Planning Strategies for Increasing Neighborhood Green Infrastructure Capacity in Madison

Thor Jeppson UW-Madison Department of Planning and Landscape Architecture

Professional Project Report Spring 2019

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Acknowledgements I would like to thank all those who helped me in the completion of this project and in my studies within the Department of Planning and Landscape Architecture, including my advisor Ken Genskow whose assistance was invaluable and the professionals who generously offered their time participate in interviews and answer my questions during the completion of this project (see Appendix 1). Thanks also to my committee member Dave Marcoullier, my URPL peers, friends, and family.

This report fulfills the Professional Project competency requirement for the Masters of Science degree in Urban and Regional Planning at the University of Wisconsin-Madison. Cover Page Photo Credits Top: City of Madison Engineering, 1000 Rain Gardens Program Bottom: Rain Gardens in Dane County, Lincoln Elementary School

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Table of Contents Executive Summary ....................................................................................................................................... 4

Purpose ......................................................................................................................................................... 5

Background ................................................................................................................................................... 5

Green Infrastructure ................................................................................................................................. 5

Green Infrastructure Planning .................................................................................................................. 6

Madison Green Infrastructure Initiatives ................................................................................................. 7

Methods ........................................................................................................................................................ 8

Results ........................................................................................................................................................... 9

Literature Review ...................................................................................................................................... 9

Case Studies and Interviews ................................................................................................................... 11

Assessment of Madison GI Plans and Initiatives ..................................................................................... 13

Recommendations ...................................................................................................................................... 15

Conclusion ................................................................................................................................................... 17

References .................................................................................................................................................. 18

Appendices .................................................................................................................................................. 22

Appendix 1 – List of Interviewees ........................................................................................................... 22

Appendix 2 – Neighborhood Planning in Madison, WI ........................................................................... 23

Appendix 3 – GI Actions from Madison Sustainability Plan .................................................................... 24

Appendix 4 – City of Madison 1000 Rain Gardens Map ......................................................................... 25

Appendix 5 – Madison Area Municipal Stormwater Partnership ........................................................... 25

Appendix 6 – Minnehaha Creek Watershed District, MN Case Study .................................................... 27

Appendix 7 – Milwaukee, WI Case Study ................................................................................................ 29

Endnotes ..................................................................................................................................................... 31

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Executive Summary Green infrastructure has become increasingly more common in urban areas to mitigate stormwater runoff, protect water quality, and for its triple-bottom line benefits. Creating a green infrastructure network is not feasible without public-private collaboration and community buy-in from residents and business owners where it is implemented. There is great capacity for green infrastructure on existing private developments, so planning strategies are needed to enhance the social, technical, and financial capacity of property owners voluntarily implement it. The City of Madison has indicated a desire to increase its capacity for green infrastructure, though current plans and programs have not utilized a neighborhood planning approach to building capacity for green infrastructure. Because neighborhoods have unique motivating factors and goals, performing neighborhood-scale green infrastructure planning leads to optimal outcomes. Given the City’s strong history of neighborhood planning, this report offers recommendations for enhancing neighborhood green infrastructure capacity. Recommendations are supported by best practices that were identified in the literature, interviews with professionals, and through case studies. Financial, regulatory, social, and educational barriers exist to implementing green infrastructure at a neighborhood-scale. Findings suggest overcoming these barriers by providing grants for the installation and maintenance of green infrastructure and incentivizing its implementation through density bonuses or expedited review processes. Community-tailored education and outreach are also critical to raise awareness of stormwater issues and green infrastructure practices. Education and outreach efforts should take advantage of existing social networks within neighborhoods and can be augmented by interactive web-based mapping tools. The City of Madison can increase its capacity for green infrastructure by incorporating these practices into the neighborhood planning process. Actions should be tailored to individual neighborhoods and include:

1. Engaging relevant community stakeholders 2. Identifying local green infrastructure goals and needs linked to economic and community

development goals 3. Utilizing pilot projects to demonstrate the effectiveness of green infrastructure 4. Providing funding and incentives for green infrastructure

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Purpose To protect water quality and create a more resilient storm sewer system, the City of Madison has made a commitment to green infrastructure. The purpose of this project is to assess Madison’s overall green infrastructure initiative in order to identify barriers to implementation of green infrastructure on private property at the neighborhood scale. Case studies and related literature are used to evaluate best practices and to make recommendations for neighborhood-scale planning strategies for increasing the technical, physical, social, and financial capacity for voluntary green infrastructure implementation. This document is intended for neighborhood planners and community organizations within Madison, but may also be applicable to other communities.

Background Green Infrastructure Traditional urban development and stormwater management have negatively affected urban watersheds. As natural open spaces are replaced with structures or turf grass during the development process, rain water infiltration capacity is lost, creating stormwater runoff. Historically, urban stormwater runoff has been managed with “gray infrastructure,” a system of curbs, gutters, and pipes that discharge runoff to natural waterways. Without infiltration, runoff carries pollutants such as nutrients and salts, causing impairmenti. When storm sewer systems

are overloaded due to severe rain, they can back up and cause floodingii. In response, many communities are turning to green stormwater infrastructure (hereafter GI), which mitigates urban runoff issues by mimicking pre-development hydrology with natural vegetation and Figure 1. Examples of green stormwater practices. Source: EPA (2015)

