Sarah Madden June 2010 MIT-DUSP Urban Sustainability Evaluation Green Infrastructure: Stormwater Management Technical Memo What Is Stormwater Management, and How Does it Work? Urban stormwater runoff is an important contributor to water pollution; it both contaminates and physically harms aquatic environments. According to the Environmental Protection Agency (EPA), urban pollutants are the most important contributor to contamination of the nation’s waters (National Research Council 2009). Urban stormwater problems arise because urban development typically involves converting undeveloped areas to impervious, often paved, surfaces, thereby transforming surfaces that would have soaked up heavy rains into impermeable land cover that generates runoff. In natural landscapes, less than 10 percent of the rainfall volume converts to runoff; instead, rainfall and snowmelt filter slowly into the ground (EPA 2003). By contrast, in urban landscapes, roads, parking lots, rooftops, and compacted soils seal 45 percent to 90 percent of land cover, preventing the infiltration of rainwater and altering the hydrology of surrounding ecosystems (Paul and Meyer 2001; Booth, Hartley, and Jackson 2002; Kloss et al. 2006). In fact, imperviousness is used as a key indicator for measuring the impacts of urbanization, and many studies reveal negative effects on biological diversity in aquatic ecosystems at and above watershed imperviousness levels of 10 percent (Brabec, Schulte, and Richards 2002; Clar, Barfield, and O'Connor 2004; Jacob and Lopez 2009). During storm events, impervious surfaces cause runoff to rapidly flow towards receiving pipes or water bodies, all the while picking up pollutants—including sediment, metals, bacteria, nutrients, pesticides, trash, and polycyclic aromatic hydrocarbons—from the surfaces of the city. Those pollutants can either infiltrate into the ground, potentially degrading the groundwater, or flow into surface waters, depositing pollutants, sediments, and debris, while also eroding stream channels, 1 altering sediment loads, and affecting stream temperature (Paul and Meyer 2001; Roy et al. 2008). Furthermore, impervious surfaces—especially roads and parking lots—increase the risk of flooding for downstream regions by increasing water volume and decreasing travel time, resulting in rapid flood peaks (NRC 2008; Jacob and Lopez 2009). In sum, there is a direct relationship between land cover and downstream water quality, and an effective management strategy to mitigate the Urban Stream Syndrome requires addressing the cumulative impacts of urbanization, including hydrology, water quality, and habitat considerations (NRC 2008). Cities have a variety of infrastructure systems to control the flow of rainwater and runoff in the city. Many older U.S. cities use conventional combined sewer systems, which collect both sewage and stormwater runoff in the same underground pipes. In such gray infrastructure systems, Combined Sewer Overflow (CSO) events are a serious problem: during heavy rains, when the sewer system reaches capacity, excess flows are released directly into rivers or receiving water bodies. CSOs release an estimated 850 billion gallons per year of a mix of untreated sewage and stormwater, which contains microbial pathogens, viruses, and oxygen-depleting substances, in addition to normal stormwater pollutants. These releases present significant environmental and health risks (USEPA 2004). Since the mid-1990s, cities have been installing greeninfrastructure systems to address stormwater in a more distributed pattern, using landscape interventions instead of underground pipes. Green infrastructure involves taking a more environmentally sensitive approach to prevent runoff rather than treating it down the line—using green roofs, rain gardens, rain barrels, and porous pavements to filter and absorb rainwater (Spirn 1984; Hill 2007; Berghage 2009). These more natural drainage systems are of a comparable cost to underground concrete sewers, but also provide aboveground benefits and take much less time to install than gray infrastructure projects. Each of these engineered solutions or Best Management Practices (BMPs) has different performance (some are better than others at removing pollutants), variable water holding capacity, longevity, cost, climate suitability, and maintenance requirements. 2 Laws and Institutions to Regulate Stormwater The federal regulatory history of stormwater control in the U.S. dates to the 1972 Clean Water Act and the 1990 Phase I Stormwater Rule, which regulate the discharge of pollutants into water bodies (NRC 2008; Booth and Bledsoe 2009). Part of the challenge of stormwater management is that by the time the stormwater regulations were enacted, cities already had extensive water infrastructure networks and laws focused more on flood control and protecting structures than water quality. Furthermore, cities rely on land-use zoning, building codes and standards, and infrastructure standards and practices to shape the built environment, and the “overlapping and conflicting maze of codes, regulations, ordinances, and standards [have] a profound influence on the ability to implement stormwater