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Water and Planning

Introduction
The Pathway To Water Reform
National Water Initiative
Principles For Greater Water Efficiency
Statutory Planning Perspective
Water Sensitive Urban Design
PIA Response
Useful References For Planners

Introduction

As the driest inhabited continent, Australia must use its limited water resources wisely. Of all continents, it has the least river water, the lowest run-off and the smallest area of permanent wetlands. Australia’s rainfall and stream flow are the most variable in the world and our inland streams are naturally turbid and saline. Droughts and floods are common. There are few permanent, freshwater lakes; where lakes do occur they are usually shallow, salt lakes that are dry more often than not.

The largest river system is the Murray-Darling which drains about one-seventh of the continent, but it carries much less water than comparable river systems in the rest of the world. Over large tracts of inland Australia, groundwater is the only practical source of water for pastoral and mining industries and local communities.

Since the early days of European settlement, the development of water resources to support the economy and human population has been a priority. Today, Australia has one of the highest total per capita water consumption levels by international standards.

PIA considers that, as a nation, we must manage surface water, including rivers and streams and groundwater reserves, more sustainably. Much groundwater is ancient water, more appropriately managed as a finite, non-renewable resource. Great care needs to be taken to maintain these groundwater reserves by avoiding overuse, waste and contamination. Problems of water quality, water quantity and ecosystem health are related to the way water resources are used and associated activities are managed on a whole-of-catchment basis.

The major issues facing the health of catchments and waterways include:

Altered flow regimes
Unsustainable levels of water use, including over-allocation of some water reserves
Land clearing and poor land management
Turbidity
Irrigation drainage
Spreading salinity
Loss of wetlands
Inadequate awareness of environmental issues and solutions

The Rural Sector

The amount of water used in the agricultural sector is far greater than that used in urban areas. The agriculture sector consumes 65% of the bulk net water consumed each year, the industry and manufacturing sectors 23% and the household sector about 11%. In addition, water consumption by irrigated agriculture has been steadily increasing over the last two decades.

The amount of water in rivers in irrigation areas has been dramatically reduced during the non-irrigation season because of dam construction and poorly controlled extraction of water from rivers and groundwater reserves. In the Murray-Darling Basin in particular, water is over-allocated and demand continues to rise. Over-allocation is placing aquatic environments under severe stress in these regions.

Groundwater provides domestic water for more than one million Australians in 600 communities and 60 per cent of the continent relies on it for all uses except drinking water. In a number of basins – in particular the Great Artesian Basin – groundwater is being used faster than it is being replenished. Elsewhere, rising water tables from land clearing and surface water irrigation are waterlogging and salinising streams and large areas of land.

The Urban Sector

Domestic consumption has increased significantly over the past 40 years as a consequence of increasing population and rising per capita use. However, it varies significantly from place to place, according to rainfall, number of rain days, mean temperatures and humidity, availability of water, pricing and education. Annual household consumption of water in Darwin is about 2.5 times that in Sydney.

Australians use about 290 litres of water per person per day (this varies significantly across the country from 493L/day in Western Australia to 221L/day in Victoria), and despite significant reductions in per capita consumption over the past decade, overall demand is gradually increasing due largely to increasing population. On current trends many cities and towns in Australia will need to find new sources of water unless there are significant improvements in water conservation.

Some cities and towns are harvesting water from aquifers at a greater rate than they are being recharged. For others, the quantity and quality of water in their water catchments is under pressure from agriculture and logging.

Urban water users are also now competing for water against irrigation and environmental flows for rivers and streams and this competition is likely to become more intense over time as irrigation-dependent agriculture keeps expanding and the forecast reductions in average rainfall as a result of climate change take effect.

Within cities, data on water use suggest that residential housing block size is the most important factor affecting consumption because of garden- and lawn-watering. Thus, core and inner areas can consume about half the water per head than outer suburbs.

Many factors control whether we have a consistently safe supply of drinking water. These include catchment protection and management, coverage of storage tanks, water treatment and maintenance of a reticulation system that prevents the entry, growth and transmission of pathogens. Storing water in reservoirs allows time for particles to settle out and pathogens to die.

