -STORM WATER UTILITY Appendix C June 25, 2012 point source is derived from and complies with all applicable water quality standards and criteria. (Minn.R. 7052.0010 subp. 45) "Water Quality Standards" means those provisions contained in Minn. R. 7050 and 7052. "Waters of the State" means all streams, lakes, ponds, marshes, watercourses, waterways, wells, springs, reservoirs, aquifers, irrigation systems, drainage systems and all other bodies or accumulations of water, surface or underground ,natural or artificial, public or private, which are contained within, flow through, or border upon the state of any portion thereof. (Minn. State. 115.01 subd. 22.) "Wetlands" are those areas that are inundated or saturated by surface water or groundwater at a frequency and duration sufficient to support, and that under normal circumstances do support, a prevalence of vegetation typically adapted for life in saturated soil conditions. Wetlands generally include swamps, marshes, bogs, and similar areas. Constructed wetlands designed for wastewater treatment are not waters of the state. Wetlands must have the following attributes: 1. A predonvnance of hydric soils; 2. Inundated or saturated by surface water or groundwater at a frequency and duration sufficient to support a prevalence of hydrophytic vegetation typically adapted for life itl a saturated soil condition; and 3. Under normal circumstance support a prevalence of such vegetation. (Minn. R. 7050.0186. subp. laB.). ABBREVIATIONS AND ACRONYMS • BMP - Best Management Practice • CFR -Code of Federal Regulations • CWA -Clean Water Act or the Federal Water Pollution Control Act, 33 U.S.C. 1251 et seq • DNR -Department of Natural Resources • IDDE -Illicit Discharge Detection and Elitnitlation • MEP - Ma~lium Extent Practicable • MS4 -Municipal Separate Storm Sewer System • NPDES -National Pollutant Discharge Elitliitiation System • SDS -State Disposal System • SOP -Standard Operatitlg Procedure • TMDL- Total Ma~llum Daily Load • TSS -Total Suspended Solids Project No. 193802143 6.35 Stantec CITY OF ELK RIVER -STORM WATER UTILITY Appendix C June 25, 2012 • USEPA -United States Enviromnental Protection Agency WLA -Waste Load Allocation Project No. 193802143 6.36 7-z ~z v. 2 ,~ ~c ~` ~I ~~ L ^ , ~ W _ ~--+ . ~ ~ ~ w I..L I1 ~ w ~--+ ~ ~, ~ ~ N ~ ~ 4- ~ ~ ON . ~ ~ ~ C CV ~ ~ ~ ~ U cn ~ cn U ^~ ^~ W U c~ a~ a~ N ^L' W a--r .~ .~ ~--+ .~ ^L, ^W I..L c~ 0 ._ ~a .. ~--i ^~ ~W/ L.L ^L` W a--+ U ~ ~C ~ G L ~~ 0 a. 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