control measures” (NRC 2008, 72). Because such regulations affect activities and material choices for land cover in the public and private realms, they also affect stormwater and efforts to mitigate its impacts. In order to effectively address pollution and water quality issues, then, local governments must coordinate the work of multiple departments, reconnecting landuse planning, regulation, and stormwater management (NRC 2008). Zoning Different approaches to zoning affect stormwater runoff in different ways, potentially influencing the amount of impervious area on a site as well as on-site stormwater management opportunities (NRC 2008). Each of the most common types of zoning—Euclidean, performance, and form-based—could be designed to encourage improved stormwater management. For example, Euclidean zoning, which segregates land uses into geographic districts and dimensional standards, could incorporate a rewardbased incentive system to encourage on-site stormwater control measures. The more flexible performance zoning could require development to meet performance standards for stormwater. Formbased zoning, which combines prescriptive and discretionary criteria and often favors shorter buildings that impede on-site stormwater management, can be re-designed to encourage small impervious footprints and preserve open space (NRC 2008). 3 Building Codes Building codes establish standards for construction, and sometimes incorporate materials standards that prevent the use of landscape-based green infrastructure (such as porous pavements) because of traditional concerns about protecting structures from water. As technical engineering expertise with green infrastructure practices improves, cities can update building codes that currently impede the adoption of innovative stormwater approaches (such as rules that specify a minimum distance between a building and an infiltration area, for example). Groups such as the American Society of Landscape Architects (ASLA) are considering how to encourage sustainable site design among the design and engineering professions. The ASLA devised a voluntary land- and water-oriented rating system for sustainable landscapes, The Sustainable Sites Initiative: Guidelines and Performance Benchmarks 2009 (Sustainable Sites Initiative 2009) as a landscape parallel to the Leadership in Energy and Environmental Design Green Building Rating System™ (LEED®) model for buildings. The system rates criteria related to the site selection, assessment and planning, design for water, design for vegetation and soils, materials selection, human health and well-being, construction, operations and maintenance, and monitoring and innovation, and outlines a precise system for sustainable landscape design. Engineering and Infrastructure Standards and Practices In the public right-of-way, engineering standards and practices define how cities address surface drainage, road construction, grading, pipe size, landscaping, and other requirements that affect stormwater. Local codes also establish requirements for stormwater drainage from private homes into the municipal drainage system, and may conflict with green approaches to reduce runoff (NRC 2008). Stabilizing dynamics such as path dependence reinforce the status quo: the many layers of uses in the modern built environment, including networks of underground infrastructure, size requirements for emergency vehicles, and years of refinement and maintenance experience tempt cities to stay the course, to the detriment of innovative stormwater management approaches. 4 Innovative Approaches to Stormwater The optimal approach to stormwater runoff would be comprehensive, addressing land-use planning and stormwater management, as well as national regulation of harmful material uses. According to the National Resource Council (NRC), In an ideal world, stormwater discharges would be regulated through direct controls on land use, strict limits on both the quantity and quality of stormwater runoff into surface waters, and rigorous monitoring of adjacent waterbodies to ensure that they are not degraded by stormwater discharges. Future land-use development would be controlled to prevent increases in stormwater discharges from predevelopment conditions, and impervious cover and volumetric restrictions would serve as a reliable proxy for stormwater loading from many of these developments. Large construction and industrial areas with significant amounts of impervious cover would face strict regulatory standards and monitoring requirements for their stormwater discharges. Products and other sources that contribute significant pollutants through stormwater—like de-icing materials, urban fertilizers and pesticides, and vehicular exhaust—would be regulated at a national level to ensure that the most environmentally benign materials are used when they are likely to end up in surface waters. (NRC 2008, 101) The task is to link water management with land-use: “We now understand, for example, that groundwater and surface water are really one resource that should be managed conjunctively, the pollutants should be managed at their source, and that we can predict, within limits, the consequences of urban development on the ecological health of urban streams,” and the connections between these systems adds technical expertise to more effectively design with nature (Baker, Shanahan, and Holway 2009, 288). Moving forward, cities must transition away from the solely gray infrastructure approach. A more sustainable frame of mind would prioritize the use of green infrastructure in a proactive way, moving away from treating infrastructure as necessary for damage control toward a broader view of the potential water quality, ecological, and social benefits of greener cities. 