Matthew Steenhoek Natural Resources Planning: UAP 5414 December 8th, 2011 Professor: Shelly Mastran

Urban Low Impact Development: Municipal Programs, Techniques, and Incentives in Chicago, IL and Portland, OR

Urban stormwater runoff and pollution is a complex and multifaceted problem. For many years, the default solution to the non-point runoff involved heavily engineered systems that focused on channelizing the water and transporting it through a series of pipes, cisterns, and trenches to ultimately outfall in a receiving waterbody. These outfalls carried pollution from the roadway, degraded the natural environment, and, in many cases, can caused environmental health hazards through the discharge of raw sewage into a waterbody. Often these stormwater management (SWM) techniques also involved making significant engineering modifications to the receiving waterbody to help fortify and channelize the flow. These techniques were reasonably good at moving water but did little to cleanse the water and often contributed to significant downstream damage caused by erosion and flooding. By relying on pipes, vaults, and other engineering solutions, the SWM techniques contributed to an increasingly denaturalized watershed and environment. Low Impact Development (LID) techniques are a collection of SWM measures that are designed to treat stormwater in a more natural way or to find creative and sustainable ways in which to use the stormwater as a resource instead of as a liability

and a waste product. These are highly localized systems that work with the existing environment to treat and manage the stormwater close to its source (U.S. Environmental Protection Agency, 2011). LID techniques can include such methods as permeable paving, green roofs, rain gardens, bioretention facilities, and water reuse. By treating the stormwater in an environmentally sustainable and sensitive way which promotes more natural movements and treatment of stormwater, LID techniques can help to restore or maintain the natural hydrology of an area. Highly urbanized areas are particularly sensitive to the challenge of non-point discharge SWM pollution. Throughout the country, urban municipalities with particularly demanding stormwater management problems and constraints have embraced and promoted various LID techniques. These designs and concepts work to solve issues related to both stormwater quality and quantity, including the reduction and elimination of Combined Sewer Overflows (CSOs). These LID techniques are implemented through a variety of methods including municipal construction, regulatory updates, homeowner incentives, and grants. LID measures and programs will be highlighted from Chicago, IL, and Portland, OR. These selected programs, while not exhaustive, illustrate various approaches municipalities employ to manage non-point source runoff in a balanced and ecologically beneficial manner. Additionally, these programs illustrate different ways to incentivize private homeowners, businesses, and developers to contribute to the greater SWM solution.

Chicago, Illinois: Green Alleys Having more than 1,900 miles of public alleys, more than any other city in the world, creates a unique stormwater challenge for Chicago. These alleys equate to approximately 3,500 acres of publicly owned, maintained, and controlled paved impermeable surfaces in addition to the formal road network (Attarin, 2010). To tackle this challenge, then-Mayor Richard M. Daley started the Chicago Green Alleys (CGA) program as a pilot in 2006. This was part of Daleys plan to make Chicago the greenest, most environmentally friendly city in the nation" (Water Environment Resource Center, 2009). CGA focuses on the utilization of a number of environmentally friendly and sustainable alley reconstruction projects across the city. These measures include LID techniques as well as other green design elements intended to reduce heat island effect, incorporate recycled materials, and minimize light pollution. In addition to completing municipal alley reconstruction, the CGA program works to promote best management practices (BMPs) for private landowners and homeowners. As of 2010, more than 100 green alleys have been installed in the City of Chicago (City of Chicago, 2011). The primary LID techniques that are incorporated in the CGA program are the inclusion of permeable paving and the use of open bottom catch basins. The permeable paving can include asphalt, concrete, or pavers that are specifically designed to allow stormwater to filter through the paving media and percolate into the soil. This helps to prevent the stormwater from collecting on the surface of the ground and causing flooding. Many of Chicagos alleys were built without a connection to the combined sewer and stormwater system; and, because of this, flooding is often an

