[Energy people are watching, click on the upper right corner to add 'Follow'] The editor said: Modern rainwater management represented by sponge cities is constantly deepening in China. The sustainable funding guarantee mechanism is very important for the next stage of constructi

[Energy people are watching, click on the upper right corner to add 'Follow']

Editor said: Modern rainwater management represented by sponge cities is constantly deepening in China. The sustainable funding guarantee mechanism is very important for the next stage of construction and the operation and maintenance and management of built facilities. The issue of rainwater charges is gradually being discussed in the industry. Researching foreign rainwater charging cases and development experiences is of great reference significance. The name, basis, scope, charge amount, calculation method, fund use, incentive refund and exemption policies and preparation process of the US stormwater charging system are introduced, and some issues that need to be paid attention to in China in the future are analyzed. At the same time, the common barriers and oppositions in the promotion of rainwater charges were discussed in a classified manner, and work priorities and suggestions were put forward.

Su Yuming

Ph.D., a qualified engineer/foundation member of the American Academy of Water Resources Engineers, a registered engineer in the United States. The research direction is water resource management, modern urban stormwater flood management, stormwater product equipment, runoff pollution control and control, etc.

Introduction

Since the construction of sponge cities was launched, the central government has provided special fund subsidies in the pilot project of sponge cities, and local finances have also provided financial support to varying degrees. Statistics of the 30 sponge city construction pilot projects show that within three years of the pilot period, the total pilot construction area was completed, and more than 4,900 projects were completed in various types such as construction communities, roads and park renewal construction, river and lake management, drainage and flood prevention, with a total investment of 160 billion yuan. With the continuous increase in the number of built facilities, the demand for funds related to operation and maintenance has also gradually increased, with a huge amount. In order to further promote the construction of sponge cities, consolidate construction results, build a solid modern rainfall management system, and establish a sustainable financial guarantee mechanism.

The model of relying entirely on government financial support is sometimes difficult to sustain, and policy support is needed to attract social capital to widely participate in sponge city construction. my country's Environmental Protection Law advocates the basic principle of "whoever pollutes will control, and whoever develops will protect." Relevant national ministries and professionals have also continuously called for the implementation of the rainwater discharge fee system to learn from foreign practices. Rainwater charges are implemented to varying degrees in many countries such as Australia, Brazil, Canada, Ecuador, France, Germany, Poland, South Africa, the United States and other countries. Against the background of vigorously promoting the construction of sponge cities, my country has begun to conduct some research on the theoretical basis and collection standards of rainwater charges in the process of urban rainfall management, but there are still not many systematic research.

The United States is one of the countries with the most complete rainwater financing mechanism. This article analyzes several issues that the industry is concerned about through research and summary of the US stormwater charging cases, and discusses and makes suggestions on the establishment of the future stormwater charging system based on the situation in China.

01 Rainwater charges definition

Rainwater charges can be understood as a mechanism for obtaining funds generated to pay for expenses of certain municipal services (such as rainfall management). Rainwater charges have certain similarities with electricity or water charges, and can be managed and used relatively independently, and used as special funds to pay for rainwater management and other expenses. This process in the United States involves many names, which vary according to regional policies, habits, charging basis, and usage direction. Common ones include Stormwater fee, Stormwater utility fee, Rain tax, Stormwater management fee, Stormwater service fee, Stormwater user fee, Stormwater drain/drainage fee, Flood management fee, Runoff fee, Stormwater ge, etc. This article uniformly adopts the name of rainwater charge.

02 Several key issues in rainwater charges

2.1 Is it "tax" or "fee"

"Tax (Tax)" and "fee)" are different in the legal scope. "Fee" emphasizes the principle of paid use, such as corresponding charges for pollution control (such as sewage fees, garbage fees) or resource consumption (water fees, electricity fees).The operation of "fees" is more like an emphasis on management's business behavior, and charges are charged to maintain corresponding work expenses. Most of the rainwater charges in the United States are carried out in the form of "fee", which is more in line with the original intention and actual effect of rainwater charges. At the same time, there is another reason that the public is more likely to accept, understand and accept "fees". Interestingly, most of the use of "rain tax" in the United States appears in articles against "rain water fees", where opponents gain more support by calling "fees" a "tax".

There are also some regions in the United States that implement stormwater charges in the form of "tax", such as the stormwater charges added to real estate taxes that began to be implemented in July 2019. Recently, some research has also believed that from economic theory and public finance implementation, we can evaluate whether some "stormwater fees" are disguised "stormwater taxes", and both "taxes" or "fees" can be used for the implementation of stormwater plans, and the differences may not be too big.

