Step 1: Define the Project

The first and most important step is to clearly define the proposed construction project and explain why it is needed. At this stage, the governing body should focus on the community’s needs, desired outcomes, and available resources rather than detailed design solutions.

Begin by discussing the following questions:

• What is the proposed project, and why is it needed now?
• What problems will the project solve?
• What opportunities will it create?
• What will happen if the project is delayed or not constructed?
• Is the project consistent with the municipality’s capital improvement plan, comprehensive plan, utility master plan, or other adopted planning documents?
• What is the expected useful life of the completed project?
• What are the long-term costs, benefits, and consequences of the project?
• Who will manage the project during design and construction?
• Who will operate and maintain the completed facility or infrastructure?
• Does the municipality have—or can it obtain—the staffing, equipment, and technical expertise needed to operate the project successfully?
• Can the community afford both the initial construction cost and the ongoing costs of operation, maintenance, repair, and eventual replacement?
• How will the municipality determine whether the project has been successful?

Approach 
Begin with broad goals and desired outcomes rather than specific designs, technologies, or equipment. Technical solutions should be developed later with input from municipal staff, engineers, architects, regulators, operators, and other qualified professionals.

Engage municipal staff early in the process. Employees who operate and maintain existing facilities often recognize problems first and can provide valuable information about system capacity, service demands, regulatory requirements, maintenance needs, and operational limitations.

Involve technical experts and regulatory agencies as appropriate. They can identify applicable requirements, evaluate potential constraints, and provide examples of successful and unsuccessful approaches used by other communities.

Consider visiting similar facilities or projects. Discussions with officials, operators, and maintenance personnel from other municipalities can provide practical information about construction challenges, operating costs, staffing needs, equipment performance, and lessons learned.

Caution 
Keep the initial discussion at a conceptual level. The objective is to establish a clear project framework, not to select an immediate technical solution. Defining the project is an iterative process. Questions concerning what is needed, why it is needed, and how it may be accomplished should be revisited as the municipality receives input from staff, consultants, regulators, funding agencies, and the public.

The municipality should avoid becoming committed too early to a particular site, design, product, or technology. Premature decisions can restrict competition, increase costs, and result in a project that does not adequately address local needs.

Staffing Considerations 
Staffing capacity should be evaluated during the earliest stages of project planning. Many Tennessee municipalities and utilities face shortages of qualified personnel, particularly licensed water and wastewater operators. Larger or more complex facilities may require additional employees, higher operator certifications, specialized maintenance skills, or ongoing technical support. A project that cannot be properly staffed, operated, and maintained may create long-term financial and regulatory problems even if it is successfully designed and constructed.