The Clean Stormwater and Flood Reduction Act authorizes five types of organizations to  establish a stormwater utility:

1. municipalities
2. counties 
3. One or more municipalities that have established a municipal sewerage or utilities authority, which can request that authority to establish a stormwater utility on its behalf
4. Any county that has established a county sewerage, utilities, or improvement authority, which can request that authority to establish a stormwater utility on its behalf
5. Two or more municipalities, or a municipality and a county may enter into a shared services agreement to create a joint stormwater utility.  

A local government will need to weigh the pros and cons of each option. 

See Regionalization: Pros and Cons for further information.