Minnesota’s Lake Superior Coastal Program

Lake Superior Association of Soil and Water

Conservation Districts Stormwater Management

Roundtable

R.C. Boheim

South St. Louis Soil & Water Conservation District

August 8, 2007

Project No. 306-STAR02-07

Contract No. #A98623

This project was funded in part under the Coastal Zone Management Act, by NOAA’s
Office of Ocean and Coastal Resource Management, in cooperation with Minnesota’s
Lake Superior Coastal Program.
Introduction
The Lake Superior Association of Soil & Water Conservation Districts requested $5,000
from Minnesota’s Lake Superior Coastal Program to organize and hold a roundtable to
discuss stormwater issues in Minnesota’s Lake Superior Basin. The audience targeted for
this round table included SWCD representatives and stakeholders including local
government, state agencies, the development community and non-profit organizations
with an interest in stormwater management issues.

Work Completed
Task 1 Proposed:
Organize a one day round table forum on stormwater management that will include a
panel discussion with up to four speakers on regional stormwater issues relevant for the
LSA area and a facilitated break out discussion session identifying regional strategies and
potential partnerships. LSA member SWCDs likely have many common stormwater-
related issues, and this STAR funding will increase SWCD capacity to hold a forum and
find common solutions. Staff from LSA member SWCDs do not have the time or
resources to coordinate this type of forum, as they are actively striving to fulfill their
unique and varied local District roles. The LSA will contract with an outside entity or
indepenant contractor to accomplish this task.

Task 1 Completed
Workshop was held on June 4, 2007.
A contact list was generated (meeting sign up sheet).
Regional strategies were discussed and identified

Task 2 Proposed:
Regional forum follow up.

The purpose of this task is to ensure there is a mechanism in place to coordinate follow
up on the strategies identified through the regional forum. Follow up will include a
summary document stating forum recommendations, including potential partnerships,
shared strategies, and existing or future resources. And a follow up discussion will be
facilitated by the LSA Coordinator to help coordinate and jump start any actions or
partnerships that transpired from the round table meeting.

Task 2 Completed
A summery report was completed.
Follow up discussion notes were prepared.
Government Coordination & Decision-Making
The stormwater roundtable was attended by many elected officials and local and state
government employees. The roundtable included presentations that provided information
to officials about stormwater management, local strategies for addresses stromwater,
stormwater regulations, and other related topics. The roundtable was attended by five
elected officials, four local planning and zoning officials, eleven other local government
staff members, and several state agency and universtiy employees.

Results
The project was successful. All planned delievabnles were achieved. The difficult task
will be for Lake Superior Association of SWCDs members and partners to contiune
follow up on stormwater issues in the Lake Superior Basin.

Conclusions
Lake Superior Association of SWCDs was able to utilize Minnesota’s Lake Superior
Coastal Program funds to fullfil LSA’s role as a convener. The LSA’s sees its role as
convener to bring to together agencies and resources around issues impacting
Minnesota’s Lake Superior Basin. The intention is that through LSA convener role
partnerships and other arrangements can be formed that lead more effective management
of important isses.

The Stormwater roundtable was a first step for the LSA and member SWCDs to take to
provide leadership regarding stormwater issues in our region. The LSA expects that this
project may lead to increase effieciency in stormwater management, new partnerships, or
at miniaum increased communication regarding stormwater management.
 Agenda Lake Superior Association of SWCD’s

Stormwater Management Roundtable:

9:00- 9:05 AM Welcome and announcements

9:05- 9:30AM Opening address: Stormwater 101 an overview of stormwater programs,

future trends and their implications for SWCD’s and LUG’s. Presenter:
Jay Michels, Emmons and Oliver Resources.

