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STUDY SESSION
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QUORUM
THANK YOU !
AGENDA
ORO VALLEY TOWN COUNCIL
STUDY SESSION
APRIL 12, 2000
ORO VALLEY TOWN COUNCIL CHAMBERS
11,000 N. LA CANADA DRIVE
STUDY SESSION
CALL TO ORDER — AT OR AFTER 7:00 P.M.
ROLL CALL
1. Town-wide Drainage and Stormwater Program and Fee Concept
Proposal — Discussion
2. Oro Valley Orthophotography Presentation - "A Snapshot of Today
for a Vision of Tomorrow."
ADJOURNMENT
The Town of Oro Valley complies with the Americans with Disabilities Act (ADA).
If any person with a disability needs any type of accommodation, please notify
the Oro Valley Town Clerk at 297-2591.
POSTED: 4/7/00
4:30 p.m.
LH
.1
TOWN OF ORO VALLEY
COUNCIL COMMUNICATION STUDY SESSION DATE: April 12, 2000
TO: HONORABLE MAYOR& COUNCIL
FROM: William A. Jansen, P.E., Town Engineer
SUBJECT: Review and recommendations concerning the establishment of a Stormwater
Management Utility
Summary:
Since the incorporation of the Town of Oro Valley in 1974, the Town has not had a specific
program to deal with the many issues associated with stormwater and associated flooding. The
continued growth of the Town has compounded the problems associated with stormwater. In
recognition of this issue, the Town has embarked on a town-wide drainage basin study to
establish a stormwater management program and identify steps that need to be taken to reduce
the adverse impacts of stormwater on the citizens and their property.
The Town of Oro Valley must comply with the Phase II requirements of the Federal Clean water
Act through the EPA managed National Pollution Discharge Elimination System (NPDES). This
is an un-funded federal mandate that requires the Town to establish a stormwater/pollution
management and reduction program by 2003. The NPDES program requires the Town to initiate
and/or follow the requirements of the NPDES program. The cost to implement the NPDES
program is estimated to be in excess of $200,000.00 and it will have an estimated annual
program operating cost in excess of$150,000.00 per year.
At present, the Town does not have a funding source outside of the general fund to fund the
NPDES program or any town-wide drainage improvement program. The concept of a stormwater
utility has been used by many communities throughout the United States to fund their stormwater
management program and institute their NPDES program. The Department of Public Works will
present the stormwater utility concept to the Mayor and Council for their consideration.
Attachment:
1. Preliminary Stormwater Utility Feasibility Study
It;
De , .fent Head T/`
Town Manager
TOWN OF ORO VALLEY
PRELIMINARY
STORMWATER UTILITY
FEASIBILITY STUDY
Prepared for:
The Town of Oro Valley
Public Works Department
680 W. Calle Concordia
Oro Valley, Arizona 85737
Prepared by:
IlEFULLERo O enc.
In Association with:
tr\\_.
Curtis Lueck &Associates
And
Frank Cassidy, Attorney-at-Law
March 2000
Town of Oro Valley Preliminary Stormwater Utility Feasibility Assessment
Page ii
TABLE OF CONTENTS
Page
Introduction/Overview 1
Stormwater Management 2
How much stormwater? 2
What kind of stormwater? 2
Level of Service 2
The Town Wide Drainage Study 2
NPDES Phase II Regulations 3
Requirements 3
Permitting Deadline and Approval 4
Penalties 4
Regional NPDES Programs 5
Benefits to Public 5
Costs 6
Funding 6
Funding Source Evaluation Matrix 7
Stormwater Utility 10
Legal Basis 10
Structure 10
References 12
Attachments 12
Town of Oro Valley Preliminary Stormwater Utility Feasibility Assessment
Page 1
Introduction/Overview
The Town of Oro Valley was incorporated in 1974. At that time the City was a
community of less than 2,000 people. By 1997, the Town's population had grown to over
20,000. With that increase in population has come homes and businesses that increase the
amount and quality of runoff across yards and into roads and drainageways. The Town has
historically dealt with larger flooding issues, such as flooding along the Canada del Oro Wash,
on an as-needed basis. However, local drainage concerns have gone largely unaddressed, as the
town has experienced its rapid growth during the last 25 years.
Today, there are hundreds of homes and businesses located along natural and improved
drainageways in the Town. Many of these drainageways were built before there were standards
for drainage. Many are also privately owned and not within the jurisdiction of the Town to enter
and maintain when needed. As development occurs, runoff from paved and other impervious
areas increases, causing ponds and areas of flowing water where little or none had occurred in
the past. This can create problems ranging from the nuisance category, like getting out of your
car after a rain storm in a parking lot with six inches of standing water, to real hazards to health,
such as getting ones car caught in a swiftly flowing roadway crossing and being swept off the
road. To compound the problem, decreasing stormwater quality has been identified as a
pervasive national problem by the federal government through its National Pollution Discharge
Elimination System(NPDES). The NPDES program prescribes programs and regulations that
communities in certain urban areas must meet to improve stormwater quality and reduce the
degradation of the nation's waterways.
The result of the above happenings has been the development of a system of stormwater
infrastructure that has gone largely unattended and unaccounted for in the development of the
Town. The Town has historically been unable to address the growing problems associated with
this system due to a lack of dedicated funding and manpower to deal with the system. This
condition is expected to worsen with the recent inclusion of the Town in a listing prepared by the
Environmental Protection Agency of communities required to meet the requirements of the
recent NPDES program Phase II requirements.
Town of Oro Valley Preliminary Stormwater Utility Feasibility Assessment
Page 2
Stormwater Management
What is stormwater management? Simply put, stormwater management is the program
that a community uses to insure that the storm runoff from urban areas is treated and conveyed
so as to protect the safety,property and convenience of its residents and the quality of the stream
environment that the runoff drains into. Although such a program may seem simple at first
glance,there are many aspects of providing adequate provision for stormwater that can become
complicated and costly. The following paragraphs discuss some issues for consideration.
How much stormwater?
A community needs to have a method of determining how much stormwater runoff will
occur during different types of storms. This process involves scientific and engineering
measurements and calculations by professionals trained in the field of hydrology.
What kind of stormwater?
As a community develops it may see all types of land surfaces that affect water quality
such as pavement, landscaping and even grass lawns. In addition, different commercial and
industrial land uses can generate pollutants such as oils, greases, solvents and heavy metals that
can find their way into storm drains. The community needs to consider the type of water quality
it wants to have within its streams and washes and develop technical standards and requirements
to insure that level of quality.