issue. Mitigating the flood risk through the use of the LID techniques is a more cost effective and sustainable method than installing expensive connections to the combined sewer system (Attarin, 2010). As part of the CGA program, the Chicago Department of Transportation created The Chicago Green Alley Handbook to serve as an action guide to create a greener, environmentally sustainable Chicago (Attarin, 2010). In addition to defining the various green alley techniques mentioned above, and demonstrating four Pilot Approaches in which these techniques can be implemented, the handbook identifies 11 BMPs that homeowners may consider implementing. Of these, eight BMPs are directly or tangentially related to LID -- including planting a tree, utilizing native landscaping, creating a rain garden, installing a rain barrel, using permeable pavement, constructing a green roof, optimizing for naturalized detention, and incorporating vegetative swales. The other non-SWM related items include recycling, composting, and energy efficient/dark sky lighting. All new and reconstructed alleys in Chicago must follow CGA standards, but Chicago does not have a direct incentive program that is designed to entice private property owners to implement the 11 BMPs that the CGA handbook identifies. However, Chicago does have a robust incentive program through the City of Chicago Sustainable Development Program. This program provides opportunities for a wide variety of project sizes and types to have access to a number of assistance programs, both financial and non-financial, including Tax Increment Financing, Empowerment Zone Grants, and planning variances. This assistance is based on the projects projects achievement of LEED Certification, percentage of green roof installation, building

energy efficiency levels, and the exceeding of stormwater management requirements (City of Chicago, 2011). Further, Chicago has implemented a Floor Area Ratio (FAR) incentive program that is granted to projects with public amenities. The applicable public amenities list includes green roofs. The bonus FAR is calculated by the following computation: Bonus FAR = (Area of roof landscaping in excess of 50 percent of net roof area Lot area) x 0.30 x Base FAR (Water Environmental Resource Foundation, 2009). The ability to create value through increased development capacity is coveted by private developers. By linking this opportunity for value creation to an LID technique, the City of Chicago has created an incentive structure that results in increased green roof area at no direct cost to the city or tax payers. Through its various incentive programs and its decision to lead by example, Chicago is embracing LID techniques as a method of managing urban stormwater and is making the city a greener and healthier place in the meantime.

Portland, Oregon: Grey to Green Initiatives Since the early 1990s, Portland, OR, has been developing a sustainable approach to stormwater management. The impetus for adopting these techniques was the need to comply with the National Pollutant Discharge Elimination System (NPDES) Municipal Separate Storm Sewer System (MS4) permit that was issued by the state to address water quality. In the years following, Portlands Bureau of Environmental Services (BES) took a holistic look at the policies, procedures, and practices already in operation which met the goals of the permit and highlighted areas where regulatory

requirements and practices could be enhanced to better meet the requirements. BES further cross-collaborated with other city departments to identify BMPs and look for potential synergies (Water Environment Research Foundation, 2009). Portland has continued to refine and expand their sustainability program and policies, particularly in the arena of urban stormwater management, when in 2008 they launched the Grey to Green Initiative (GGI). GGI works to expand current LID techniques towards the goal of mimicking natural stormwater systems, improving the health of the watershed, and providing restoration to natural areas (Portland Bureau of Environmental Services, 2011). Portlands policies and programs include a focus on rainwater harvesting, watershed stewardship grants, utility discount programs, green roof incentives, and a green streets development program. In order to supporting and encouraging rainwater harvesting programs in residential and commercial applications, Portlands Bureau of Development Services has produced codified guidelines that provide details on how to design, build, and permit a rainwater harvesting system. Because unfiltered rainwater is considered nonpotable or unsafe to drink, all harvesting systems that use rainwater indoors require permits and must be designed to ensure that rainwater stays separate from potable water for uses such as flushing toilets. Outdoor applications, such as rain barrels, may be utilized without permit approval for irrigating lawns, washing cars, and watering plants (Bureau of Planning and Sustainability, Portland, Oregon, 2011). By helping to reduce the barriers to entry and making the permitting requirements more accessible to the common citizen, Portland is encouraging the adoption of these stormwater management techniques by private residents. Finding beneficial reuse of the