9:30- 10:15 Innovative local stormwater regulation and enforcement, addressing

stormwater management at the local level.
• Cook County Stormwater Ordinance – Presenter: Tim
Nelson, Cook County Planning
• Cook County MPCA Stormwater - Pilot-Presenter; Bill Lane,
Cook County Planning
10:15-10:30AM Break

10:30-11:15 Local initiatives and partnerships in education and technical assistance

• South St. Louis Site Inspection Pilot – Presenter: South St.
Louis County SWCD
• Regional Stormwater Protection Team –A collaborative
approach for communities to meeting stormwater
management requirements and opportunities for program
expansion into the region. Presenter: Mindy Granley, Coastal
Non-Point Program

11:15-Noon Facilitated break-out discussions and networking on partnerships and

knowledge sharing for stormwater management:
1. Opportunities for regional cooperation in developing a stormwater
management program.
2. Opportunities in regional cooperation for education and technical
assistance to implement stormwater management measures.
3. Opportunities for regional cooperation in establishing a local
stormwater enforcement framework.

Noon – 12:30 Re-cap and next steps for follow up.

LSA Stormwater Round Table Communication and Invite Talking Points.
The hold the date e-mail and talking points below are intended to assist you in inviting
participants to the June 4th LSA Stormwater round table discussion. The target audience
for this round table is listed below.

Round Table Audience:

; SWCD Board Members and Staff

; Local elected officials

; LUG staff from planning and zoning, public works and environmental services

departments.
; Citizen groups, such as for example North Shore Watershed Watch and Poplar
and Flute-Reed River Associations.
; State agency representatives: MPCA, DNR Coastal program, MnDOT (Rudy will
Coordinate this)

Hold the date e-mail:

The Lake Superior Association of SWCD’s will host a stormwater Management Round
Table: June 4th from 9:00 AM to 12:30 at the EPA Lab in Duluth. Registration starts
at 8:30AM

To register please contact Linda Halverson at: 1-866-900-3064 or

e-mail: linda@communitygrowth.net

A growing awareness of the impact of stormwater runoff on the health of our waterways,
expanding stormwater management regulation and the recent addition of a number of
North Shore streams to the list of impaired waters study make it timely to discuss
stormwater management at the local level.

The Lake Superior Association of SWCD’s has identified stormwater management as its
key focus area. Stormwater management involves many decision makers and is impacted
by the actions of individual property owners, public works department practices and land
use and stormwater management policies among others. SWCD’s play an important role
in working with the public and assisting other local units of government in addressing
stormwater runoff.

The purpose of this round table discussion is to bring a broad cross section of parties
together to:
; Learn why stormwater management is important and how water quality programs
may impact your organization and operations.
; Find out what innovative programs are implemented in the region and
opportunities to build on this.
; Discuss opportunities to take regional action on stormwater management and
identify opportunities where SWDC’s can play a supporting role.
; Following the roundtable we will help establish workgroups with those who are
interested to further explore opportunities that have come out of the discussions.
Talking points round table impetus and objectives:
A growing awareness of the impact of stormwater runoff on the health of our waterways,
expanding stormwater management regulation and the recent addition of a number of
North Shore streams to the list of impaired waters study make it timely to discuss
stormwater management at the local level.

The Lake Superior Association of Soil and Water Conservation Districts identified
through its strategic planning discussions stormwater management as a key focus point.
SWCD’s play an increasingly important education, technical support and enforcement
role relating the implementation of new stormwater management requirements. Further,
the Lake Superior Basin is in a unique position of having high quality water resources
compared to may areas of the state. This warrants an emphasis on resource protection.

The LSA was formed based on the realization that all the SWCD’s within the Lake
Superior Basin ultimately work toward protecting the same resource, Lake Superior.
Since water crosses many jurisdictional boundaries it is important to take a more
regional, watershed based perspective when looking at stormwater management. This
notion is increasingly emphasized in funding program as well. A regional discussion can
form a starting point for identifying opportunities for regional cooperation on stormwater
management.