Level of Service
What kind of protection from stormwater does the community want? Do the residents
want protection from only the most hazardous floods that happen during the most rare of rain
storms? Or do the residents expect protection from the inconvenience of the typical summer
thunderstorm? Or is the expectation somewhere in between. Do the residents expect all
stormwater to be drained into defined washes and drainageways? Or can the residents tolerate
some drainage being run within streets and parking areas? Is an increase in the amount and
frequency of runoff acceptable? Or do the residents want regulations to limit the discharge of
runoff from new development? A good stormwater management program identifies the level of
service to be provided through control of stormwater runoff, its quantity and quality.
The Town Wide Drainage Study
Currently, the Town is attempting to answer many of the questions posed above through
a comprehensive study of the Town's drainage basins, existing drainage improvements, and
assessment of future needs. The Town has retained the services of a professional consulting firm
to perform the study.'
1 The Town Council approved a contract with Kimley-Horn Associates in March 2000. The work is expected to
take a year to complete.
Town of Oro Valley Preliminary Stormwater Utility Feasibility Assessment
Page 3
NPDES Phase II Regulations
The National Pollution Discharge Elimination System, or NPDES, program was first
developed in 1972 as the fundamental regulatory mechanism of the Clean Water Act(CWA).
The NPDES program is administered by the Environmental Protection Agency(EPA) and
requires anyone discharging from a point source (e.g., a single commercial or industrial
operation) into "waters of the United States"to obtain an NPDES permit. It is important to
understand this latter term as it is often confused with the more intuitive understanding of
flowing rivers and streams. The Clean Water Act defines"waters of the United States" as
surface waters, including streams, streambeds, rivers, lakes, reservoirs, arroyos, washes, and
other ephemeral watercourses and wetlands. The federal government has generally interpreted
this definition to include almost any ground feature that might occasionally convey runoff in
response to rainfall.
The initial focus of the NPDES program was on industrial and municipal wastewater.
However, the federal government believes that several studies have shown that pollution from
diffuse sources is now the leading cause of water quality impairment. Diffuse sources are those
that cannot be isolated at a particular location like a gas station or manufacturing plant. Such
"diffuse" sources include urban areas (such as housing and commercial developments),
agricultural areas, construction sites and mining operations among others. As a result, the 1987
amendments to the CWA added Section 402(p), which required the EPA to develop a
comprehensive phased program to regulate stormwater discharges under the NPDES program.
The program was to include provision for regulating flows from municipal storm sewer systems
such as those found in most cities and towns throughout the country used to drain streets and
neighborhoods. Such"municipal separate storm sewer systems" are referred to as MS4s by the
EPA.
The initial phase of the program developed by EPA in response to CWA Section 402(p)
was aimed at larger municipalities serving populations of 100,000 or more and was implemented
in 1990. However, as of December 1999, the second phase (Phase II) became effective. The
Phase II regulations cover municipalities serving populations of less than 100,000, which are
located within"urban" areas. The EPA defines urban areas as defined areas with populations of
50,000 or more. Thus the Phase II regulations cover the Town of Oro Valley by virtue of its
location within the Eastern Pima County urban area. The Town's storm sewer system is referred
to as a"small MS4"by the EPA.
Requirements
The NPDES Phase II regulations call for small MS4s to implement a program that will
provide the following "minimum control measures" (EPA's term):
1. Public Education and Outreach on Stormwater Impacts
2. Public Involvement and Participation
3. Monitoring and Prevention of Illicit Discharges to the Stormwater System
4. Control of Construction Site Stormwater Runoff
Town of Oro Valley Preliminary Stormwater Utility Feasibility Assessment
Page 4
5. Management of Post-Construction Stormwater Management in New Development and
Redevelopment
6. Implementation of Pollution Prevention/Good Housekeeping Practices for Municipal
Operations
Additional information regarding program requirements under each of the above
categories is provided in Appendix A of this document. In addition to developing a program that
includes the above components,the community must develop a series of measurable goals for
each of the above controls. Examples of such measurable goals include:
• Inspecting or repairing a certain number of drain inlets each year;
• Conducting street-sweeping operations a certain number of times each year;
• Surveying all municipal rights-of-ways to identify illicit discharges;
• Conducting a certain number of training classes for municipal operations each year;
• Soliciting the help of a certain number of volunteers each year to perform water quality
monitoring or education/outreach activities; or
• Reducing sediment loading.
Permitting Deadline and Approval
The deadline for small MS4s, including the Town of Oro Valley, to make application to
the EPA for their NPDES Phase II permits is December 2003. By that time, the Town must have
submitted a Notice of Intent (NOI)to be covered under the NPDES Phase II program. The NOI
must include a description of:
• The Best Management Practices (BMPs)that will be implemented. BMPs are schedules
of activities, prohibitions of practices, maintenance procedures and other management
techniques used to implement the "minimum control measures" described above;
• The measurable goals used to determine achievement of the minimum control measures;
• The month and year in which each BMP will be started and completed, or the frequency
of action if it is ongoing; and
• The person(s)responsible for implementing or coordinating the stormwater management
program.
The Town will be covered under a general NPDES permit within 48 hours of submittal of
the NOI and will be notified by mail of its permit number. If, for some reason, the NOI is not
adequate, the Town will hear from the EPA.
Penalties
NPDES Permits are federally enforceable. Violators may be subject to the enforcement
actions and penalties described in Clean Water Act sections 309(b), (c), and (g) and 505. The
cited references call for fines of up to $25,000 per day for knowing violations of the regulations,
with higher fines for repeat violations.
Town of Oro Valley Preliminary Stormwater Utility Feasibility Assessment I
Page 5
Regional NPDES Programs
The urbanized area of Pima County directly surrounding the City of Tucson, as well as
the City itself, are both required to apply for NPDES municipal stormwater discharge permits.
In order to assure that the quality of stormwater discharges from its municipal storm sewer
system is managed to the maximum extent practicable, Pima County has developed a Stormwater
Management Program that includes best management practices, public education and stormwater
monitoring. The major components of Pima County's Stormwater Management Program
include2:
Monitoring for Illicit Connections and Illegal Dumping: Pima County's storm drain system
includes roadways, pipes and constructed channels. Pima County monitors discharges from its
storm drain system both during dry weather and during storms. It is illegal to dump waste into
the storm drain system. If an inappropriate or illegal discharge is detected, the flow is traced back
to its source so that the discharge can be eliminated in the future.