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soilsiii. GI practices can be implemented on small-scale residential sites through rain barrels or rain gardens, or on larger parking lots, roadways, or commercial sites through bioswales, green roofs, and permeable pavement (Figure 1)iv. GI can improve water quality in urban watersheds by reducing polluted runoff, and increased infiltration can reduce flooding and create climate resiliency by adding capacity to the storm sewer system. Additionally, it offers several environmental, economic, and social benefitsv (Figure 2). Green Infrastructure Planning GI networks can achieve meaningful stormwater management and water quality objectives when scaled-up and installed on multiple contributing properties across a neighborhood, community, or watershed. In most cities, most impervious surfaces are on private property which may have been developed prior to stormwater regulations that require infiltration or detention practicesvi. Retrofitting these properties with GI can significantly increase the capacity of the stormwater system but may require voluntary adoption by private property ownersvii. The appropriateness of various GI practices is highly localized and depends upon the stormwater capacity needed, environmental conditions, and community preferences. Planning for GI at a neighborhood scale can improve outcomes, though it requires partnerships between communities and public engineering, planning, natural

Figure 2. Benefits of green infrastructure implementation. Source: HUD (2015)

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resources, and community development agencies to ensure the proper placement, design, and operation of those practicesviii. Madison Green Infrastructure Initiatives While the City of Madison does not have a formal GI Plan, it has made recommendations in other planning documents and established several programs to increase GI capacity. Planning Documents In the Green and Resilient chapter of the 2018 Comprehensive Plan, the City encourages GI as a means to improve water quality through updating ordinances and removing financial barriers to private property owners (Figure 3)ix. The Madison Sustainability Plan contains more specific actions related to GI. Generally, the plan lays out broad goals such as improving surface water quality and stormwater management. GI actions for achieving these goals include encouraging infiltration projects and providing incentives and tools to developers and property owners (Appendix 3)x. Terrace Rain Garden Program In 2005, the city Engineering Division initiated its Terrace Rain Garden Program after advocacy from the Friends of Lake Wingra group. The program allows property owners to install rain gardens along the terrace adjacent to their property during street reconstructions. City Engineering covers 75% of the costs of installation, but the property owner is responsible for

maintenance. The gardens are designed to be removed in case they are no longer wanted, and few property owners are eligible due to strict requirements regarding the size and slope of the street terrace (Figure 4)xi.

Figure 3. GI actions recommended in the City of Madison Comprehensive Plan. Source: City of Madison

Figure 4. Terrace rain garden program eligibility criteria. Source: City of Madison

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1000 Rain Gardens Program City Engineering has also created a goal to achieve 1000 total rain gardens citywide, including terrace and backyard rain gardens. However, no City programs currently incentivize backyard rain gardens. The City tracks rain garden installations if they are reported to the city by property owners, and maintains a static map depicting rain garden locations (Appendix 4)xii. As of May 2014, the city has 567 rain gardens, with the largest shares in the Lake Wingra and Starkweather Creek watersheds (Figure 5)xiii.

Methods This project consisted of three components. First, best practices for neighborhood-scale GI planning were identified by performing a literature review. Second, case studies and interviews (Appendix 1) were used to identify best practices. Third, current City of Madison planning documents and green infrastructure initiatives were assessed to determine if they utilized neighborhood-scale planning approaches. Two case studies were chosen for this project: The first, Minnehaha Creek Watershed District, MN, was chosen as a case study because it offers insights into how a regional watershed approach to GI planning can be integrated with and enhance neighborhood GI initiatives. The second, the 30th Street Industrial Corridor in Milwaukee, WI, was chosen as a case study because it demonstrates how a collaboration between multiple governmental and non-governmental agencies can increase neighborhood GI capacity through a comprehensive, targeted approach.

Figure 5. Rain gardens in Madison by watershed. Source: City of Madison

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Results Literature Review Planning for Green Infrastructure Networks Neighborhood-scale planning approaches can increase GI capacity because voluntary GI implementation is strongly influenced by a neighborhood’s unique characteristics, experiences, and goals. Localized socioeconomic, cultural, and demographic conditions affect a neighborhood’s preferred form of and willingness to implement GIxiv. For instance, communities which have suffered flood damage are often more willing to install rain gardens, while those which value having a traditional lawn may prefer rain barrels. Other communities may be motivated simply by the cost savings offered by GI, environmental stewardship, or personal efficacyxv. Understanding a neighborhood’s values and experiences is a critical step in GI planning that can strengthen community engagement and provide communities with the knowledge and resources required to voluntarily implement GI, though this requires significant collaboration between public and private stakeholdersxvi. Furthermore, it can help to create targeted strategies for overcoming neighborhood-specific barriers to GI implementation. The literature identifies four types of barriers: Regulatory Barriers Even when a developer or private property owner may desire to implement GI on their property, the may be unable to do so due to local codes and ordinances. For larger developments, minimum parking requirements can limit a developer’s ability to install bio-retention practices. Similarly, restrictions on flat roofs or on permissible materials can make it difficult to implement green roofs or permeable pavementxvii. For neighborhood-scale GI implementation, it is important for neighborhood groups and planners to identify if such regulatory barriers exist so that they can be evaluated. It is important to weigh the value of GI that could be added by removing a regulatory barrier to the value a community places on the regulation itself. To assist in the identification of such barriers, communities can perform an audit of their ordinances. The EPA and University of Wisconsin Sea Grant have both created tools that assist communities in the audit process to identify implementation barriers to GIxviii. Financial Barriers The cost of installing and maintaining GI can also act as a barrier to its voluntary implementation. Installation of a green roof, for instance, can cost between $12-100 per square foot and a rain garden can cost $3-5 per square foot, while ongoing maintenance provides extra costxix. These costs can prevent developers or property owners from adopting GI, and disproportionally affect low-income populations. Voluntary GI adoption can be facilitated by either reducing the upfront costs to property owners or by providing incentives. Types and magnitudes of incentives will vary based on neighborhood characteristics.