5 Cities’ options for innovative approaches to stormwater management initially may be constrained by the existing water infrastructure, competing land and water uses, water rights, laws, and institutions. Green infrastructure is an especially promising approach because it provides an array of environmental and social benefits to the community that are not provided by the gray infrastructure approach. The benefits from the green approach have the potential to ease some of the cost challenges cities face while also fulfilling the mandates of multiple city departments. The NRC (2008) suggests ways that cities can update their zoning, building codes, and infrastructure and engineering standards to improve stormwater management: Separate ordinances for new and infill development. Because redevelopment is more challenging than new development, and strict stormwater requirements might hinder redevelopment in the city core at the expense of undeveloped land at the fringe, separate ordinance for the two development types enable cities to align the new stormwater policy with development goals. Integrated stormwater management and growth policies. This approach combines incentives to attract high-density infill development with performance-based water-quality goals (i.e. minimizing impervious area, prioritizing swales). Unified development codes. Consolidate layers of code to surface any inefficiencies and encourage innovation. Design review incentives to speed permitting. Incentives include reduced development fees, preferential review and approval for innovative plans, reduced stormwater fees, and other incentives. Chicago’s Green Permit Program and Portland’s Green Building Program offer developers ways to save time and money by meeting environmental goals. Common Program Types Cities have adopted a variety of different approaches to stormwater. Because this memo focuses on green-infrastructure approaches, with an emphasis on the structural investment by the city, we have categorized these programs as infrastructure investment (by the city), codes and regulations (including 6 incentives and deterrents), watershed protection and restoration, and education. Table 1 summarizes the programs in the 25 project cities, and assigns an initial rating to the cities’ stormwater efforts relative to a sustainable stormwater management system. (The rating system is described in more detail in the Analysis section.) Table 1. Components of Cities’ Stormwater Programs. ***DRAFT—April 2010 – if a cell row is blank, that means I still need to investigate that place or category REGULATION CITY Austin, TX Boston, MA Boulder, CO Cambridge, MA Chatanooga, TN Chicago, IL Denver, CO Detroit, MI Houston, TX Jacksonville, FL Los Angeles, CA Milwaukee, WI Minneapolis, MN New York, NY Philadelphia, PA Pittsburgh, PA Portland, OR Salt Lake City, UT San Diego, CA San Francisco, CA Santa Monica, CA Seattle, WA Washington DC Used for Direct CSO Contr ol? Water shed Depa rtmen t or Regio nal Sewe rage Distri ct Desig n Guide lines for New Conts tructi on & Retro fits Density bonus or require ments for develo pers, incentiv es for homeo wners Y N ? Y Y N Y Y Y N Y N? Y Y Y N N ? Y N Y Y Y Y N Y? N Y N INFRASTRUCTURE Stor mwat er Utility and Fees base d on Imper vious Area Gre en Roof s Rain garde ns/Ve getat ed Swals & Land scape featur es Per me abl e Pav em ent Down spout Disco nnect ion/R ainw ater Colle ction Overall rating: 1(begin ning stages) -5 (strong, compre hensive approac h) N N Gree nway s/Wet lands /Ripa rian Prote ction/ Urba n Fores ts Y Y N Y Y Y Y Y Y N 2 1 N N N N 1 ? Y Y Y Y Y N N N 1.5 N N N N N N N N 1 Y Y N N Y N Y N Y N Y N N Y Y 1 1.5 Y N N Y Y N Y Y N Y Y N Y N N Y Y Y Y Y Y Y Y Y Y Y Y N Y Y Y Y 1 2 1.5 2 N Y N N N Y N Y N Y N Y N N N Y N N N N? propo sed N Y N Y N N N N Y Y N N Y Y Y N N Y N Y N N N? Y N 1 1 1 2 1 N Gray infras tructu re: Deep stora ge tunne ls Infrastructure Investment Infrastructure investment refers to the physical structures that cities build to manage stormwater. Historically, cities have used gray infrastructure to rapidly convey water away from the city; now, more cities are looking towards natural drainage 7 systems as a more sustainable system. In theory, green stormwater management works because the aggregate of strategically located systems detain, filter, and slowly release rainwater, thereby alleviating the rapid conveyance of polluted runoff towards sewers and, during heavy storms, water bodies. In other words, green infrastructure for stormwater involves applying principles of landscape ecology to the urban built environment (Ahern 