In combination with China's national conditions, rainwater charges are recommended in China to implement the form of "fees". This is in line with the original intention and significance of promoting rainwater charges. It emphasizes paid use and special funds, and is easier to get the public's understanding and acceptance.

2.2 The basis and benefits of rainwater charges

The current consensus in the industry is that the natural phenomenon of rainfall itself is not the reason for rainwater charges. The changes in natural water circulation by human activities (such as the increase in impermeable area) cause changes in runoff water volume and water quality to cause changes in rainwater charges. These changes have led to negative impacts such as water resources, water environment, water ecology, and water safety (such as increased flooding, environmental deterioration, river erosion, water shortage and groundwater water levels, etc.), and it is necessary to reduce these negative impacts or restore the natural water circulation state before development. The main reason for the United States' implementation of stormwater charges is the pressure of licensing requirements to deal with these negative impacts and the shortage of funds for stormwater management. The benefits of stormwater charges are also obvious. Compared with traditional government fiscal appropriations, the source of funds for stormwater charges is stable, predictable, and can be used specifically for stormwater management. In addition, rainwater charges can guide and change public behavior, encourage society to use municipal resources more efficiently, and also better reflect the principle of equality and rationality.

Rainwater charges are implemented in China as a sustainable dedicated fund for modern stormwater management expenses such as sponge cities. Before implementing rainwater charges, it is necessary to carry out public education and publicity so that the public can scientifically understand the impact of rainwater and understand the nature of charging.

2.3 The areas where rainwater charges are implemented in the United States

The earliest rainwater charges in the United States appeared in the 1970s, but they were not implemented more widely until the 1990s. Western Kentucky University in the United States has conducted years of research on the charges of rainwater. Statistical results show that the number of areas for rainwater charging has been increasing in recent years, from 635 in 2007, 1,122 in 2010, 1,417 in 2013, 1,639 in 2017, and 1,716 in 2019. Areas with stormwater charges cover nearly 40 states, as shown in Figure 1. There are a large number of cases of stormwater charging in the United States, but the regional distribution of stormwater charging is not evenly distributed, with less than 10% of the stormwater charging. In 2016, the total amount of stormwater charges in the United States was approximately US$2.1 billion, of which US$1.7 billion was generated in 303 charging areas. Charges are more in some towns with concentrated populations. Many of these areas have the requirements for rainwater permits for Phase I and Phase II of the US NPDES and their own accumulation of rainwater. The pressure on rainwater management is relatively high; in addition, since rainwater charges are more complicated than water charges and sewage charges, the proportion of management expenditures implemented by administrative areas with a large population is lower; in addition, the education level of large cities and the public's acceptance of rainwater charges will generally be better.

The United States generally needs to pass relevant bills (Act/Bill) at the state level first to authorize or promote state stormwater charges. Then the county or city level formulates laws and regulations (Ordnance) and is responsible for the specific implementation.For example, the Watershed Protection Restoration Act-Bill 987 passed by Maryland in April 2012 requires nine counties in the state and the city of Baltimore to formulate their own stormwater charging system. There is also the Clean Stormwater and Flood Reduction Act-Bill 1073 passed by New Jersey in March 2019, allowing state-owned stormwater charges to be created. Through years of hard work, on the basis of continuous improvement of laws and regulations in the United States, the legal disputes over stormwater charges have decreased from 25% in 1998 to 5.4% in 2013.

Judging from the situation in the United States, rainwater charges will be concentrated in some towns with higher population density for a long time. China is more likely to take the lead in developing cities with relatively systematic management of sponge cities, clear rainfall management goals, and a solid foundation in public education. From the central government to the local government, there are also many preliminary preparations such as legal foundations that require preparation. Rainwater charges are encouraged or promoted in legislation, and rainwater charges are allowed to start in appropriate circumstances.

2.4 Charge volume

Western Kentucky University's research has counted the charges for rainwater charges in the United States. It was found that the states vary widely, with the median monthly charges ranging from $1.68 to $11.70, see Figure 2. There are also big differences between different charging areas in each state. For example, there are 27 areas in Pennsylvania where stormwater charges are around $7, while the average stormwater charge per household in Philadelphia is $13.48 per month.

Figure 3 shows a horizontal comparison of rainwater charges and water charges and sewage charges in 30 major cities in the United States. The differences are still huge in different places, but it can be seen that the rainwater charges are significantly lower than the other two charges.