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Costs for private property owners can be reduced through grants to an individual or through a community group, such as a neighborhood association, providing reduced-cost plants for rain gardens, or by providing maintenance of GI. Municipalities with a storm water utility can offer rate reductions for infiltration practicesxx. For larger developments or redevelopments, GI such as green roofs can be incentivized through density bonuses (Figure 6) or an expedited review process in exchange for GI implementationxxi. Where appropriate, municipalities can incentivize GI through a storm water credit trading programxxii. This allows developers to forego installing infiltration practices in new developments buy instead purchasing credits from another party, such as a homeowner that has installed a rain garden on their property. Social-Behavioral Barriers Voluntary adoption of GI practices is strongly influenced by social norms and pressures within a neighborhoodxxiii. Previous research indicates that voluntary GI adoption is low even when practices are provided for free due to social factorsxxiv. Rain gardens and permeable pavers, for instance, go against traditional development norms that are valued in urban and suburban areas. Private property owners may be unwilling to replace a traditional turf grass lawn with infiltration practices because of these values or because rain gardens are uncommon where they livexxv. Within neighborhoods, property owners may face pressure from their neighbors to maintain this status quoxxvi. Creating awareness of GI on private property through the use of social networking tools can help to remove the stigma of GI and encourage utilization by nearby property owners. Many communities have developed interactive web-based mapping tools or utilize third-party tools that carefully track GI throughout the community and allow neighbors to network (Figure 7)xxvii.

Figure 6. Offering a density bonus increases the floor to area ratio of development without changing impervious surfaces. Source: City of North Vancouver

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Such tools are more effective than simple signage or static maps, such as the City of Madison 1000 Rain Gardens map (Appendix 4), normalizing GI through social networking. Educational and Technical Barriers Education and community outreach is essential for providing the necessary knowledge and technical capacity required for voluntary GI implementationxxviii. Voluntary adoption has been shown to be closely related to understanding of stormwater management and low-impact developmentxxix. Individuals more familiar with stormwater issues, tend to be more willing to implement GI on their propertyxxx. Engaging existing community organizations and advocacy groups can greatly help to meet GI goals, as they can leverage existing social networks within a community and educate interested partiesxxxi. Because community groups are embedded within a specific community, they may be more familiar with priority issues and can help to incorporate GI goals into other community goals and plans. These community groups can help to put on educational events, such as rain garden installation workshops or rain garden tours. Case Studies and Interviews Case studies of the Minnehaha Creek Watershed District (MCWD) (Appendix 6) and Milwaukee (Appendix 7) and interviews with professionals demonstrate that voluntary implementation of GI can be supported through various neighborhood-scale planning approaches.

Figure 7. The Networked Neighbors for Eco-Conservation Online tool allows those who implement to upload pictures and info to an interactive online map. Other community members can identify what types of GI are in their neighborhood through the tool. The tool also allows users to access resources for how to learn more about GI. The tool was used in Kenosha, WI to help encourage communities to install rain barrels and rain gardens. The tool also provides social networking.

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Milwaukee, WI This case study demonstrates how a collaboration between a central planning agency (the Milwaukee Metropolitan Sewerage District [MMSD]), consultants, and a community organization can increase the technical and social capacity for voluntary GI implementation in a targeted area. MMSD found success in this project because they were able to create a stormwater management plan for the 30th Street Industrial Corridor with goals specific to the community’s needs, yet still advance the larger regional GI goals. During interviews, several important themes arose. First, building GI capacity requires setting community-specific goals and using those goals to further other community prioritiesxxxii. In the

xxxiii. This helps to leverage existing social networks and can increase GI participation by taking advantage of well

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30th Street Industrial Corridor, this included using rain gardens to alleviate flooding, build social networks, and advance economic development goals through business retention. Second, community outreach and education events should be done through existing stakeholder organizations and within the community itself

-attended community events. Similarly, it was evident that large stormwater capital improvement projects such as detention basins should be utilized to increase awareness of GI opportunities. Finally, interviews demonstrated that ensuring maintenance of GI projects through educational material and financial incentives is key, and can be tied to job-creation to further garner support .

Community members help plant a rain garden in St. Francis, WI. Source: MMSD

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Minnehaha Creek Watershed District, MN This case study demonstrates how a hands-off approach through robust education and funding can greatly enhance neighborhood social and technical capacity for GI implementation. MCWD’s mission has shifted in recent years from directly financing GI retrofit projects to capital projects, but it still encourages neighborhood GI initiatives through its Watershed Association Initiative and by providing advanced education and technical training in water science and policy through the Master Water Stewards program. Emergent themes from interviews with MCWD staff were similar to those from the Milwaukee case study, such as the importance of leveraging existing social networks and creating community-specific outreach strategiesxxxv. Other important themes were that neighborhood GI initiatives can be advanced by assisting in the creation of watershed advocacy groups and funding their projects, which allows for community leaders and organizers to identify their own GI priorities and strategies. Additionally, rather than providing community-specific technical training, GI capacity can be benefitted by providing advanced coursework in water science, policy, and social networking to highly motivated individuals. These individuals can build local capacity through demonstrative pilot projects within their community. Assessment of Madison GI Plans and Initiatives An assessment of City of Madison plans and GI initiatives reveals that the City does not utilize a targeted, neighborhood-scale approach to GI planning. While the City’s Comprehensive Plan does recommend policies to remove financial and regulatory barriers to voluntary GI implementation on private property, it does not acknowledge how these barriers vary spatially by neighborhood. Current strategies primarily target rain gardens, which may not be appropriate in all neighborhoods. Similarly, the Madison Sustainability Plan lists recommendations for removing these barriers and also creating education programs, but does not identify how GI planning, outreach, and education could be implemented at a neighborhood-scale. The City’s current education and outreach efforts are largely performed through online materials and through the Madison Area Municipal Storm Water Partnership rather than within specific neighborhoods (Appendix 5). The City’s Terrace Rain Garden Program is limited in that it is also a city-wide initiative and not tailored to specific neighborhoods. It may be difficult for certain neighborhoods to participate in the program if rain gardens are not appropriate or preferred, or if terraces, if even present, tend to be inadequately sized. Additionally, while there is a formal engagement process for this program, it is minimal. During project scoping for street reconstructs, the City distributes mailers to eligible property owners who can notify the City if they are interested. Interviews with City Engineering indicated that barriers to participation include the cost for property owners and that they may respond to mailers too latexxxvi. This, and the fact that the city does not incentivize backyard rain gardens may help explain why the City has not yet reached its 1,000 rain garden goals. However, it is important to note that rain gardens are most abundant in the Lake Wingra and Starkweather Creek watersheds. These watersheds each have active Friends groups which were instrumental in crafting the Lake Wingra Watershed Plan and Starkweather Creek Master Plans respectively. This suggests that GI implementation is most effective in Madison when the City and active community organizations collaborate.