Stormwater Discharges Associated with Industrial Activity: The U.S. Environmental
Protection Agency requires a select group of industrial facilities to secure NPDES stormwater
discharge permits. Pima County is developing an industrial facility database and inspection
program to assist the industrial community in achieving compliance with federal requirements.
Stormwater Discharges Associated with Construction Sites: The U.S. Environmental
Protection Agency requires all construction sites over five acres in size to secure a stormwater
discharge permit. Pima County is developing an inspection program to assist construction site
operators in achieving compliance with federal regulations.
Stormwater Assistance Program: Pima County is developing a Stormwater Assistance Program
as an extension of its existing Business Assistance Program. The Stormwater Assistance
Program will assist businesses and persons in their efforts to comply with NPDES stormwater
regulations and will educate citizens about stormwater runoff and associated concerns.
Benefits to Public
The benefits of the NPDES program include:
• Better public understanding of the stormwater system in their area and the hazards of
discharging polluted waters into it;
• Cleaner water in the Town's streets, drainageways and streams;
• Less silt and sediment deposited in roadways and drainageways;
• Development of a database on infrastructure improvement and maintenance needs; and
• Better performance of well maintained infrastructure; and
• Compliance with the NPDES Phase II regulations and avoidance of penalties.
2 From Pima County Department of Environmental Quality(PCDEQ)web site:
http://wwvv.deq.co.pima.az.us/h2oinfo/stormli2oistorm.htm
Town of Oro Valley Preliminary Stormwater Utility Feasibility Assessment I
Page 6
Costs
The costs of a stormwater management program to meet NPDES requirements are not
easily determined. However, a good deal of research has been done on the cost incurred by
communities that have already implemented NPDES stormwater programs. The following
paragraphs discuss some of the different cost components of the program.
Manpower: Staff is needed to provide public outreach, inspection, maintenance, regulatory and
administrative functions.
Capital and Equipment: On occasion NPDES compliance requires construction of
improvements to control the quantity and quality of runoff. Such improvements can include
grass lining of channels, detention ponds, stormwater filtration basins and systems. Equipment
needs can include street sweepers, water quality monitoring equipment and stations.
Maintenance &Inspection: An important part of a stormwater program is the need to inspect
and maintain the infrastructure of channels, roadways, storm drains, basins, etc. These facilities
need to be inspected and maintained on a regular basis. Inspections are also needed of private
construction projects to insure that NPDES requirements are being met.
Administration: A stormwater program requires administration just like any other regulatory
program. Permitting, inspection, maintenance and construction all need planning, coordination
and financing administration.
Public Awareness: Public awareness costs can include public meeting set ups, flyers, staff time
for meetings and production of educational materials such as videos, poster boards, etc.
The resulting costs of all these components can add up. In addition, private sector costs
are incurred to meet regulatory requirements. A July 1999 survey of communities already
administering stormwater programs indicated annual per capita costs for stormwater
management ranging from a low of $0.03 to a high of $26.00, with an average annual per capita
cost of$2.76 for those communities responding to the survey3. Utilitizing information from the
above survey,the EPA estimated a total annual per household cost of$9.16 for those
communities automatically designated to meet the requirements of the NPDES Phase II
regulations.
Funding
There are a number of different ways in which a stormwater management program can be
funded. The matrix on the following pages provides a summary of the various funding options
and their advantages and disadvantages by different evaluation criteria with comments on each
option relative to their applicability to Arizona and the Town.
3 Survey of Stormwater Phase II Communities,National Flood and Stormwater Management Agencies(NAFSMA),
July 1999
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Town of Oro Valley Preliminary Stormwater Utility Feasibility Assessment
Page 9
Based on preliminary assessment of the possible alternatives,this feasibility assessment was
focused on the development of a stormwater utility. This option was selected because of the
inherent equity of the distribution of costs to all residents of the community. The stormwater
utility concept is discussed further in the following section.
Town of Oro Valley Preliminary Stormwater Utility Feasibility Assessment
Page 10
Stormwater Utility
Many communities develop stormwater utilities to create a dedicated and reliable funding
mechanism for their stormwater management program. State enabling legislation is often
required, and local implementation ordinances will be needed as well.
The basic philosophy behind the utility fee is that "users" should pay for the stormwater
program to the extent that they contribute to the problem. The term"users," in this case, includes
property owners, particularly, property owners that have impervious surfaces on their property.
This approach is equitable because it charges a fee for the service of stormwater management
(rather than a tax) and because all property contributes to runoff.
Legal Basis
One of the first issues to address in the feasibility of the Stormwater Utility concept is
whether or not a sufficient legal basis exists for its implementation. Currently, Arizona Revised
Statutes(ARS) Title 9, Chapter 5, Part 9-521, "Definitions", defines"utility undertaking"to
include stormwater. This chapter addresses the use of municipal bonds for financing utilities
and, under Part 9-530, "Service charges;taxation and budgeting; computation," states that "the
governing body of the municipality issuing the bonds shall prescribe service charges, and shall
revise them when necessary, so that a utility undertaking for which the bonds were issued shall
always remain self supporting..." This section also states that the service charges shall generate
sufficient revenue to pay all bonds and associated expenses when due,provide for all expenses of
operation, maintenance, expansion, and replacement of facilities and to provide reasonable
reserves for such purposes.
The legal requirements for implementation of a stormwater utility will require further
research before serious development of the concept can begin.
Structure
The stormwater utility can be structured to assess costs by different land use designations
and their relative contribution to the amount and quality of runoff and the associated need for
stormwater management. Most stormwater utilities charge either a monthly or annual fee based
upon the amount of impervious area on the property.
Commonly, a necessary annual revenue base for operation of the utility is determined.
That revenue base is then divided by a number representing a rough estimate of the amount of
impervious surface being served by the estimated annual revenue base6. A base rate can then be
developed based on the $/impervious unit. This base rate can then be converted into monthly or
annual service fees for different land use categories(residential, commercial, industrial, etc.)
5 This would include amortization of up front capital costs as well as annual operation and maintenance costs.
Such an estimate could be incorporated into the ongoing Town Wide Drainage Study.
6 Such an estimate can be done by assuming certain percentages of impervious cover for different land use
categories.