The urban water industry is no longer a series of monopolistic public utilities concerned only with delivery of a product. Competition has been introduced, and policy and regulation have been separated from operations. Regulatory bodies now protect customer interests, oversee the performance of providers, and require providers to show the cost effectiveness of their decisions as well as the effects of these decisions on water prices.

The Pathway To Water Reform

All levels of government recognise that coordinated action is needed to move towards sustainable development, and to stop the widespread degradation of Australia’s natural resources. In 1992, the Australian heads of Government endorsed the National Strategy for Ecologically Sustainable Development. The Strategy sets out the framework for co-operative decision-making in government, and the promotion of ESD principles throughout Australia

In 1994, the Council of Australian Governments (COAG) set out a strategic framework for reform of the water industry; and in April 1995, the COAG National Competition Policy and Related Reforms Agreement incorporated the water reform framework and set Commonwealth performance-based tranche payments for States and Territories implementation. The strategic framework for water reforms embraced:

Pricing reform based on the principles of consumption-based pricing and full cost recovery
The reduction or elimination of cross-subsidies and making subsidies transparent
The clarification of property rights
The allocation of water to the environment
The adoption of trading arrangements in water
Institutional reform
Public consultation and participation

COAG also agreed that action needed to be taken to arrest widespread natural resource degradation in all jurisdictions occasioned, in part, by water use.

Environmental requirements set out in the 1995 COAG agreement were, wherever possible, to be determined on the best scientific information available, and have regard to inter-temporal and inter-spatial water needs required to maintain the health and viability of river systems and groundwater basins. In cases where river systems have been over-allocated, or are deemed to be stressed, arrangements were to be instituted to provide a better balance in water resource use, including appropriate allocations to the environment, in order to enhance/restore the health of the river system.

Periodically most States and Territories in Australia have reviewed statutory and administrative arrangements for natural resource management. Arrangements vary considerably between States from institutional models with high levels of community empowerment to those where State Government agencies retain full responsibility for all legislative functions. The process of reform has been complicated by the different approaches taken in each State and Territory, administrative difficulties because accountability for water is vested in a range of State and local government authorities, and a range of scientific, technical and political issues associated with identifying and allocating water for environmental flows.

The current driver of water reform is the National Water Commission, which is responsible for the implementation of the National Water Initiative. The National Water Initiative is intergovernmental agreement that was signed by all governments at the June 2004 Council of Australian Governments (COAG) meeting (with the exception of Tasmania which signed the Agreement on 3 June 2005 and Western Australia which signed the Agreement on 6 April 2006). The National Water Commission was established under the National Water Commission Act 2004 and its role is to advise COAG and the Australian Government on national water issues and the progress of the National Water Initiative.

National Water Initiative

The NWI represents a shared commitment by governments to increase the efficiency of Australia's water use, leading to greater certainty for investment and productivity, for rural and urban communities, and for the environment. Under the NWI, governments have made commitments to:

prepare water plans with provision for the environment
deal with over-allocated or stressed water systems
introduce registers of water rights and standards for water accounting
expand the trade in water
improve pricing for water storage and delivery
meet and manage urban water demands.

The overall objective of the National Water Initiative is to achieve a nationally compatible market, regulatory and planning based system of managing surface and groundwater resources for rural and urban use that optimises economic, social and environmental outcomes. Each state and territory government is required to prepare an NWI implementation plan. The National Water Initiative agreement includes objectives, outcomes and agreed actions to be undertaken by governments across eight inter-related elements of water management.

The National Water Commission states that the National Water Initiative will achieve:

clear and nationally-compatible characteristics for secure water access entitlements
transparent, statutory-based water planning
statutory provision for environmental and other public benefit outcomes, and improved environmental management practices
complete the return of all currently over-allocated or overused systems to environmentally-sustainable levels of extraction
progressive removal of barriers to trade in water and meeting other requirements to facilitate the broadening and deepening of the water market, with an open trading market to be in place
clarity around the assignment of risk arising from future changes in the availability of water for the consumptive pool
water accounting which is able to meet the information needs of different water systems in respect to planning, monitoring, trading, environmental management and on-farm management
policy settings which facilitate water use efficiency and innovation in urban and rural areas
addressing future adjustment issues that may impact on water users and communities
recognition of the connectivity between surface and groundwater resources and connected systems managed as a single resource.