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Madison’s GI incentives for homeowners could be strengthened to encourage voluntary implementation. For instance, participants in the terrace rain garden program are responsible for the costs of maintenance. Similarly, for backyard rain gardens the City offers a 50% stormwater utility fee reduction, but property owners must submit a rate-adjustment application prepared by a professional engineer which proves that they can capture runoff from a 10-year, 24-hour storm (4.09 inches), and cost savings are minimalxxxvii. Likewise, incentives for developers could be strengthened. The City of Madison does not currently expedite review processes in exchange for GI, and only offers density bonuses in a single corridor, though criteria are vaguexxxviii. These programs could be strengthened through the implementation of targeted engagement strategies and tools that utilize neighborhood social networking. Interactive web maps such as the Networked Neighbors tool are more effective than simple signage or static maps, such as the City of Madison 1000 Rain Gardens map (Appendix 4), at facilitating social networking around GI and can be updated in real time. The City’s 1000 Rain Garden map has not been updated since 2014. In summary, GI planning in Madison can be enhanced by first understanding neighborhoods’ values and experiences so that neighborhood-appropriate strategies can be implemented. Due to current City ordinances and state statures requiring stormwater management on new and certain redevelopmentsxxxix, the City should focus its GI efforts on voluntary retrofits on existing private property. Given the benefits of neighborhood-scale GI planning and the City of Madison’s historical commitment to neighborhood planning (Appendix 2), the City of Madison should utilize a neighborhood-scale approach to build capacity for voluntary GI implementation.

A rain garden within the Lake Wingra Watershed in Madison, WI. Source: Friends of Lake Wingra

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Recommendations Consistent with best practices identified in this report, the following are recommended neighborhood-scale planning strategies for increasing capacity for voluntary green infrastructure implementation on privately-property in Madison, and are intended for neighborhood planners, organizations, and advocates. These recommendations would be most effective if implemented as part of a formal planning process. The City should either create a formal green infrastructure plan with strategies targeted towards individual neighborhoods or formally incorporate GI goal setting and implementation strategies in to the neighborhood planning process as Neighborhood Plans are being updated. Each recommendation requires collaboration between public leaders and the target community. This process should be preceded by identifying and communicating with existing community organizations, advocacy groups, and Neighborhood Associations that may be interested in GI implementation in their community.

1. Perform a Neighborhood Inventory to Establish Baseline Conditions a. Identify water resources assets and assess water quality conditions b. Identify and map existing GI projects, both publically and privately owned, within

neighborhood c. Work with DNR and City Engineering to determine suitability of sites for GI practices d. Revise and redistribute the Dane County stormwater understanding survey within a

specific neighborhood to determine neighborhood understanding of GI

2. Identify and remove regulatory barriers to GI implementation a. Utilize existing tools to perform an audit of Madison’s codes and ordinances to identify

barriers to GI implementation b. Review Neighborhood Plans for inclusion of GI, and update as necessary c. Identify and review state and county stormwater management regulations that act as

barriers to GI implementation d. Amend the requirements for the Terrace Rain Garden program to be less restrictive in

terms of space required. Formalize a community engagement process to work with stakeholders on a door-to-door campaign to increase awareness of the program

e. Lessen parking requirements for new developments to free space for GI

3. Determine Neighborhood Priorities and Goals a. Work with community groups and individuals to determine neighborhood priorities for

growth and community development. Incorporate GI in to these priorities, for example: i. Walkability – terrace and front yard rain gardens can promote traffic calming

and pedestrian-friendly streetscapes ii. Flooding – GI can minimize small flooding events through infiltration

iii. Economic development – GI can attract businesses and employers iv. Public art – Rain barrels can be painted and double as an art installation

b. Identify neighborhood’s vision for GI, including appropriate forms and locations c. Set specific goals for GI in terms of number of practices installed, capacity, and water

quality improvements

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4. Community Outreach and Engagement

a. Engage community groups around GI and leverage existing social networks to increase awareness of GI opportunities

b. Create community-specific educational and promotional materials to educate community on current water-quality conditions and GI practices in neighborhood

c. Create opportunities for and fund “rain garden parties,” using Milwaukee Metropolitan Sewerage District as a model

d. Alert property owners if their site is suitable for GI e. Create an interactive web-mapping tool that allows property owners to upload

information related to their GI installation and track GI in their neighborhood, using Networked Neighbors as a model