Town of Oro Valley Preliminary Stormwater Utility Feasibility Assessment
Page 11
based on the number of impervious units for each land use category. The example below
illustrates the concept.
Hypothetical Example: It may be determined that a total annual revenue base of
$100,000 is needed to operate the stormwater utility. It may also be determined that the
current impervious coverage in the service area is 100,000,000 square feet. Thus the
annual base rate to operate the stormwater utility is $100,000 divided by 100,000,000
square feet or$0.001 per square foot impervious cover. It is then determined, as part of
this example, that a typical medium density residential area is 40% impervious, while
commercial developments are 80% impervious and industrial developments are 90%
impervious. As a result the following service fee rates could be developed:
Med. Residential = $0.001 x 0.40 x lot area(sq. ft.) (e.g., $8.71/year for a half acre lot)
Commercial = $0.001 x 0.80 x lot area(sq. ft.) (e.g., $34.85/year for a one acre lot)
Industrial = $0.001 x 0.90 x lot area(sq. ft.) (e.g., $39.20/year for a one acre lot)
The concept can then be extended to other land use categories based either on general
categories of impervious cover or by actual measurement of impervious cover.
Keep in mind that the above illustration is only one of many ways in which a fee
structure could be determined. However, generally speaking the rate should be based on the
degree to which property contributes to runoff and, by extension, the cost of providing
stormwater management services. Also, some stormwater utilities only charge if there is
impervious surface on the property. Others charge all landowners, however if there is no
development on the property the rate is typically lower than that charged for developed property.
Some communities are evaluating adding a water quality component to their utility fee
rate formula. This quality factor would allow communities to have user pay for not only the
quantity of stormwater that they contribute, but also the quality. Because a utility charges a user
fee, not a tax, schools and churches typically are not exempted from paying the fee. Some
stormwater utilities receive additional funding from developers' fees and permit application fees.
The manner in which the service fee is assessed is also important. The service fee can be
incorporated into an existing billing structure, such as the Town's water billing. Or the service
fee could be billed separately. The cost of implementing the billing structure should be
considered in the overall cost of the stormwater program.
Town of Oro Valley Preliminary Stormwater Utility Feasibility Assessment
Page 12
Conclusion
The Town of Oro Valley faces many challenges in maintaining and improving its existing
stormwater infrastructure. In addition,the Town will need to address the legal, institutional,
regulatory and capital requirements associated with the NPDES Phase II regulations in the years
to come. This document summarizes the issues associated with developing a stormwater
program. This document also briefly summarizes funding options for developing and
maintaining a stormwater program. Finally, this document describes the stormwater utility
approach to stormwater management in more detail. More research is needed on the legal,
aspects, costs and revenue potential of developing a stormwater utility,however,the stormwater
utility concept appears to offer the most equitable manner in which to apportion the costs of
developing, operating and maintaining a stormwater management program which is needed by
the Town and for which no dedicated funding source currently exists.
References
Survey of Local Stormwater Utilities,National Association of Flood and Stormwater
Management Agencies (NAFSMA), 1996
Survey of Stormwater Phase II Communities,National Association of Flood and Stormwater
Management Agencies (NAFSMA), July 1999
Designing and Implementing an Effective Storm Water Management Program—Storm Water
NPDES Phase II Regulations, American Public Works Association(APWA),February 2000
National Pollution Discharge Elimination System—Regulations for Revision of the Water
Pollution Control Program Addressing Storm Water Discharges; Final Rule, Report to Congress
on the Phase II Storm Water Regulations; Notice, 40 CFR Parts 9, 122, 123 and 124
Attachments
Excerpts from Designing and Implementing an Effective Storm Water Management Program—
Storm Water NPDES Phase II Regulations, American Public Works Association(APWA),
February 2000
Chapter 2
What We Required To
Do About Storm Water .
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Developing an effective storm water management program makes
sense. In addition to the practical benefits derived from storm
water management programs,federal regulations govern how you
manage storm water in your community.
This chapter addresses:
•An overview of federal policy and regulations for storm water
management;
•The objectives of Phase II regulations;
•A discussion of EPA's role in administering the Phase II
Rule, as well as the roles of state,local,and tribal
governments and permitting authorities;
•A description of NPDES storm water Phase II
requirements;
•A discussion of who is covered by the Phase II ■"'~
regulations;and
• A description of what's involved in the Phase II ='•�
permitting process.
1
Federal Storm Water Management Policy
The federal government has finalized regulations for storm water
management in smaller communities-known as the National
Pollutant Discharge Elimination System(NPDES) Phase II Rule.
This rule is designed to comply with the requirements of the Clean
Water Act and to further protect our nation's streams,rivers and
beaches from polluted storm water runoff. Phase II regulations
follow the 1990 NPDES Phase I Rule, which addressed priority
sources of pollutant runoff,including storm water pollution from
medium and large municipal separate storm sewer systems,
industrial sources,and construction sites disturbing at least five
acres.
Phase II requirements grew out of a long-standing concern on the
part of federal legislators for protecting surface water. To better
understand these regulations,you must look at the evolution of the
NPDES program.
The Clean Water Act
The Clean Water Act(CWA)is the primary federal legislation that
protects surface waters,such as lakes,rivers, and coastal areas. The
CWA stems from the federal Water Pollution Control Act(WPCA),
which was originally enacted in 1948. This legislation employed
ambient water quality standards in specifying the acceptable levels
of pollution in a state's waters. This approach-stressing tolerable
pollution rather than preventable causes of water pollution -proved
to be an ineffective means of preventing pollution. Other problems
with the WPCA included awkwardly shared federal and state
responsibility for promulgating the standards and cumbersome
enforcement procedures.
The CWA was developed in 1972 to strengthen and expand the
WPCA. The CWA took a different approach to addressing water
pollution. The amendments focused on establishing effluent
limitations on point sources,or"any discernible,confined and
discrete conveyance... from which pollutants are or may be
discharged" (EL. 92-500). Increased accountability for protecting
water quality was placed on dischargers of pollutants.The
amendments also required states and tribes to survey their waters
and determine an appropriate use for each,then set specific water
quality criteria for various pollutants to protect those uses.
Another addition to the 1972 CWA was the provision of certain
funding mechanisms to help communities meet their clean water
goals.
The 1972 CWA also introduced the National Pollutant Discharge
Elimination System (NPDES).