2007). One of the problems that cities struggle with is how to design for both frequent storms with relatively light levels of rainfall, and extreme storm events, which test the capacity of the sewer system and potentially lead to CSO events or flooding. In many cities that have long deferred investment in sewer infrastructure, the prospect of installing larger sewers is an expensive and slow undertaking. By contrast, green infrastructure approaches provide above-the-ground benefits and, because the scale of construction is smaller, come on line sooner. Common green infrastructure interventions include surface infiltration practices (e.g., infiltration basins), subsurface infiltration systems (e.g., infiltration trenches), gravel wetland systems, bioretention systems, water quality swales, porous pavement systems, wet ponds, and extended dry detention ponds, all of which the EPA has evaluated for performance in particular climatic conditions (EPA 2008). Although green infrastructure approaches, as an alternative, are ideal for mitigating runoff from small, frequent storm events, they generally are not sufficient to absorb runoff from extreme storm events. Under NPDES requirements for long-term CSO mitigation plans, cities must eliminate 85 percent of CSO events. To meet this requirement, many cities are exploring hybrid approaches that mix the known engineering solutions – increasing storage capacity with pipes or tunnels – to address the extreme storm events, along with natural drainage systems to soak up runoff from routine smaller storms. Many cities are undertaking massive infrastructure projects oriented towards updating aging sewer infrastructure, and some are embracing green-infrastructure projects. On one end of the spectrum is the construction of deep tunnels and reservoirs to detain stormwater during extreme events. These systems are designed to hold excesses of stormwater runoff until the treatment facility is able to treat and release it. Such 8 projects are expensive, and typically preclude significant investment in green infrastructure systems. Cities often pair gray infrastructure investment approaches with –such as design guidelines—to influence on-site stormwater management approaches, including permeable pavements, rain barrels, green buildings, and green roofs. In other cases, notably in the wet climate of the Pacific Northwest, green infrastructure projects have been successful for managing street runoff through green street designs and infiltration planters. Such street-level projects integrate effective water management with thoughtful and beautiful designs, and many other U.S. cities are pursing innovative green street design concepts. 9 10 Regulation: Codes, Fees, and Incentives Codes and regulations that address stormwater management take a variety of forms, all aimed at influencing the behavior of cities, private developers, and individual property owners. First, many cities have created stormwater utilities, which are responsible for managing stormwater systems and levying fees against each property’s contribution of stormwater runoff to the sewer system. Many cities now calculate these fees according to the quantity of impervious area per property, because more impervious area contributes more runoff. When the fees are based on this area calculation, the distribution of costs is considered to be more fair than simply levying a fee based on the total square footage of a property, for example, and also creates an incentive for property owns to decrease the amount of impervious cover on their land. Another common approach is for cities to establish design guidelines for new development. Cities use design guidelines to require new construction to manage 100 percent of the stormwater generated from a site, for example, and might simultaneously reward the inclusion of green infrastructure elements—such as green roofs, rain gardens, or permeable pavement—with a zoning bonus or increased floor-area-ratio (FAR) allowance. Design guidelines often provide information for developers to learn about specific green infrastructure interventions and how to install them. Cities that charge stormwater fees based on impervious area have an incentive to complement those fees with information on sensitive water design. Such policies aim to affect the parcel-by-parcel decision-making of individual property owners in order to transform the city (Hill 2007). Many cities are updating their regulations to encourage innovative approaches to building and redevelopment. For example, Seattle’s revised (2009) stormwater code requires green infrastructure to be incorporated into development projects to the maximum extent feasible, while Philadelphia’s Wet Weather Source Control Program creates land-based regulations that require new development to capture the first one inch of rainfall through the landscapes. Austin’s Stormwater Treatment Program specifies design guidelines and requires stormwater BMPs for new development. Los Angeles is currently creating similar LID-oriented regulations. 