The purpose of this round table discussion is to bring a broad cross section of parties
together to:
; Learn why stormwater management is important and how water quality programs
may impact your organization and operations.
; Find out what innovative programs are implemented in the region and
opportunities to build on this
; Discuss opportunities to take regional action on stormwater management.
; Following the roundtable we will help establish workgroups with those who are
interested to further explore opportunities that have come out of the discussions.
 Sign up sheet

Lake Superior Association of SWCD's Stormwater Management Roundtable

Name Organization e-mail

First meeting attendees:

Sandy Mass City of Duluth smass@ci.duluth.mn.us
Todd Carlson City of Duluth tcarlson@ci.duluth.mn.us
Richard Axler, PhD U. of Minnesota-Duluth raxler@nrri.umn.edu
Keith Anderson S. St. Louis SWCD keith.anderson@southstlouisswcd.org
Valerie Brady NRRI-UMD vbrady@nrri.umn.edu
Greg Guerrero City of Duluth gguerrero@ci.duluth.mn.us
Crystal Tokarczyk WDNR crystal.tokarczyk@dnr.state.wi.us
Bruce Moore WDNR bruce.moore@wisconsin.gov
Tom Estabrooks MPCA-Duluth tom.eastabrooks@pcu.state.mn.us
Matt Huddleston Lake County matthew.huddleston@co.lake.mn.us

Sports Association/Member
Walt and Marcy Moe of MN Waters Association walmoe@peoplepc.com
Glenn Merrick Lake Superior College g.merrick@lsc.org
Mindy Granly MLSCP minday.granly@dnr.state.mn.us
Kamal Alsharif MPCA kamal.alsharif@pca.state.mn.us
Heather A. Cunningham Carlton County Heather.Cunningham@co.carlton.mn.us

Second meeting attendees:

South St. Louis Cty Board
David Davis Member n/a
South St. Louis Cty Board
Kate Kubiak Member n/a
Board of Water and Soil
Jason Weinerman Resources Jason.Weinerman@bwsr.state.mn.us
Todd Ronning Two Harbors Planning
Cook/Lake SWDC & UM
Wayne Seidel extension
Tom Gelineau City of Two Harbors cthpw@frontiernet.net
LeRoger Lind North Shore Watershed llind@yahoo.com
Todd Campbell MNDot todd.campbell@dot.state.mn.us
Fritz Sobanja Cook County Comm
Carol Haved Carlton County SWCD
H M Loy Carlton County SWCD
Brad Matlack Carlton County SWCD
Pete Eakman SLC Public Works eakmanp@co.st-louis.mn.us
Matt Hemmila SLC Public Works hemmilam@co.st-louis.mn.us
Chris Morris SLC Public Works morriscz@co.st-louis.mn.us
Jim Hall Cook County Soil & Water 218.663.7877
Diane Thompson City of Superior thompsond@ci.superior.wi.us
Needs Assessment Methodology Outline:

Conducting a needs assessment relating to stormwater management needs can

result in a number of benefits including:

• Documentation of needs: The inventory and assessment and focus group

discussions help document in more specific terms needs, barriers and solutions
relating to addressing stormwater management needs. This information can help
inform program delivery and support requests for resources.

• Educational and networking: The needs assessment discussions are an

opportunity to bring stormwater management on the radar and network people in
the region through focus group discussions and the round table. The experience
is that these discussions often result in the participants learning they are not
alone in figuring out an issue (in this case stormwater management) and that
others in their area or field may have valuable information. The connections that
are made as part of these discussions often have resulted in ongoing discussions
after the focus groups or roundtable are completed.

• Starting a community wide discussion: Stormwater management involves

many players. This needs assessment process involves LUG staff, elected
officials and connects them with service providers. This can help inform program
development and delivery, help identify potential partnerships and form a basis
for developing resources and capacity to address stormwater management
needs.

Needs Assessment Audience: The audience for this needs assessment are the
local units of government within the LSA membership area. These LUG’s include
Township, County and City government. Sub-audiences within these entities include
the staff and the elected officials. The elected officials have to determine the role their
government will play in addressing stormwater management issues as they set
policy. The staff will take this direction and has to implement any stormwater
management programs. These two distinct roles will likely lead to different needs for
each sub-audience. These audiences should be reflected in the needs assessment
in order to get a complete picture of need.

Steering Committee: The outcomes of the needs assessment can be helpful to a

number of entities involved in technical assistance and capacity building for
stormwater management. For example the findings may direct SWCD’s in what types
of services and which communities they may focus on. It may also inform other
programs such as the RSPT, Water Quality Team, Coastal Non-Point and Seagrant-
NEMO program. Because of this it may be beneficial to establish as project
committee that will guide this needs assessment process that includes the entities
that may benefit from this information. Their involvement in guiding the process will
increase the likelihood they may value the information and utilize it to inform their
efforts.