NPDES (Section 402)
TheNPDES program was established as the fundamental
regulatory mechanism of the CWA. The NPDES program requires
!/ anyone discharging a pollutant from a point source into the waters
2
Federal Storm Water Management Policy Timeline
1940 ..,,,;.i,.;...,: .
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Control Act originally Enacted
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i''''',/1•'::',,I.(:::);%."''.•.%•%ji:•.
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• •,),;,,),,,....,,,,,,,••••,',..,,:,,. 1972-Significant changes made to FWPCA
;%" henceforth known as the Clean Water Act
.'-;i ,.:.,,,.:,..,:ir,,_,...);,,;.•!.,: ;, 1977- Minor amendments made to the CWA
1980 . -.., ./, ..,,;:-,,,,,::,
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..: 1981 - Minor amendments made to the CWA
% % :- 1987-NPDES and nonpoint source programs established
'` " 1990-Phase I implementation
,f•-• ,. December 15, 1997-Proposed Phase II rule signed
99p /'!?:.:;:; `% by EPA Administrator
>.. October 29,1999-Final Phase II rule signed by EPA
December 8 1999-Final Phase II rule published in Federal Register
:•;.•,,...'•%;' , December 2000-NPDES-authorized states must modify
'••i''" •;' their NPDES program if no statutory change is required
`-•; December 2001 - NPDES-authorized states must modify
"•::"> ::>;.••- their NPDES program if no statutory change is required
2 000
%:,,,-...,,„.-.;27.;-:, :•:!;;.:i December 2002-Permitting authority designates small MS4s
--.'.;.•:•.;.,•..,•': 4;:,,.':;,
i:• ' sir:
'`/ ..-, .:.•j'" March 2003-Municipal industrial NPDES application due
•,,,,,;•,,,,,./..,,,,;:,,,,,...;,,• .' 4i (ISTES sources)
:!". '/"!%:v%'/iii'/.l-iJ/,r.•i:'.
••l:• • .•r i!%',..f?
,.• March 2003-regulated small MS4s and storm water
.'. • ;.• - discharges associated with other activity submit permit
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of the United States to obtain an NPDES permit. The initial focus
was on industrial and municipal wastewater. Controlling these
targeted point sources has substantially improved water quality.
However,several studies have shown that pollution from diffuse
(nonpoint)sources-such as storm water runoff from urban and
agricultural areas, construction sites,land disposal, and resource
extraction(mining)-are now the leading cause of water quality
impairment. Although storm water runoff originates from diffuse
sources,it is often discharged through separate storm sewers or
other conveyances,which are regulated under the CWA.
The 1987 amendments to the CWA,therefore,added Section 402(p),
which required the EPA to develop a comprehensive phased
program to regulate storm water discharges under the NPDES
program.This task promised to be challenging because storm water
originates from so many separate,undiscernable sources,and there
were not yet proven control techniques to mitigate storm water
pollution.
The Phase I rule was issued in November 1990. The rule addressed
storm water discharges from medium and large municipal separate
storm sewer systems(MS4s)(those serving communities with a
population of at least 100,000), as well as storm water discharges
associated with industrial activity.
The Phase II proposed rule was signed by the EPA Administrator
on December 15, 1997. Final Phase II regulations,which effect
smaller communities,were signed October 29, 1999.
NPDES permitting authorities must modify their existing NPDES
permits by December 2000,if statutory changes are not required,
or by December 2001 if statutory changes are required. Regulated
small MS4s and storm water discharges associated with other
activities need to submit their permit applications by March 2003
(or 3 years and 90 days after final regulations are issued).
Regulated small MS4 programs should be developed and
implemented by 2008,or five years after permit issuance.
Appendix G includes a copy of the Phase II Rule. Appendix H
presents a brief summary of other federal regulations that affect
storm water management.
What are the Objectives of PhaseII
Regulations?
The United States Environmental Protection Agency's(EPA's)
objectives in developing the Phase II regulations include:
• Provide a comprehensive storm water program that
designates and controls additional sources of storm water
- N discharges to protect water quality,pursuant to CWA Section
1011'-' .� 402(p)(6).
3
•
11.1
Major Differences Between Phase I and Phase II
Phase I Phase II
Who Is Covered • Large MS4s(serving a • Small MS4s(serving a
population of 250,000 or population of less than
more) 100,000 and located in
• Medium MS4s(serving a an urbanized area or
population of 100,000 to designated by the
250,000) permitting authority)
• Construction activities • Construction activities
disturbing five or more disturbing between one
acres and five acres
• Industries (specified by SIC • Industrial sources
code) designated by the
permitting authority
• ISTEA sources
(including municipally
owned/operated
industrial facilities)
Monitoring • Mandatory ongoing • NPD ES permitting
monitoring required of authorities establish
medium and large MS4s small MS4 monitoring
requirements
Application • Very specific,detailed • Streamlined application
Requirements application requirements. requirements
• Application requirements • General permits
don't lend themselves to encouraged;application
general permits requirements lend
themselves to this
approach
Program • Specific activities required • More broad—
Requirements • Municipalities must address municipalities can
commercial and industrial develop own BMPs to
dischargers in the address minimum
community control measures
• Municipalities do not
necessarily have to
address industrial
dischargers .�
•Address discharges of storm water activities not addressed by
Phase I, including:
• Construction activities disturbing less than five acres;
• "Light"industrial activities not exposed to storm
water;
• "MS4s located in urbanized areas not covered under
Phase I; and
•Municipally owned industrial facilities that were
addressed under Phase I but granted an extension
under ISTEA(Intermodal Surface Transportation
Efficiency Act).
•Facilitate and promote watershed planning as a framework
for implementing water quality programs wherever possible.
EPA aims to achieve these objectives by balancing nationwide
automatic designation and locally based designation. EPA will
designate on a nationwide basis:
•Storm water discharges from small MS4s located in urbanized
areas;and
• Construction activities that result in land disturbance equal
to or greater than one acre.
EPA believes that this designation criteria addresses the main
sources of storm water pollution causing significant degradation of
surface waters. Permitting authorities may designate additional
small MS4s,categories,or individual sources of storm water
discharges that are problematic in specific communities.
What is EPA's Role in Implementing Phase II?
EPA's role in Phase II implementation includes provision of a
flexible regulatory framework;development of tools to help the
regulated community;provision of permits; and oversight of state
programs.