The National Water Initiative agreement includes outcomes and commitments to specific actions across eight inter-related elements of water management:

water access entitlements and planning
water markets and trading
best practice water pricing
integrated management of water for environmental and other public benefit outcomes
water resource accounting
urban water reform
knowledge and capacity building
community partnerships and adjustment.

For more information about the NWC, NWI and implementation progress, please visit the Natural Water Commission website.

Principles For Greater Water Efficiency

Responses to urban and rural water issues need to encompass a range of measures to improve water efficiency and natural resource management. These are expressed in the main as best practice water conservation principles:

Actively Managing Demand – There is considerable scope to reduce water use and achieve efficiencies. On the domestic scene, water efficient appliances in the home and garden can dramatically reduce water consumption in dwellings. However, a change of behaviour will be necessary to stop the hosing down of driveways, watering lawns in the heat of the day, and taking long showers.

Improving Regulatory Measures – Using and refining statutory mechanisms for the management, protection and enhancement of waterways, including legislation, environmental protection policies, codes/guidelines for appropriate practice, and the identification of water protection areas.

Applying Incentives – Market based instruments may be used in conjunction with regulation to influence households and businesses towards the adoption of better practices. Their main role is in rewarding those prepared to exceed the accepted duty of care and encouraging outcomes which exceed current standards.

Use of Locally Collected and Alternative Water Supplies – Encouraging greater use of tank water as an alternative source of water for toilet flushing, laundry and garden watering, along with on-site use of stormwater and grey-water. This can contribute to substantial reductions in the 60% of residential water used in bathrooms, toilets and laundries, as well as the 40% of non-residential water use in urban areas.

Avoidance of Water Use – Reduce dependency on reticulated water by sweeping paths instead of hosing them, using dry composting toilets, using insulation, shading and natural ventilation to cool houses, and adopting water free gardens and landscape design.

Reduced Water Use – Reduce the amount of water used by water efficient landscaping, practical installation of water efficient devices, and adopting water conservation management practices that educate residents and Council staff about water conservation.

Stormwater Use – In the drier parts of the continent, reduce wasteful stormwater run-off into the sea and retain stormwater as far as possible to replenish wetlands and for recycling to other uses.

Recycling Water – Use waste water or reclaimed water from one application such as wastewater treatment for another application, subject to the satisfaction of health and other regulatory requirements. The objective is to reticulate locally sourced recycled water of a quality safe for unrestricted non-potable use for garden watering and other uses around the home, irrigation of public open space, and industrial uses. Water-efficient gardens and landscapes can be designed to take as little water as possible from the environment. This involves substituting mains water with tank water, grey water, and treated effluent (if there is an on-site wastewater treatment system or third pipe supply).

Dispose of Water Appropriately Back into the Environment – Ensure that grey, brown or black water is properly treated, recycled or reused, and release of used water into the environment does not cause degradation of catchments, groundwater, rivers or streams, coastal or marine environments. We should not use the term “waste water”, for with appropriate treatment, waters can be regenerated and renewed. Natural ecosystems such as wetlands and stream environments aid the aeration, filtration and purification of water. However, they have a limited capacity to do this. Releasing used water back into the environment must be managed in accordance with true environmental capacity to absorb contaminants. Minimising use of harmful contaminants and/or on-site treatment of contaminants in used water, by the user, is the preferred management approach.

Strategic Planning for Catchments and Resource Management – Coordination of planning, implementation and monitoring of sustainability policies at the catchment and local government levels, helps communities focus on natural resources management and appropriate guidance of land uses and development activities. Integrated planning facilitates the focusing of efforts and resources of a diverse range of public and private sector bodies and local communities to resolve commonly identified problems.

Monitoring and Evaluation – Ensuring that best practice principles are implemented, maintained and produce measurable improvements, and regularly monitoring, evaluating and reporting on progress in water resource management and conservation.