1
Phase 1 Community Capacity Inventory and Assessment

The objective of this phase is to inventory and document the current level of
stormwater management programs that are in place for the target communities. This
is important to get a basic understanding of and document the range of stormwater
management efforts and capacity currently out there in the region.

2
Elements that may be evaluated can include:

• Level to which current ordinances address stormwater management issues

• Current implementation of BMP’s in public works and other operations

• Education and outreach efforts of residents and property owners

• Planning efforts currently underway and level to which they address stormwater
issues (comprehensive plans, TMDL’s etc.)

Methods Used:

• Direct contact with LUG staff through a structured interview asking about their
current stormwater management programs

• Document review – Review of documents collected from the key informants

which may include ordinances, policy documents and plans.

Deliverable:

• Summary overview of the current programs in place and level of attention for
stormwater management within the LUG’s policy and practices.

3
Phase 2 LUG Staff needs assessment focus groups

The objective of this phase is to identify the level of needs as perceived by the LUG
staff.

Method: Focus groups is an effective method to collect information from staff relating
to their perception of stormwater management program needs in their communities.
These focus groups may be conducted face to face, however, in order to reduce time
requirements from participants we have found that participation rates can be increase
by using conference calls with up to 6 participants. This approach has been very
effective in collecting meaningful data. Free conference calls can be conducted
through www.freeconferencecall.com

The information collected through the inventory and assessment will inform grouping
of the focus group participants. Communities that are at similar levels relating to
addressing stormwater management may be grouped together. This will help identify
what the needs are based on how much work the community has done to date in
addressing stormwater management needs.

Key questions to address as part of the staff focus group discussion include:

• What is the current level of interest within the community in addressing

stormwater needs?

• What are their perceived needs in addressing stormwater management

issues?

• What are the barriers that need to be overcome to address these needs?

• What are potential solutions and what are important considerations in

evaluating solutions to address to help overcome the barriers and address the
needs.

Deliverable: A summary report identifying the main themes that came out of the
focus group discussions addressing the needs, barriers and solutions a perceived by
the participants.

4
Phase 3 LUG elected officials needs assessment focus groups

The objective of these focus groups is to identify the perceived needs by the decision
and policy makers. This will be important in order to gage the level of understanding
of stormwater management issues and their support and interest in addressing
stormwater management needs within their jurisdiction.

Method: Focus groups is an effective method to collect information from staff

relating to their perception of stormwater management program needs in their
communities. These focus groups may be conducted face to face, however, in order
to reduce time requirements from participants we have found that participation rates
can be increase by using conference calls with up to 6 participants. This approach
has been very effective in collecting meaningful data. Free conference calls can be
conducted through www.freeconferencecall.com

This focus group discussion will build off the inventory and assessment and staff
discussions. The information gathered through these efforts may shape the
discussion questions covered in these discussions. They may also inform the
grouping of elected officials in focus groups.

Key questions to address as part of the elected officials focus group discussion can
include:

• What is their current level of interest in addressing stormwater related efforts?

• What are their perceived needs and roles in addressing stormwater

management issues?

• What are the barriers that need to be overcome to address these needs?

• What are potential solutions and what are important considerations in

evaluating solutions to address to help overcome the barriers and address the
needs.

Deliverable: A summary report identifying the main themes that came out of the focus
group discussions addressing the needs, barriers and solutions a perceived by the
participants.

5
Phase 4 Analysis

Based on the inventory and assessment and focus groups a number of conclusions
can be drawn relating to the perceived needs, barriers and solutions. The analysis
can further include an assessment of the current state of stormwater management
efforts and highlight the differences and similarities in needs of communities within
the LSA service area. This analysis can result in a number of recommendations
concerning how to best support the communities’ needs in addressing stormwater
management issues.

Deliverable: Summary report highlighting most important needs, barriers and

solutions and recommendations.

Phase 5 Starting a community discussion on developing a strategy to

address the identified needs.