5. GI Education a. Work with Dane County and MAMSWAP to expand existing rain garden workshops so

that they cover permeable pavement, rain barrels, and green roofs b. Create and distribute educational material on neighborhood-specific watershed issues

GI opportunities c. Create educational material for GI maintenance d. Work with Clean Lakes Alliance, City Engineering, WDNR, UW-Madison, and Edgewood

College to create an educational and empowerment program similar to the Master Water Stewards program. Allocate funds to Neighborhood Associations to fund enrollment for interested individuals

6. Demonstrate Effectiveness of GI a. Initiate GI pilot projects in neighborhood and create community engagement and

education events related to pilot project. Tie these to neighborhood GI priorities, whether that is rain gardens, green roofs, permeable pavement, or other GI

b. Create educational material that highlights success, water quality benefits, and cost savings of GI in other neighborhoods

7. Strengthen GI Incentives a. Expand the Plant Dane program to offer discounts on rain barrels and permeable paver

materials b. Work with Dane County and WDNR to create a stormwater credit trading program c. Offer an accelerated and/or discounted development review process for new

developments and redevelopments d. Create city-wide density bonuses for implementation of green roofs e. Strengthen the stormwater utility credit program by lessening infiltration requirements

or providing 100% discount

8. Ensure Maintenance of GI a. Work with neighborhood groups to organize collective maintenance of rain gardens b. Distribute educational materials and yearly reminders for GI maintenance

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c. Using MCWD as a model, allow property owners to place deed restriction on their property that guarantees existence of GI in exchange for public maintenance

9. Funding a. Provide funding and training for community organizations to host workshops in their

neighborhood b. Provide grants to organizations to develop and implement a GI maintenance plan for

their community c. Create a neighborhood grant program dedicated for environmental projects

Conclusion The City of Madison has indicated a desire to implement more GI, including voluntary implementation on private land. Because GI also offers benefits to community and economic development, strategies should be tailored to specific neighborhoods so that GI initiatives coincide with and compliment their goals. To overcome the economic, social, and regulatory barriers for voluntary implementation, neighborhood planners should engage existing community organizations to incorporate GI into Madison’s Neighborhood Planning process, as well as create new funding mechanisms for supporting community GI efforts.

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Appendices Appendix 1 – List of Interviewees Jay Feiker Milwaukee Metropolitan Sewerage District Sanjiv Sinha Environmental Consulting and Technology Ethan Taxman Clean Wisconsin Pam Ritger Clean Wisconsin Sarah Bregant Northwest Side Community Development Corporation Anna Brown Minnehaha Creek Watershed District Darren Lochner Minnehaha Creek Watershed District Phil Gaebler City of Madison Engineering

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Appendix 2 – Neighborhood Planning in Madison, WI The City of Madison has historically and continues to support neighborhood development and planning, making the neighborhood planning process a natural fit for incorporating GI planning. The City’s Neighborhood Planning, Preservation and Design Section advocates for neighborhood planning because it helps create a strong connection between community members and the City, and also helps ensures that through the development of an action plan, a community’s vision, goals, desired outcomes, and preferred strategies can be implemented and supported by the City. The neighborhood planning section accomplishes these goals by facilitating the creation of Neighborhood Plans, supporting the development and capacity building of recognized Neighborhood Associations, providing grants and technical training for neighborhood initiatives, and assisting with connecting community leaders to the proper city agencies which can help themxl. Madison Neighborhood Plans are created by City planners in partnership with Neighborhood Associations and a steering committee made up of local residents and business leaders to create short- and long-term strategies for addressing land use, economic development, housing, open space, environmental issues and more at the neighborhood level. Once created, neighborhood plans can be adopted by City Council and become an amendment to the Comprehensive Plan. In the City of Madison, there are currently approximately 80 recognized neighborhood associations, and 24 adopted neighborhood plans, which may include more than one neighborhood association. On average, neighborhood plans were adopted 15 years ago, with some being as old as 33 yearsxli. To help fund neighborhood projects, the City also administers a Neighborhood Grant program for projects that will either help build neighborhood capacity or beautify neighborhoods. Grants are awarded to Neighborhood associations or small groups of volunteers

xliii

xlii. GI projects such as rain gardens and rain barrels can help to beautify and improve neighborhoods when tied to public art, but

from 1999-2012, only three projects that were awarded Neighborhood Grant program funding included a rain garden .

This rain garden in the Carpenter-Ridgeway neighborhood was installed using Madison Neighborhood Grant Program funding. Source: City of Madison DPCED

24

Appendix 3 – GI Actions from Madison Sustainability Plan

Ch

apte

rG

oal

Actio

n

Nat

ural

Sys

tem

sIm

prov

e su

rfac

e w

ater

qua

lity

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urag

e in

filtr

atio

n w

here

app

ropr

iate

, thr

ough

the

use

of p

ervi

ous s

urfa

ce, t

he c

reat

ion

of ra

in

gard

ens,

bio

-sw

ales

and

oth

er n

atur

al w

ater

pur

ifica

tion

met

hods

Pilo

t the

use

of “

gree

n” in

fras

truc

ture

tech

niqu

es a

nd in

corp

orat

e th

em in

to st

anda

rd st

reet

and

bui

ldin

g de

sign,

whe

re a

ppro

pria

teFu

nd th

e in

stal

latio

n of

trea

tmen

t dev

ices

dur

ing

stre

et c

onst

ruct

ion

proj

ects

. (Co

ntin

ue p

ract

ices

such

as

cat

ch b

asin

s, ra

in g

arde

ns, s

cree

n st

ruct

ures

and

incr

ease

d w

eekl

y st

reet

swee

ping

. Mai

ntai

n de

vice

s so

they

func

tion

prop

erly

.)