stormwater is a major component of treating stormwater as a resource--not a liability-and is a key LID technique. Another program that has been implemented to engage Portlanders in managing urban stormwater and protecting the health of the watershed is the Community Watershed Stewardship Program (CWSP). CWSP is a partnership between BES and Portland State University which provides funding and stewardship for community projects that help to enhance watershed health. These projects can include the

planting of native plants and trees, restoration of riparian and upland habitat, and stream enhancement. By connecting local groups and organizations with their watershed, the CWSP program helps to restore landscapes that can process stormwater in a natural manner and builds a constituency that is more cognizant of the negative effects that unmanaged or improperly managed urban stormwater systems can have on the watershed. Since the implementation of CWSP in 1995, more than $885,000 has been granted to 192 projects; and the funds were matched with approximately $3.1 million by community support in time, services, and materials (Portland Bureau of Environmental Services, 2011). Since 1977, Portland has been charging a separate stormwater utility fee to help pay for the rising costs associated with managing its urban stormwater runoff. As of 2000, the Portland City Council has adopted a stormwater discount program known as the Clean River Rewards program (CRR) that allows for property owners to receive up to a 100% discount for on-site stormwater management charges on their property. These discount rates are calculated based on the volume of stormwater managed on-

site and include partial credits based on tree coverage and minimizing impervious areas (Portland Bureau of Environmental Services, 2011). While property owners can be fully exempted from the on-site stormwater management charges through CRR, there are no discounts available for the off-site stormwater management charges, which account for 65% of the total stormwater charge. Applied to all bills, this charge covers costs for maintaining stormwater facilities, keeping the streets clear of flooding, and programs that keep stormwater pollutants from entering the watershed (Portland Bureau of Environmental Services, 2011). CRR provides a direct financial incentive for property owners to invest in LID solutions which reduce or eliminate stormwater runoff from private property into the public sewer system. Direct financial incentives can be an effective tool for encouraging voluntary participation from the private sector. Further, Portland offers residents the opportunity to contribute $1, $3, or $5 per billing period to help public schools maintain stormwater facilities through the GreenBucks program. This donation is added directly to each sewer service bill and provides an easy way for Portlanders to philanthropically contribute to the health of the larger watershed and support the local school system with a very low financial threshold to entry (Portland Bureau of Environmental Services, 2011). Yet another program that Portland has implemented to help encourage the management of stormwater by private property owners is in the Ecoroof Incentives Program (EIP). Ecoroofs are often referred to as green roofs in normal sustainable construction and development parlance. EIP provides direct incentives of up to $5 per square foot for the installation of an ecoroof project. Projects submitted submitting to

EIP are evaluated based on cost of the ecoroof, size of the ecoroof, ratio of ecoroof to total roof area, project visibility, project sustainability, project innovation, and completeness/accuracy of application. Such criteria encourage those submitting projects to think holistically about their sustainability and stormwater management approaches in addition to innovative and visible solutions. Additionally, BES has added a diversity/equity criteria to the selection process. This additional element takes into account the inclusion of minority-owned and/or women-owned businesses in the project, the inclusion of apprenticeship and educational components in the project, or the placement of an ecoroof on a building that provides housing for communities of color, disabled, seniors, economically disadvantaged, or environmentally disadvantaged (Portland Bureau of Environmental Services, 2011). One other notable component of EIP is the inclusion of a Central City FAR bonus in CHAPTER 33.510: Central City Plan District of the Portlands Planning and Zoning regulations. Under these provisions, buildings can receive FAR bonuses based on ecoroof coverage in relation to the building footprint. Buildings in the Central City area with ecoroof coverage of 10-30%, 30-60%, and 60%+ are granted one, two, and three square feet of additional floor area per square foot of ecoroof, respectively. This program is designed to encourage high coverage ecoroofs and provides a great incentive for private sector developers to participate in a meaningful way at no cost (aside from program administration) to the city of Portland. Finally, Portland has, through their Green Streets (GS) program, become a national leader and innovator in the design of LID in public and private roadway