Provide Flexible Regulatory Framework
EPA's approach is to provide a regulatory framework that ensures
that permits issued to municipalities include the minimum control
measures,while providing the NPDES permitting authorities with
a significant amount of flexibility so that they can be sensitive to
regional issues. Some of the ways in which Phase II allows for
flexibility include:
• Permitting authorities establish designation criteria for small
MS4s located outside of urbanized areas.
• Permitting authorities can designate other MS4s or
construction,industrial,or commercial facilities that are not
covered nationally, on a case-by-case or regional basis.
• Permitting authorities may provide waivers to MS4s and
construction activities in certain situations,such as where:
•Construction activities of between one and five acres:
(1)The value of the rainfasll erosivity factor is less
than five(5);
(2)TMDL assessment or equivelant assessment
addresses the pollutants of concern.
• Regulated small MS4s serving jurisdictions with a
population of less than 1,000:
(I) Its discharges are not contributing substantially
to pollutant loadings; and
(2) If there is a discharge of any pollutant(s)a
TMDL is already established to address the
pollutant(s)of concern.
• Regulated small MS4s with a population under
10,000 if:
(1)All water receiving discharges from the system
have been evaluated;and
(2)A TMDL or equivalent analysis has been
conducted and allocated for pollutants;and
(3) It has been determined that current and future
discharges do not have the potential to result in
exceedences of water quality standards.
•General permits are encouraged and may be issued on a
watershed basis.
•Qualifying local programs can be incorporated in NPDES
permit requirements.
•Minimum control measures may be implemented by another
governmental entity,such as a larger,neighboring
community.
• A cooperative and/or a watershed-based approach is
encouraged.
•TMDLs for single pollutant(s)os concern.
EPA expects encouraging the use of general permits for the
majority of sources to be designated under Phase II to lessen the
regulatory burden placed on the permitting authority. EPA is also
working to streamline the application/Notice of Intent(NOI) ( r
process to reduce the burden on the regulated community. -
7
Roles of the Federal Government, States, Permitting Authorities,
and Municipalities/Tribes in Implementing Phase 17 NPDES
Regulations
Federal All States NPDES Permitting Municipalities/
Government Authorities Tribes
Develop overall Comply with Comply with other All regulated MS4s must
framework of program: requirements as a regulatory requirements establish a storm water
discharger: management program
• Rule Designate sources: that meets the
• Toolbox
• State-operated • Developcriteria requirements of six
MS4s
minimum control
• Permit • Apply criteria
• State construction measures:
Encourage use of sites • Designate
• Public education
watershed approach Communicate with EPA interconnected
Provide financial sources • Public involvement/
participation
assistance: • Address public
• No a ro riated petition • Illicit discharge
PP P detection and
funds Provide waivers elimination
• Federal grant Issue permits • Construction site
programs Issue menu of controls
Implement program for appropriate BMPs in • Post-construction
non-NPDES authorized cases of general permits
controls
states,tribes,and Support local programs:
territories
• Pollution
• Provide financial prevention/good
Oversee state programs
support(to extent housekeeping for
Comply with possible) municipal operations
requirements as a • Overseero rams Comply with
discharger P g
requirements as a
• Federally-owned ' Ensure discharger,including
y municipalities have
MS4s(i.e., municipally
adequate legal d/ crated
hospitals/prisons) owned/operated
authority industrial sources
• Federal construction
projects
,"
8
develop Tool Box
EPA has made a commitment to work with the Storm Water Phase
II Urban Wet Weather Flows Advisory Committee to develop a
"tool box"to assist states,tribes,municipalities and other parties
involved in the Phase II program.This tool box will facilitate
efficient and cost-effective implementation of the regulation. EPA
developed a preliminary working tool box in 1999. The tool box
should be finalized by the time the general permit is issued and will
be updated as new information becomes available. The tool box
will include:
• Fact sheets;
• Guidance documents;
• Information clearinghouse;
•Training and outreach efforts;
•Technical research;
• Support for demonstration projects; and
• Regional workshops.
EPA worked with the Urban Water Resources Research Council of
the American Society of Civil Engineers to develop a database on
BMP effectiveness, which is available on CD-ROM and through the
Internet. For more information on this database,refer to Appendix
I.
Provide Permits
The EPA is the permitting authority for non-authorized states,
tribes and territories. EPA,therefore,has the same responsibility
as any other NPDES permitting authority-issuing permits,
designating additional sources,and taking appropriate enforcement
actions. EPA will tailor the program to the needs of the state,
tribe,or territory.
Oversee state Programs
EPA also must oversee the programs for NPDES-approved states
and tribes. EPA and the states and tribes will work together to
implement, enforce,and improve the program. EPA also will work
with states and tribes to help them modify their existing programs
where inadequacies exist. In addition, EPA reviews the continuing
planning process (CPP)periodically,to assess the accomplishments
of the program. If EPA's evaluation of a state's program deems
that the program is inadequate,EPA will work extensively with the
state to help improve the program. If the state program is not
brought into compliance,the NPDES authorization can be ® te- --
revoked.
r C-
VA%
What does the Federal Government Require
for Storm Water Management under
Phase II?
For MS4s:
The EPA requires, under the Phase II regulation,that all
owners/operators of small MS4s reduce the discharge of pollutants
from a regulated system to the "maximum extent practicable"to
protect water quality. At a minimum,jurisdictions regulated under
Phase II must:
•Specify BMPs for six minimum control measures and
implement them to the"maximum extent practicable;"
•Identify measurable goals for control measures;
•Show an implementation schedule of activities or frequency
of activities; and
•Define the entity responsible for implementation.
For Construction and Other Activities:
Construction activities that disturb one to five acres must also be
regulated under an NPDES Phase II permit. The NPDES
permitting authority may also require that other facilities and
industrial and construction activities,as well as small IYIS4s outside
urbanized areas,be designated on a case-by-case or categorical
basis.
Each of these requirements is discussed in more detail in the
subsections that follow.
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10
BMPs for Six Minimum Control Measures
Municipal storm water management programs must specify best
management practices(BMPs)for the following six minimum
control measures:
1) Public Education and Outreach on Storm Water Impacts
•A public education program must be implemented to
distribute educational materials to the community.
•The community should be made aware about the impacts of
storm water discharges to waterbodies and the steps needed
to decrease storm water pollution.
•Municipalities are encouraged to work with their state and
Phase I communities to develop an education/outreach
program more efficiently.