China has a vast territory, and the social, economic and environmental conditions related to rainfall management in various places are also different. In the future, rainwater charges need to fully consider various factors such as local economic affordability, social acceptance, and financial needs. Whether or not charges and the amount of charges cannot be one-size-fits-all. A separate survey and feasibility analysis are required, and a discussion is made on a case by case basis. Although the absolute reference value of the charges in the United States is limited, judging from the situation in the United States, the stormwater charges should be lower than the water charges and sewage charges.

2.5 Charge calculation method

There are also many calculation methods for rainwater charges in the United States. Some pay flat fees by households, some add water usage, some pay fees according to land use (Tier), and some determine the charging amount based on the land area and nature. The last method requires collecting site information for some calculations, but it can better reflect the principles of paid use and fairness, and is easier to gain public recognition. It is the most common method in the United States. Among them, the "equivalent residential unit" calculation method (ERU, Equivalent Residential Unit) accounts for more than half of the United States.

Take Philadelphia as an example. Before 2010, the Philadelphia rainwater charge was charged additionally in the water charge. Although the method is simple, fairness is questioned. Some large shopping malls occupy a large area and impermeable area, but because of their low water consumption, the rainwater fee is not much. Although the rainwater impact of some nurseries is limited, they have to pay higher rainwater costs. Therefore, since July 1, 2010, Philadelphia has gradually changed the calculation method of rainwater charges to be calculated based on the plot area and water permeability (Parcel based).

In the future, it is also recommended that the mainstream use the calculation method based on area, especially the impermeable area. This method is relatively fair and reasonable, and it also facilitates the owners to carry out rainwater transformation. However, in areas where conditions do not allow (such as missing plot information and data), or in order to save management expenses, adopting a simpler approach to transition can also be considered.

2.6 Other funds supplements besides rainwater charges

rainwater charges provide a stable and independent source of funds. However, the funds obtained from rainwater charges alone are not enough to deal with rainwater management expenses in many cases. For areas where there is no stormwater charge, and when there is stormwater charge but insufficient expenditure, managers still need to obtain funds from other channels.Some common methods include: Bonding for capital improvement, Capitalization recovery fees, Developer extension/latecomer fees, Federal and state funding opportunitiesgrants, loans, and cooperative programs, basic funds and tax revenues, environmental impact fees, construction fees (In-lieu of construction fees), public private partnerships, design reviews, inspections, and special user fees (Plan). Review, development inspection, and special user fees), property taxes, special assessments, etc.

It can be foreseen that relying solely on rainwater charges to deal with sponge cities' expenses will be difficult to achieve in most cities in the short term. For a long time in the future, other financial support from the central and local governments will still be needed.

2.7 Incentives, Credits and Reduction Policies for Rainwater Fees

The use of funds for Rainwater Fees needs to be disclosed to the greatest extent, and special funds are used for special purposes. It is necessary to maintain information communication with the public and mobilize social participation and cooperation. Rainwater charges are different from water charges and sewage charges, and relevant incentives, refunds and exemptions should be formulated. Statistics show that about half of the stormwater charging system in the United States includes policies that encourage owners to carry out stormwater renovation and provide corresponding rewards or exemptions. For example, the renovation of green infrastructure in Philadelphia can reduce the stormwater fee by up to 80% of the site. In this way, the renovation of a medium-sized business building may save the owners 100,000 US dollars in rainwater expenses in the next 40 years. Scattered residents in Philadelphia can also undergo stormwater renovation and apply for a reduction in stormwater fees. If you can attend a lecture at the Philadelphia Water Office and receive a free rainwater bucket, after normal installation and use, you can apply for the government's "Rain Check" project to reduce stormwater fees. Through this method, rainwater from many sources, private lands can be controlled.

In the future, China's rainwater charging system should also introduce corresponding incentives, refunds and exemptions policies at the same time, which is a reflection of the fairness and scientific nature of the charging system. By supporting and encouraging owners to carry out rainwater transformation and mobilizing the active participation of the public will also help achieve the goal of building a sponge city.

2.8 Preparation of the rainwater charging system

A smoothly implemented rainwater charging system requires a lot of preparation and preparation work in the early stage, and sometimes several years of hard work are required. The US Federal Environmental Protection Agency (EPA) introduced some preparation steps:

does a good job in feasible research;

establishes a good accounting system, collects payer information, predicts the amount of payment, and establishes payment and usage processes;

launches a public information system to understand key users and groups, establishes a steering committee containing personnel from all walks of life, and establishes a website for rainwater charging information. Prepare publicity materials and speech materials, communicate with key payment groups and media, and distribute introduction and publicity materials in advance;

formulates urban-level laws;

establishes refund and exemption policies;

implements. The initial implementation of

sponge city has benefited the public and laid a good foundation for rainwater charges. Although rainwater charges may not be implemented in China in a short period of time, a lot of preparations can be carried out in advance.