11 Rain barrel and downspout disconnection programs are based on an incentive system to encourage private property owners to individually contribute to reducing stormwater flows into the sewer systems. In Philadelphia’s Rain Barrel Program, the city offered free rain barrels to resident to connect to individual gutter downspouts. Chicago also encourages homeowners to disconnect downspouts to reuse water for landscape applications, while Portland offers a $53 incentive per downspout disconnected from the combined sewer system. As of 2006, 45,000 households were participating in the program. Seattle charges stormwater fees based on the impervious area of a property; Philadelphia is launching a similar program that targets commercial users, at first, and will later scale up to include residential customers. The revenues from these stormwater utility fees then fund the utility’s operations and infrastructure projects. Watershed protection and restoration Some cities have invested in watershed protection and restoration, an approach that relies on landscape preservation for natural drainage, ecological sustainability, and aquatic health. This approach, while relevant to stormwater management and water quality, is discussed in more depth in the Landscape Ecology memo. In Pittsburgh, a watershed program led by a collaboration between the city and a non-profit group, the Nine Mile Run Watershed Association, aims to restore one of the last daylit streams in the city. The stream is currently heavily degraded by stormwater discharges. The project involves creating a wetland buffer to provide habitat and filtration, physically reversing the channelization of the stream, and taking steps to reduce the flow of runoff pollution into the waterway. Community groups commissioned a study that determined that an extensive rain barrel program would be the most effective approach to reduce runoff, and, coupled with education about restoration and longterm maintenance, the city aims to create a model for watershed stewardship. Philadelphia is also framing much of its localized stormwater management efforts in terms of watershed protection of urban streams: this conceptual shift suggests a broader scope for 12 management that locates distributed projects as contributing to the larger watershed protection goals. Education Finally, all programs involve some education component, which aims to raise awareness about particular programs or interventions in order to change individual behaviors. Education-oriented programs take several forms, the most common of which is Catch Basin Stenciling (Boston, Seattle, Houston), while Los Angeles launched a marketing campaign that advertised the city’s Environmental Monitoring and Watershed Protection divisions in bus shelter ads. Another aspect of education is monitoring, which is required under NPDES regulations. Community monitoring by citizens’ groups raises awareness. Governance Lastly, cities may make chances in governance procedures or processes to promote more effective stormwater management. Cities deserve credit for improving the integration and coherence of land-use and water-related programs to help promote holistic and sustainable water management. Cities typically cede responsibility for water management— providing drinking water, removing and treating wastewater, and managing wet weather flows—to a specialized water utility. These utilities can be a regional water and/or sewage district, multifunctional watershed district, or groundwater management district, and usually manage several, but not all, aspects of the urban water environment (Baker, Shanahan, and Holway 2009). Some utilities do house all municipal water-related functions, an arrangement that may ease the path towards promoting innovative green infrastructure programs: the Seattle Public Utilities and the Philadelphia Water Department, for example, operate combined drinking water, wastewater, and stormwater utilities, and both have undertaken ambitious greeninfrastructure projects (PWD 2009; City of Seattle 2010). Analysis: How Effective Are Cities’ Programs, and Why? More research is needed to evaluate the long-term performance of many green infrastructure interventions on their urban watersheds, and cities are essential partners to enable long13 term comparative studies (Pickett 2009). As the National Research Council (2008, 7) notes, “Although the state of knowledge has yet to reveal the mechanistic links that would allow for a full assessment of that relationship, enough is known to design systems of SCMs, on a site-scale or local watershed scale, that can substantially reduce the effects of urbanization.” Cities combine strategies in different ways, establishing a framework for water quality management at a regional level and via distributed pieces of infrastructure throughout the built environment. Our analysis seeks to evaluate spatial characteristics, such as the regional setting, historical infrastructure (to establish a baseline), and new engineering efforts, as well as policy incentives, guidelines, or penalties that affect citizens’ behaviors, and the institutional factors that make those programs sustainable. Currently, most cities efforts to adopt green infrastructure approaches to stormwater are modest. 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