facilities. The GS program and projects are sustainable stormwater approach and strategy that meet regulatory requirements to manage stormwater, reduce stormwater flows, enhance watershed health, and improve water quality (Portland Bureau of Environmental Services, 2011). Even before April 2007, when the Portland City Council approved the resolution, report, and policy to use GS facilities, the city had been seeing a proliferation of innovated GS designs and projects. One of the most critically acclaimed and awarded examples of a GS project is the SW 12th Ave Green Street Planters on the campus of Portland State University. This project, which was awarded an American Society of Landscape Architects Design Award in 2006, treats the stormwater runoff from 8,000 square feet of roadway through four sequential LID stormwater planter structures (Water Environment Research Foundation, 2009). This design concept, which focuses on the collection of stormwater for natural infiltration and evapotranspiration, has been utilized by the GS program on a number of streets in the forms of landscaped curb bulbouts, planter strips, and bioswales in tandem with the use of pervious pavement and street trees. To help create funding to support the GS program, the City of Portland has developed a policy called 1% for Green (1G). 1G is designed to collect a fee equal to 1% of the construction budget for projects within the public right-of-way that are not controlled by the requirements found in Portlands Stormwater Management Manual. This 1G funding is then used to help support the construction of GS facilities elsewhere in Portland. 1G-supported projects can be constructed on either public or private property, can include all types of facilities that are included in the Sustainable Stormwater

Management Program, and must only be used to go above-and-beyond the baseline stormwater management requirements. Additionally, 1G projects are expected to have a variety of environmental and community benefits, to include a broad range of partners and community involvement, to include diverse hiring practices such as use of minorityand women-owned businesses in the design and development of the project, to have high visibility, and to test innovative new designs and technologies (Portland Bureau of Environmental Services, 2011). The 1G program is an creative way that Portland has found to support its broader sustainability goals even on projects that are not directly required to comply with the sustainable stormwater regulations. To further instill a sense of ownership and pride in the residents who live on or near GS facilities, the City of Portland has initiated the Green Street Steward (GSS) program. GS facilities are officially maintained by the Citys professional landscape crews, but the GSS program offers a way for residents to adopt a green street. The city offers training programs for the volunteer GSSs who teach residents how to properly care for the GS facility. This includes instruction on how/when to water, how to properly weed the GS facility, and maintenance tasks such as picking up trash and removing leaves and debris (Portland Bureau of Environmental Services, 2011). GSS capitalizes on the progressive nature that Portlanders are known for: it is a low-cost, high-impact way to help reduce the costs of maintenance on GS facilities and help to build a stronger constituency to support the construction of future GS projects. This approach of involving the residents of Portland to embrace, participate, and support LID stormwater techniques in their daily lives, while leading by example in municipal projects and creatively incentivizing the private sector development and design

community to construct innovative LID SWM facilities, has created an environment of support and action for LID measures.

Conclusion While Chicago and Portland offer many great examples of how urban stormwater can be managed on a number of different levels, it should be noted that other cities across the United States are also embracing LID design principles, crafting regulations to support their implementation, and creating policy that directly implements these solutions in municipal construction and design projects. San Francisco has recently adopted the Better Streets Plan which has a highly detailed and thorough section that focuses on the incorporation of LID techniques such as bioretention, vegetated gutters, permeable paving, and infiltration trenches in the citys streetscape (San Francisco Planning Department, 2011). Similarly, Philadelphia has established a Green Streets policy that encourages LID techniques (Philadelphia Water Department, 2011), Seattle is constructing SEA Streets (Street Edge Alternative) which incorporate green stormwater infrastructure in their street design (Seattle Public Utilities, 2011), Baltimore has developed the Blue Alleys program to help keep its waterways clean (Blue Water Baltimore, 2011), and New York City has developed a Green Infrastructure Plan to guide infrastructure investment (NYC Environmental Protection, 2011). As these major cities continue to lead the way in developing sustainable infrastructure to best manage urban stormwater problems, hopefully smaller cities with similar challenges will embrace LID and help to make these techniques the new normal.

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