The findings of the needs assessment could be present during a roundtable format
workshop and be used as a starting point to identify actionable items to help address
the findings and recommendations. These action points may relate to existing
programs and their delivery but also may include identification of new partnerships
and resource needs.

The needs assessment and its recommendations can help inform the delivery of
programs of a number of entities involved in technical support and capacity building
for stormwater management.

Deliverable: Roundtable discussion and summary of discussion outcomes.

6
LSA Regional Stormwater Roundtable follow up conference call:

Main Stormwater Roundtable Discussion Themes:

Through the round table discussions the following themes emerged. These themes were
used as a starting point for discussion with the stormwater roundtable workgroup to
identify action items to continue a regional stormwater discussion. A more complete
summary is included in the Appendix at the end of this document.

Within the regulatory framework discussion the following themes emerged:

- For some LGU’s there is a need for basic education and outreach regarding their
role in stormwater protection. Further, it will be important that the message helps
them understand how not managing stormwater may impact their community
through increased development costs for example when they are within a
TMDL’s or because of increased infrastructure cost to address problems down the
road.
- There appeared to be some interest in taking a more regional approach to
ordinances and technical support for implementation. There was recognition that
the ordinance is a starting point and that technical assistance and enforcement are
key components for an effective stormwater management program.
- Important barriers identified by the group were local and political support,

funding and staff capacity and a lack of good ordinances in place.

The education discussion focused on a number of themes that had some overlap with the
regulatory discussion:
- There was the traditional education and outreach component to the general public,
elected officials and board members and the recognition to expand a down to
earth and consistent regional message of water resource protection, linking
actions to water quality as RSPT has been doing for several years.
- There was also an interest expressed in having technical assistance that would
include technical review of plans and design. This assistance can play an
educational role by working with staff and property owners directly in addressing
issues on the ground.

Stormwater Roundtable Follow up Discussion:

Participants: R.C. Boheim, South St. Louis SWCD, Rebecca Wiinanen, Cook County
SWCD, Brad Matlack, Carlton County SWCD, Wayne Seidel, Lake County SWCD,
Mindy Granley, Mn DNR Coastal Non-Point Program, Rudy Schoolderman, LSA
Coordinator.

The discussion centered around a recognition that there is a broad range of needs within
communities depending on where they are at in addressing or recognizing stormwater
management needs. For example, Carlton County is in the beginning stages and has a
need to educate its elected officials on the importance of stormwater management the
County’s role. Cook County is in the ordinance implementation phase and needs a long
term strategy to implement its ordinance.

There was agreement among the participants that a regional stormwater approach is not a
panacea for addressing capacity needs at the local level and that the best approach in
addressing stormwater management needs will likely require building capacity both at the
local level with regional technical support. In this scenario the local capacity would
focus on the day to day needs in working with property owners. Important considerations
are the need for a fast response i there are problems on a site and people needing a local
point of contact.

At the regional level the focus would be on plan review and ordinance development and
technical assistance to local jurisdictions. It was suggested that the WCA – model may
apply. It was also suggested that the JPB may not be as applicable as a model, since JPB
staff currently works on very distinct projects, which makes it easier to track time and
resources used by each district.

There was agreement that because there may be different needs among communities it
may be appropriate to conduct a needs assessment relating to stormwater management.
Such a needs assessment could fulfill a number of objectives including:
1. Assessing the different needs among communities to base program development
recommendations on.
2. Function as a foundation to develop strategies and make funding requests both at
the LGU level and through various funding agencies.
3. An educational component and creating greater buy-in by increasing awareness
on stormwater management needs within the community and starting a broader
discussion at the LGU level.
4. A starting point for partnership development. The results of the needs assessment
could be presented as part of a broader discussion on how to partner on addressing
stormwater management needs based on the needs assessment findings.