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ove

stor

mw

ater

man

agem

ent

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te c

ompr

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sive

wat

ersh

ed-b

ased

(“up

stre

am”)

stor

m w

ater

man

agem

ent p

lan

(e.g

., be

st

man

agem

ent p

ract

ices

, use

of p

ark

land

for c

reat

ive

stor

m w

ater

man

agem

ent i

n co

llabo

ratio

n w

ith

priv

ate

deve

lope

rs, d

iffus

e in

filtr

atio

n

Prov

ide

deve

lope

r inc

entiv

es (e

.g.,

TIF,

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eral

fund

s, e

xped

ited

perm

ittin

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ade-

off,

equi

vale

ncie

s with

do

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crea

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nsite

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m w

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spec

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shed

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agem

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ract

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(e.g

., gr

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roof

, bes

t man

agem

ent p

ract

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, diff

use

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trat

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ote

proj

ects

that

incr

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infil

trat

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and

aqui

fer r

eple

nish

men

t, w

here

app

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iate

Incr

ease

supp

ort f

or ra

in g

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ns a

nd re

view

and

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se c

urb

and

gutt

er e

ngin

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g sp

ecifi

catio

ns to

pr

ovid

e fo

r a h

ighe

r num

ber o

f loc

atio

ns fo

r ter

race

rain

gar

dens

.Re

view

and

revi

se p

arki

ng lo

t req

uire

men

ts to

ens

ure

bio-

rete

ntio

n (e

.g.,

no g

utte

rs, d

epre

ssio

ns fo

r w

ater

stor

age,

spac

e to

allo

w fo

r mat

ure

tree

s).

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re a

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te, i

n a

varie

ty o

f loc

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ns, b

oth

publ

ic a

nd

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ate

(e.g

., m

id-b

lock

are

as o

f res

iden

tial s

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ts, b

aske

tbal

l cou

rts,

alle

y w

ays)

.Cr

eate

a re

bate

pro

gram

for r

ain

gard

en in

stal

latio

ns to

enc

oura

ge re

siden

tial r

ain

gard

ens a

nd p

rovi

de

resid

ents

with

an

on-li

ne c

alcu

lato

r and

oth

er to

ols a

s nee

ded.

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ate

resid

ents

on

stor

mw

ater

issu

es a

nd w

ays t

o m

itiga

te ru

noff

and

proc

ess f

or g

ettin

g st

orm

wat

er

cred

itsEm

ploy

men

t and

W

orkf

orce

Prom

ote

gree

ning

of e

xist

ing

busin

esse

sPr

ovid

e ed

ucat

ion

and

tech

nica

l ass

istan

ce fo

r wat

er e

ffici

ency

and

infil

trat

ion

Plan

ning

and

Des

ign

Fost

er H

olist

ic L

and

Use

Chan

ge re

quire

men

ts fo

r all

surf

ace

park

ing,

whe

re a

ppro

pria

te, t

o in

crea

se st

orm

wat

er in

filtr

atio

n,

redu

ce h

eat i

sland

effe

cts a

nd o

ther

stra

tegi

es to

redu

ce e

nviro

nmen

tal i

mpa

cts (

e.g.

, ins

tall

park

ing

lot

islan

ds th

at a

llow

rain

gar

dens

, cre

ate

ince

ntiv

es fo

r str

uctu

red

park

ing)

25

Appendix 4 – City of Madison 1000 Rain Gardens Map

26

Appendix 5 – Madison Area Municipal Stormwater Partnership The City of Madison is part of the Madison Area Municipal Storm Water Partnership (MAMSWAP), a 21-member partnership between several cities, villages, towns, and institutions in Dane County. Together, MAMSWAP jointly files a single municipal separate storm sewer system (MS4) permit under the Wisconsin Pollution Discharge Elimination System program. This permit controls stormwater discharges to waters of the state, and aims reduce pollutant loads and protect water quality. As part of an MS4 permit, the Wisconsin DNR and US Environmental Protection Agency require permittees to perform community outreach and education to help inform the public about stormwater issues and practices they can use to improve stormwater management on their property or in their community. Together, MAMSWAP creates an Information and Education Plan to help its education and outreach efforts. While the MAMSWAP partnerships allows communities to pool resources for education and outreach, these efforts are done at a county-wide level and not targeted at individual community needs. A key goal of MAMSWAP’s Information and Education plan related to GI implementation is to promote the infiltration of residential storm water runoff from rooftops, driveways, and sidewalks (C.(1)(b)(5))xliv. MAMSWAP’s website provides educational materials to the public about how runoff degrades water quality and how GI practices like rain barrels and rain gardens can mitigate runoff. Additionally, MAMSWAP has helped create the Plant Dane program, in which Dane County residents can receive native plants for rain gardens at a reduced costxlv. The partnership helps residents implement rain gardens by providing technical materials on how to design and plant a rain garden, and by hosting educational workshops, at a centralized location. While MAMSWAP’s information and education efforts provide technical information and training to residents, these events and information heavily tailored to rain gardens over other forms of GI, not specific to individual communities, and are not hosted within the community itself. MAMSWAP has also distributed community surveys to understand local knowledge of stormwater issues and GI. The most recent survey was in 2013xlvi.