2) Public Involvement/Participation
•The public must be involved in developing the
municipality's storm water program by following state, tribal,
and local public notice requirements.
•All economic and ethnic groups should be included.
• Examples of public involvement/participation that should be
considered include public hearings,citizen advisory boards,
and working with citizen volunteers.
3)Illicit Discharge Detection and Elimination
•The owner or operator of a regulated small MS4 must
demonstrate awareness of their system,using maps or other
existing documents.
•They also must develop a storm sewer system map that shows
all outfalls,and the location/name of all waters of the US
that receive discharges.
•A Phase II community must effectively prohibit illicit
discharges into the separate storm sewer system.
•Appropriate enforcement procedures must be implemented.
•A Phase II community must develop and implement a plan
to detect and address illicit discharges(including illegal
dumping)to the system.
• Public employees,businesses,and the general public must be
informed of the hazards associated with illegal discharges and
improper disposal of waste.
0
• Need to specifically address categories of non-storm water �,---
discharges in 40 CFR 122.34(b)(3)(iii).
11
4) Construction Site Storm Water Runoff Control
•The owner or operator of a regulated small MS4 must
develop,implement,and enforce a program to reduce
pollutants in any storm water from construction sites of more
than one acre.
•An ordinance or other regulatory mechanism must be used to
control erosion and sediment to the maximum extent
practicable and allowable under state,tribal or local law,as
well as sanctions to ensure compliance.
•Must include procedures for site inspection and enforcement
of control measures.
•Must have procedures for input from public.
•Must address water quality impacts through site plan review
process.
•Must require construction site operators to control wastes
generated at site.
• Existing erosion and sediment control ordinances may suffice,
if approved by the NPDES permitting authority.
5) Post-Construction Storm Water Management in New
Development and Redevelopment
•Owners or operators of regulated small MS4s must develop,
implement, and enforce a program that addresses storm
water runoff from new development and redevelopment
projects that result in land disturbances of at least an acre
and that discharge to their MS4.
•Appropriate structural and non-structural BMPs must be
used.
•Controls must ensure that water quality impacts are
minimized.
•Adequate long-term operation and maintenance of BMPs
connected to a regulated MS4 must be addressed.
•The goal,at a minimum,should be to maintain pre-
development runoff conditions.
•EPA encourages the use of preventive measures,including
non-structural BMPs,which are usually thought to be more
cost-effective.
6) Pollution Prevention/Good Housekeeping for Municipal
.. ,. _ Operations
• Owners or operators of small MS4s must develop and
-1) )
implement a cost-effective operation and maintenance as well
as employee training programs with the goal of preventing or
reducingpollutant runoff from municipal operations.
12
.P P s
EPA Encourages:
•The use of maintenance activities and schedules and long-
term inspection procedures
•The use of controls for reducing or eliminating the discharge
of pollutants from roads,highways,parking lots,
maintenance and storage yards,and waste transfer stations
•Implementation of procedures for the proper disposal of
waste,such as dredge spoil,floatables,and other debris
removed via operations and maintenance activities
•New flood management projects should incorporate water
quality protection to the greatest extent possible
•Pollution prevention measures in municipal operations,such
as golf course maintenance,fleet maintenance,open space
maintenance,planning,building and oversight, and storm
water maintenance
Measurable Goals for Control Measures
The requirement of identifying measurable goals for each control
measure is unique to Phase II. Communities regulated under Phase
I were not required to devise measurable goals. Examples of
measurable goals include:
• Inspecting or repairing a certain number of drain inlets each
year;
• Conducting street-sweeping operations a certain number of
times each year;
•Surveying all municipal right-of-ways to identify illicit
discharges;
•Conducting a certain number of training classes for municipal
operations each year;
•Soliciting the help of a certain number of volunteers each
year to perform water quality monitoring or
education/outreach activities;or
• Reducing sediment loading.
Implementation Schedule of Activities or Frequency of
Activities
Regulated communities must show an implementation schedule of
activities or frequency of activities that will be done as part of the
storm water management program. An example might include the
following entries: / _
Sweep entire x miles of road in county 2 times per year �r•-
Vacuum storm drain inlets 2 times per year
13 - __
Who is Regulated Under Phase HP
Automatically Included Exceptions
Owners/operators of small municipal • Systems that serve less than
separate storm sewer systems located in 1,000 people where no
urbanized areas including military significant impacts are known,
facilities,large hospitals,prisons or other and where TMDL assessment
such MS4s operators that exist in an addresses the pollutants of
urbanized area. concern if any are identified.
• Any other system waived from
the requirements by the NPDES
permitting authority.
All construction site activities involving Requirements could be waived
clearing,grading and excavating land by NPDES permitting authority
equal to or greater than 1 acre(including based on:
projects that are comprised of several • Low predicted soil loss(erosivity
sites of less than one acre each). factor of less than 5);or
• TMDL addresses pollutant of
concern.
Municipally owned/operated industrial Industrial and other sources that
sources required to be regulated under provide a written certification of
the existing NPDES storm water "no exposure of materials and
program but exempted from immediate activities to storm water."
compliance by ISTEA.
Conditionally Included
Owners/operators of small municipal separate storm sewer systems meeting the
criteria for designation(to be established by permitting authority)
Owners/operators of any municipal separate storm sewer system contributing
substantially to the storm water pollutant loadings of a regulated,physically
interconnected municipal separate storm sewer system
Construction site activities that disturb less than 1 acre of land that are
designated by the permitting authority
15
Entity Responsible for Implementation
Regulated communities must also indicate who is responsible for
the storm water management program. There may be one
individual in one department who is responsible for the entire
program,or the responsibility may be shared among several
departments.
Many Phase II communities have a more limited resource base than
communities regulated under Phase I. Phase II communities will
also have a broad array of governing structures. Defining an
implementation entity will therefore require much thought and
perhaps some creativity.
The Phase II regulations are amenable to creative implementation
strategies,as they encourage communities to take a watershed or
cooperative approach. Communities may also be covered under a
neighboring Phase I community,or allow another entity,such as a
county,to implement certain minimum control measures or
portions of minimum control measures. The regulated entity,
however,is still responsible for complying with the requirements of
the permit.
In defining an implementation entity,you should consider the
following:
•What financial resources are already available to your
community?
•What will the cost of implementing and operating the storm
water management plan be?
•What other communities are located in the watershed?
•Who in the community has expertise in storm water
management components of a storm water management
program?