03 Common reasons for opposing rainwater charges and responses

3.1 Questions about the rationality of charges

Some opponents believe that rain is a natural phenomenon, and charging for "rain" is just a way for ruling people to obtain increased taxes in different ways, such as the Democratic Party in Maryland, USA in 2015 criticized the Republican Rainwater Charge Act. In response to this type of doubt, before promoting rainwater charges, we need to do a good job in public education and scientific publicity, popularize relevant knowledge of water environment, water safety, and water resources, analyze the changes and impact of human activities on runoff, introduce the content of rainwater management, and maintain sufficient communication with the public.

3.2 Questioning the legality of charging

rainwater charging behavior, its legality is a necessary condition.Since people's understanding of modern stormwater management is relatively behind sewage, and the legislative basis for many areas and rainwater is insufficient, the United States has also been working hard to continuously improve rainwater charges after years of hard work. The legal support system related to modern rainwater management in my country is not yet sound. It is necessary to improve relevant laws and regulations at all levels as soon as possible, strengthen the revision of rainwater-related content, and lay the foundation for the implementation of rainwater charges in the future.

3.3 Questions about the charging process

3.3.1 Increased economic burden

The public generally opposes increasing any economic burden, especially when it comes to "tax". First of all, it is recommended that our country also adopt the name and method mainly "fee" to charge rainwater. In addition, since our sponge city construction requires a lot of funds to deal with the problems caused by previous developments, many completed projects also require funds for operation and maintenance. It is expected that other forms of financial support will still be indispensable for a long time. In this case, the amount of rainwater charges needs to be considered more about the local acceptance ability and discuss it one by one. The recommended charges are significantly lower than those of water and sewage fees.

3.3.2 Calculation method is unfair

In addition, the large number of objections are not questions about the charge amount, but some people believe that the calculation method of charge is unfair and cannot reflect the actual resource use or pollution amount. This is also the United States' charging methods are mostly linked to area, especially the impermeable area. It is recommended that my country also promote similar methods, but when the basic plot usage information is incomplete and the charging amount is not high, it is also possible to consider using relatively simple calculation methods (such as attached to the water fee) for the transition first.

3.4 Questions about the use of funds

Some opponents believe that the environment of the plot or water system they are in is still good, and the use of funds is mainly concentrated in other areas (such as the downstream of the water system). Opponents believe that the destination of rainwater charges is opaque, inefficient or insignificant. In this regard, it is necessary to scientifically introduce and develop changes in stormwater runoff, upstream and downstream relationships, and highlight the concepts of comprehensive watershed management and governance in order to gain public understanding and support. It also needs to be used for special purposes, transparent and open, and to make policy mobilizations such as incentives, credits and exemptions. In addition, when building the charging system, more scientific methods and technologies are adopted, efficient management processes are established, and the main funds are used on actual projects.

04 Conclusion

By studying the rainwater charging system in the United States, it can provide some reference for rainwater charging in my country. The summary is as follows:

Rainwater charges are more suitable for the name and method of "fee";

Rain is not the reason for rainwater charges, but the change of runoff by human activities;

The amount of rainwater charges in the United States varies greatly in different regions, but are generally less than sewage charges and water charges. When implementing the specific implementation, we need to conduct research based on the relevant local social, economic and environmental basic conditions and discuss each matter;

The calculation method of rainwater charges in the United States is mostly related to the land area This method is fair, especially those related to impermeable areas (such as the ERU method), and this method is relatively fair;

rainwater charges are likely to be insufficient to cope with the expenses of rainwater management, and conventional financial support is still needed for a long time;

rainwater charges should be used specifically and transparently, and corresponding incentives, refunds and exemptions should be formulated; the establishment of the

rainwater charge system, from the beginning of feasibility study to implementation, can refer to the experience of developed countries to formulate an appropriate action framework.

Rainwater charges cannot completely solve the funding needs of modern rainwater management represented by "sponge city", but it is an important source of funds that can be expected, sustainable and dedicated, and can also mobilize social participation. There will be various oppositions and doubts during the establishment of the new charging system. It is necessary to do a good job in preliminary research, publicity and education, social participation, and improve legislation, and work together from multiple aspects and departments.

Original title: Water supply and drainage | Introduction to the US rainwater charging mechanism and reference for sponge city construction

Disclaimer: The above content is reprinted from Polaris Electric Power News Network, and the content posted does not represent the position of this platform.

National Energy Information Platform Contact number: 010-65367702, Email: [email protected], Address: People's Daily, No. 2, Jintai West Road, Chaoyang District, Beijing