Map of the 21 municipalities and institutions that participate in MAMSWAP. Source: MAMSWAP

27

Appendix 6

Context In the state of Minnesota, watershed districts are special purpose units of local governments created around watershed boundaries tasked with managing water resources. Watershed districts have the authority to adopt laws to control water resources, levy taxes, accept and distribute grant funds, and acquire property for water management. The Minnehaha Creek Watershed District (MCWD), created in 1967, manages a 178 mi2 watershed for Minnehaha Creek, a tributary of the Mississippi River that includes parts of Minneapolis and its western suburbs. MCWD utilizes education, community outreach, permitting, grants, and partners with municipalities to plan and maintain capital projects while ensuring that local land use planning and community development goals align with MCWD goalsxlvii. District activities are guided by a comprehensive Watershed Management Plan, which is updated every 10 yearsxlviii. Outreach Programs – Watershed Association Initiative Historically, MCWD has administered a cost-share grant program to help community partners implement dispersed green infrastructure practices. One of these measures, MCWD’s Watershed Association Initiative (WAI), specifically aims to build community capacity for watershed initiatives. WAI provides educational programs to assist property owners in creating and sustaining effective community-led water-focused organizations and helps them collaborate with local business, non-profit, and government leaders. WAI also helps community groups create Action Plans, set community goals, and creates peer-to-peer community education networksxlix. In 2010, regular water quality monitoring by MCWD gave Diamond Lake in South Minneapolis an “F” grade. As a result, the community came together and worked with MCWD’s WAI program to create the Friends of Diamond Lake. The Friends group initiated the “Go Blue! Diamond Lake Community Makeover Project,” in which MCWD provided assistance in applying for a Clean Water Fund Grant and provided 50% cost sharing for installation of 68 total dispersed GI practicesl.

Case Study: Minnehaha Creek Watershed District, MN

Map of the Minnehaha Creek Watershed District political boundaries. Source: Minnehahacreek.org

28

While MCWD now focuses primarily on larger capital projects rather than dispersed retrofits, MCWD helps to ensure the continued success of existing GI in communities by requiring restrictive covenants on required stormwater BMP projects and publishing guides for inspecting BMPs.

Education Programs – Master Water Stewards In 2013, MCWD and Freshwater Society established the Master Water Stewards program, which aims to provide citizens with the knowledge and tools necessary to create grassroots, voluntary water quality initiatives in their community. Program participants take university-level courses from experts in water resources, water policy, community-based social marketing, and more. Participants become Master Stewards after the completion of a capstone project, which includes a community education component and the installation of a water quality project within their community. Thus far, 277 citizens have participated in the program and their work has created over 1.1 million gallons of

infiltrationli. MCWD provides citizens within the watershed with $2,000 in tuition fees if they are interested in participating in the programlii. The MWS program allows MCWD to take a hands-off approach to community engagement and education, and empowers citizens, who are most familiar with the goals and problems within their community, to take charge of water issues within their neighborhood.

Master Water Stewards participate in the construction of a rain garden. Source: Masterwaterstewards.org

29

Appendix 7

Context The Milwaukee Metropolitan Sewerage District (MMSD) is a regional government entity tasked with wastewater and stormwater reclamation and flood mitigation across 28 communities in Southeast Wisconsin. MMSD actions are guided by its 2035 Vision, a strategic plan to achieve zero basement backups and combined sewer overflows by 2035. This plan includes a goal of capturing 740 million gallons of each rainfall event, or the first 0.5 inches, by using public and private green infrastructure. Achieving this goal requires MMSD to utilize community networking to encourage voluntary implementation of GI. MMSD’s GI strategies are outlined in their Regional Green Infrastructure Planliii. In 2010, the 30th Street Corridor, a historically industrial area in north Milwaukee, experienced widespread flooding that resulted in over 3,000 basement backups and $32 million in property damage. As a result, MMSD created a strategic plan to enhance stormwater facilities in the area by investing in green infrastructure and several capital projects that would improve environmental conditions while also facilitating revitalization in the area through community and economic development benefitsliv. Outreach and Education Programs – Clean Wisconsin In order to build community awareness of stormwater issues and green infrastructure and to encourage voluntary implementation of GI on private property, MMSD partnered with environmental advocacy firm Clean Wisconsin. To do so, Clean Wisconsin began outreach efforts in 2014 by identifying and working through existing neighborhood-scale community organizations and leaders. From there, Clean Wisconsin staff began attending Neighborhood Association meetings to give presentations on GI and to identify individuals interested in installing GI on their propertylv. Despite the installation of GI, such as rain barrels and rain gardens, being completely cost-free to property owners as a result of MMSD grants, Clean Wisconsin still faced challenges in creating community buy-in. However, by working through existing community networks and taking advantage of planned neighborhood events for setting up educational workshops and demos, they were able to overcome these obstacleslvi. Clean Wisconsin partnered with community organizations to identify community needs and found willing property owners to host informal “rain garden parties,” in which an individual would host neighbors, demonstrate their rain garden or rain barrel, and allow others to sign up to receive free installation of their own. These parties allowed neighbors to engage around GI and learn from trusted community leaders. Similarly, rain barrel painting events hosted by Clean Wisconsin allowed neighborhoods to simultaneously engage around GI and incorporate GI into public art initiativeslvii.

In 2014 alone, Clean Wisconsin and MMSD were able to install 90 rain barrels, 8 rain gardens, and 3 GI public art displays within the 30th Street Corridor and are continuing to support GI efforts in the arealviii. Outreach and Education Programs – Northwest Side Community Development Corporation In addition to supporting the voluntary implementation of GI through community engagement and education, MMSD also partnered with the Northwest Side Community Development Corporation (NWSCDC) to create an engagement and education process around the planning and implementation of several stormwater capital projects.