•What actions have already been taken that would qualify as
BMPs under the Phase II regulations?
•Are there neighboring communities or other communities in
the watershed that already have a storm water management
program in place?
•Are there neighboring communities that will also be subject
to proposed Phase II regulations with whom a community
can share resources?
Who Is Covered by Proposed Phase II Regulations?
Those covered by the NPDES Phase II regulations include the
federal government,tribes,states,local governments,individuals
undertakin construction activities, and industr .
g
;moi►___---�--�''
1 6
On a national basis,the following entities will be covered:
• Owners/operators of small MS4s located in urbanized areas;and
• Construction activities resulting in land disturbances equal to
or greater than one acre.
The NPDES permitting authority could, however,provide waivers
for construction activities serving less than 5 acres if certain
conditions apply,such as:
• Determination of low soil loss associated with construction
activity based on an erosivity factor less than five;and
•A TMDL assessment or equivelant analysis addresses the
pollutants of concern on the construction site.
Waivers could also be provided for small MS4s if they:
• Regulated small MS4s serving jurisdictions with a
population of less than 1,000:
(1) Its discharges are not contributing substantially
to pollutant loadings;and.
(2) If there is a discharge of any pollutant(s) of
concern.
• Regulated small MS4s with a population under
10,000 if:
(1) all water receiving discharges from the system
have been evaluated;and
(2) a TMDL or equivalent analysis has been
conducted and allocated for pollutants;and
(3)it has been determined that current and future
discharges do not have the potential to result in
exceedences of water quality standards.
In addition,the NPDES permitting authority could extend
designation to municipalities,construction sites,or
industrial/commercial sources outside of the nationwide designated
classes on a case-by-case or categorical basis. Small MS4s located
outside of an urbanized area,for example,could be included based
on watershed and water quality considerations.At a minimum,the
rule requires that the NPDES permitting authority consider for
regulation a particular subset of small MS4s located outside of
urbanized areas.
Other storm water discharges from unregulated industrial,
commercial,and residential sources could also be designated if an
NPDES permitting authority deems it necessary to protect water -4mr
quality. { rCT
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17
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There are two types of NPDES perm .irJ:r.i•v:.'
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An individual permit is a permit specifically tailored for an
individual facility based on the information contained in the
application(s). The permitting authority develops a permit for that
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application,such as type of activity,nature of discharge,receiving
water quality,etc. The permit is then issued to the facility for a
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permitting authority to be covered under a general permit.
Generally both types of NPDES permits(individual and general)
are obtained by application to the EPA or to the appropriate state
agency. The owner or operator of a regulated small MS4 would be
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required to identify and submit to the NPDES permitting
authority the following information:
•The BMPs that will be implemented;
•The measurable goals for the minimum control measures;
•The month and year in which each BMP will be started and
completed,or the frequency of action if it is ongoing;and
•The persons}responsible for implementing or coordinating
the storm water management program.
This information could be submitted Niof Intent(NOH if
the community wishes to apply unittederin aa generaotlce permit, or on an
individual application if the community or facility seeks an
individual permit. If a community wants to propose other controls
within its permit rather than the Six Minimum Control Measures,
the rule provides an alternative application process.
EPA is not specifying NOI requirements for operators of
construction sites of less than five acres applying for coverage
under a general permit. While EPA recognizes the benefit of NOIs
which allow for better outreach and dissemination of
informationfederal regulators are sensitive to the burden being
placed on the—re gulated community and on the NPDES regulators.
Therefore,it is up to the NPDES permitting authority to
determine whether it will require NOI submission for construction :�
sites disturbing less than five acres. (r
1
19
1
The application form is reviewed by the permit writer who then
prepares a draft permit. Once the draft is ready,it is sent to the
applicant and published in order to notify the general public of the
proposed permitting activity. The permit writer then accepts
comments on the draft permit from all interested persons.
Revisions are then made based on comments received,and the
permis is issued final.
What Do Regulated Communities Have to
Do On an Ongoing Basis?
Under the Phase II rule,regulated communities must conduct
periodic evaluations and assessments of their storm water
management practices,maintain records, and prepare required
reports.
Evaluation and Record Reporting
Assessment Keeping Requirements Requirements
Requirements
• Evaluate program • Keep records required by • Submit annual reports to the
compliance the NPDES permitting permitting authority for the 1st
• Evaluate the authority for at least permit term.
appropriateness of three years. • In subsequent terms,submit
identified BMPs • Submit the records when reports in years two and four,or
• Evaluate progress toward requested by the more frequently as required
achieving measurable permitting authority. • Reports should include:
goals. • Make your records and • Status of permit condition
The NPDES permitting stormwater management compliance
authority may determine plan accessible to the • Appropriateness of
monitoring requirements public during regular identified BMPs
appropriate to your working ours. • Progress toward achieving
watershed. EPA encourages • A reasonable copying measurable goals for each
participation in a group fee may be charged. measure
monitoring project. • Advance notice of up • Results of data collected and
to two days for analyzed during the
copying may be reporting period
requested.
• A summary of the activities
that will take place during
the next reporting period
• Any changes in measurable
-- op, goals
20
TOWN OF ORO VALLEY
COUNCIL COMMUNICATION
MEETING DATE: April 12, 2000
TO: HONORABLE MAYOR & COUNCIL
FROM: Brent Sinclair, AICP, Community Development Director
SUBJECT: "Snapshot of Today for a Vision of Tomorrow"
SUMMARY:
Our Planning and Zoning staff will provide a full audio and visualresentation o
p four world as seen through the
eyes of Orthophotography. What is it? Why is it important to us now and in the future?
In 1998 PAG contracted with local jurisdictions to obtain high qualityorthophotos g p os covering 578 miles of
urbanized area in Pima County. Orthophotos are high resolution images of the surface ce of the earth and provide
extensive data in photographic (hard copy) form and digital form. Such data are useful for
numerous studies
including: land use, transportation, recreation and open space, topographic, h drolo
p Mhydrology, vegetation, air quality,
etc. In fact, this data is useful in just about every aspect of our daily routine. It is the essential ingredient for
building a successful geographic information system (GIS).
Using orthophotos as a base map, staff will provide a demonstration showinghow information nmatron is layered to
form a GIS. We will also discuss the importance of obtaining and maintaining accurate data once a GIS has
been established.
c&'
Community Development Director
'd. //II
Town Manage