A number of additional action points or solutions were identified:

1. There is an interest in more technical training on stormwater management issues.
2. There is a need within some communities to move beyond the basic need question
and receive assistance on reviewing their land use regulations and get assistance
in their planning process to incorporate stormwater management aspects. A
concern was brought up that the NEMO education is too general and stresses on
educating on the need for stormwater protection and that they should be given
feedback on whether they can increase their emphasis on implementation and
technical assistance.
3. Find ways to use RSPT to reach out to a broader regional audience. RSPT could
perhaps shift its focus more toward ordinances and planning.
The following action items where identified as next steps in keeping this discussion
moving:

1. Contact Cook County to see if they can present on their stormwater ordinance at a
later date. There was a great level of interest in hearing about the process of
writing the ordinance as well as the nuts and bolts of implementation. This could
be a great opportunity to get people together and continue the discussion on a
stormwater regulatory framework.
2. Rudy will develop a draft outline for a community needs assessment. This can be
used as a starting point for development of a proposal to conduct a regional needs
assessment.
3. Mindy Granley, from the Coastal Non-Point program offered to play a
coordinating role to assist in bringing the SWCD’s together to continue the
stormwater management discussion.
4. Follow up with the NEMO program and see what role they can play in assisting in
the development of stormwater ordinances and assisting communities in
incorporating stormwater management in their daily practices.
Appendix: Stormwater Roundtable Discussion Summary notes

Establishing a local stormwater enforcement framework

Challenges:
- Lack of good ordinance in place. Ordinances addressing stormwater management
issues are in general minimal.
- Lack of staff to implement ordinances
- Lack of capacity at MPCA to follow up on enforcement actions
- Lack of timely enforcement
- Stormwater is a non-issue as a result of a lack of public understanding.
- Should look at contractor education and tie stormwater management to license
certification.
- There is a lack of pro-active efforts for communities that fall below the MS4
thresholds
- EPA does not allow MPCA to delegate enforcement to the local level.
- Lack of compliance tied to limited enforcement threat, makes it a lower priority.
- Protection of small tributaries is limited
- Lack of timeliness of developer to respond to a problem and for the agency to
enforce.
- Lack of communication between the state ad LUG’s (WI) on what needs to be
done.
- Lack of political support at the County level, see it as MPCA’s responsibility
- Existing and perceived hostility between the regulator and the regulated entity.
- Lack of strong local enforcement framework, no local support to fund staff,
limited MPCA presence.
- Communicate the need for a stormwater management program based within the
community, cannot rely on MPCA to review and enforce.

Solutions:
- There is capacity within the SWCD districts that could be leveraged and

expanded.

- Will have to address long term, sustainable funding of a stormwater management

program. Rural areas are at a disadvantage to get funding for education and
enforcement because of smaller volumes of development and smaller more
dispersed population base.
- May want to look at the Joint Powers model of sharing staff on a regional basis.
- Streamlining the ordinance among communities may make it easier to share
education, technical assistance and enforcement staff on a regional level.
- Interest to hear Cook County presentation.
- Incorporate renewal of St. St. Louis County and Cook County MPCA stormwater
pilot projects into regional discussion.
Education and technical assistance:

Challenges:
- Lobby for regional dollars – find non traditional sources.

- Attitudes for green lawns

- “see” the effect “snowflake, raindrop in flood”

- Basics of stormwater permitting, implement

- Enforcement who should do it, staffing?

- Site design for stormwater- regional opportunities

- Awareness that sediment is a pollutant

- New and up to date information

- Protection is a challenge

- Prioritization of restoration dollars

- Recognize degradation, notice effects

- Economics, balance development and water protection

- Time crunch, staff time and priority (MnDO inspectors)

- Legal implications

- Vegetation option, regulation, enforce ordinance.

Actions/Solutions:
- Schools are a place to start

- Train P&Z boards and staff on stormwater management as they review

development proposals
- Create incentives for developers to implement stormwater measures
- Utilize beach monitoring program as media technique to increase awareness about
water quality
- Change political mindset at the local level, need dollars to address stormwater
management needs
- MS$ training
- Public educations and understanding of need to deal with stormwater.
- Technical review of plans, regional training for staff. May create regional group
that can review stormwater design.
- Work with the media and local environmental writers to feature the effects of
stormwater management on local streams. Use understandable terms, bring it
down to earth.
- Educate on difference between point and non-point pollution

- Link action to water.

- Target school boards, integrating water issues into curriculum.