Case Study: 30th Street Industrial Corridor, Milwaukee, WI

Children learn about GI while painting rain barrels at a Clean Wisconsin event. Source: Cleanwisconsin.org

30

In 2017, the NWSCDC partnered with the City of Milwaukee to perform engagement and education around the redevelopment of a city-owned brownfield site within the 30th Street Corridor. The 2.9 acre site was acquired by the City using EPA remediation funding and has been part of community development and environmental planning efforts by NWSCDC since. The NWSCDC acquired funds from MMSD and others to use the site for GI and community engagementlix. During the planning process, NWSCDC hosted community meetings with schools, local neighborhood organizations, nonprofits, and government leaders to develop programming for the site and identify how it could be used to support local workforce development and environmental goalslx. The result of the process was the currently in development Green Tech Station. The site will be a publically accessible stormwater management and educational facility that features bioswales, a 20,000 gallon cistern for rain water reuse, and an educational area with permeable pavement. This area will be used by local schools for field trips and to demonstrate GI. Together, these features will help the community to build capacity for GI by creating awareness of its success and by linking it to community development goalslxi.

In a similar effort, NWSCDC also partnered with MMSD to perform community outreach and engagement around its West Basin capital project, one of three large stormwater basins to be constructed within the corridor to alleviate flooding. The site will include a 30 million gallon basin and a community space that will be used to build awareness of and engage the community around green infrastructurelxii. During the community outreach process, NWSCDC built support for the project by first performing a visioning process, in which community members could post their ideas for the community space. Then, NWSCDC worked with local schools to develop stormwater curriculum and plant rain gardens, performed door-to-door surveys, and hosted rain barrel workshops. NWSCDC hopes to develop the site fully by 2025, and in the coming years plans to further engage the community around GI by hosting pop-up farmers markets, block parties, and community meetings at the West Basin site.

Left: The Green Tech Station site before development and incorporation of GI. Right: Community Members explore the site during community engagement meetings. Source: nwscdc.org

Community members participate in the visioning process for the West Basin community space. Source: nwscdc.org

31

Endnotes

i Foster et al (2011) ii Copeland (2016) iii ibid iv US Environmental Protection Agency (2015) v US Department of Housing and Urban Development (2015) vi Turner et al (2016) vii Ibid viii Thiagarajan et al (2018) ix City of Madison (2018). Comprehensive Plan, 90. x City of Madison (2011). The Madison Sustainability Plan: Fostering Environmental, Economic and Social Resilience. xi Phil Gaebler. Personal interview xii City of Madison. (2014). Rain Gardens Map. xiii City of Madison. (nd). 1,000 Rain Gardens xiv Montalto et al (2012) xv Baptiste et al (2015) xvi Montalto et al (2012) xvii US Environmental Protection Agency (2009) xviii University of Wisconsin Sea Grant (2016) xix Connecticut Department of Energy and Environmental Protection (2010) xx Natural Resources Defense Council. (2018) xxi US Environmental Protection Agency (2009) xxii Natural Resources Defense Council (2016) xxiii Hunter and Brown (2012) xxiv Copeland (2016) xxv Carrico et al (2012) xxvi Ibid xxvii Networked Neighbors for Eco-Conservation (nd). About xxviii US Water Alliance (2011) xxix Montalto et al (2012) xxx Baptiste et al (2015) xxxi Afzalan and Muller (2014) xxxii Sarah Bregant, Personal interview xxxiii Ethan Taxman and Pam Ritger, Personal interviews xxxiv Jay Feiker, Personal interview xxxv Anna Brown and Darren Lochner, Personal interviews xxxvi Ibid xxxvii Phil Gaebler, Personal Interview xxxviii The City of Madison may consider bonus stories for developments in the East Washington Avenue Capital Gateway Corridor only that incorporate at least 50% green roof and if the green roof provides “sufficient public benefit to warrant the additional height.” (Madison Code of Ordinances § 33.24(15)(e)(12)) xxxix City of Madison stormwater management ordinances currently require new development to provide infiltration practices, such as rain gardens, sufficient enough for post-development infiltration to meet 90% of pre-development infiltration. Certain developments, such as small commercial parking areas, are excluded from this standard. Redevelopment projects must also meet these infiltration requirements if they add at least 20,000 ft2 of impervious surfaces (Madison Code of Ordinances § 37.09(3)(f)). State of Wisconsin law prohibits the city from adopting stricter standards (Wisconsin State Statutes § 66.028(4)(c)) xl City of Madison DPCED (nd). About Neighborhoods xli City of Madison DPCED (nd). Neighborhood Plans xlii City of Madison DPCED (2019). 2019 Neighborhood Grant Program Guidelines xliii City of Madison DPCED (nd). Neighborhood Grant Program Projects 1999-2012

32

xliv Madison Area Municipal Stormwater Partnership (2018). 2018 Annual Information and Education Work Plan xlv Ripple Effects (2019). 2019 Plant Dane xlvi Haley and Tretcher (2014). xlvii Minnehaha Creek Watershed District (nd) About. https://www.minnehahacreek.org/about xlviii Minnehaha Creek Watershed District (2018) xlix Freshwater Society (nd). About. Watershed Association Initiative. https://freshwater.org/watershed-association-initiative l Minnesota Board of Soil and Water Resources (nd). li Master Water Stewards. (nd). Master Water Stewards: Overview https://masterwaterstewards.org/overview/ lii Galioto, K (2018) liii Milwaukee Metropolitan Sewerage District. (2013) liv Milwaukee Metropolitan Sewerage District. (2015) lv Ethan Taxman and Pam Ritger, Personal Interviews lvi Ibid lvii Clean Wisconsin (nd) lviii Ibid lix Northwest Side Community Development Corporation (2017) lx Ibid lxi NWSCDC (2019a) lxii NWSCDC (2019b)