Innovations – Continue to invest in water efficiency following evaluation of the relative cost of demand-side options (leakage reduction, water efficient incentives and retrofitting programs, outdoor water efficiency programs, water efficiency programs for business) compared to supply-side options (surface and groundwater water source development, desalination, effluent and stormwater reuse).

Integrating Water Management - There is increased awareness that the three parts of the urban water cycle (water supply, sewage and stormwater) need to be considered in an integrated way, in the interests of improving cost effectiveness and increasing sustainability. New Greenfield developments and urban renewal projects provide many opportunities to implement new systems at lower marginal costs than retrofitting provides, and to trade off the cost of maintaining older, less efficient reticulation systems with more innovative treatment systems which can provide more locally appropriate scales and types of treatment and reuse.

Australia has working examples of facilities that can treat waste water to the highest standards, up to and including potable water. Technologies include membrane filtration, bio-remediation, and dissolved air flotation processes. These tertiary treatment technologies are gradually being adopted and will be instrumental in rectifying the damage caused to waterways and coastal areas from sewage discharges. Smaller scale treatment plants will offer opportunities for reuse of water in individual suburbs, office buildings, and residential developments. Systematic introduction of integrated water management technologies in infrastructure investment projects is necessary if we are to achieve this new future for Australia.

Statutory Planning Perspective

Statutory planning has an important role to play in permitting or prohibiting settlement and associated land use activity in inappropriate locations such as flood prone areas. In addition, planners make a valuable contribution to broader planning issues, by balancing competing economic, environmental and social objectives in the development and conservation of land.

Traditional urban development places pressure on the quantity and quality of water resources by increasing impervious areas which limits the potential for infiltration and groundwater recharge. Water quality is also affected by increased volumes and flow peaks of stormwater run-off.

New development utilising rainfall run-off and recycled effluent, assisted by techniques such as wetland storage and aquifer storage and recovery is becoming increasingly accepted. However, planning can do more.

By defining how, where and when new development occurs, the planning system can play an important supporting role in promoting water conservation. It would be desirable, for example, if planning strategies, Development Plans, and development assessment included the principles of the water conservation hierarchy – avoid, reduce, reuse, recycle, and discharge, where necessary, in an environmentally responsible manner

PIA is aware of the limitations of statutory planning in relation to effective water management. However, it is important for statutory planning documents at the regional and local level to be supportive of the various water conservation measures identified above, or, at the very least, not to be in conflict with those measures.

Best practice water conservation principles can be integrated into State and local council planning policies and commitment to water conservation incorporated into Development Plan Reviews and amendments. Development Plans can take into account catchment water management plans and water allocation plans to ensure an integrated approach.

These policies provide a supporting framework within which other plans and programs such as Agenda 21, municipal public and environmental health, strategic and corporate plans, etc. can be undertaken to best possible advantage by local councils and communities.

The strategic integration of catchment management principles for urban stormwater can be achieved by the preparation of Urban Stormwater Master Plans for each Council area in conjunction with local catchment authorities (to identify the specific circumstances of stormwater management in that area and opportunities for infrastructure upgrading and stormwater use) and amending Local Government Development Plans accordingly.

In short, where prevailing policy initiatives have a spatial component, statutory planners remain well placed to contribute to, and incorporate, the identification and definition of objectives, boundaries and associated planning and development control principles.

Water Sensitive Urban Design

Water Sensitive Urban Design (WSUD) is the integration of urban planning with the management, protection and conservation of the urban water cycle, considering both natural hydrological and ecological cycles. The principles provided for the sustainable use and reuse of water from a range of sources, including those traditionally seen as waste, such as ‘greywater’ and ‘blackwater’.

WSUD principles can be applied on-site in a range of land uses including residential, commercial ad industrial, and at a range of development scales from large-scale greenfield developments to small infill developments.

The WSUD principles include methods of:

Utilising water saving measures within and outside domestic, commercial, industrial and institutional premises to minimise requirements for drinking and non-drinking water supplies;
Storage, treatment and beneficial use of runoff (at building and street level, including stormwater);
Treatment and reuse of wastewater; and
Using vegetation for treatment purposes, water efficient landscaping and enhancing biodiversity and amenity.

The incorporation of WSUD principles into planning policy and urban design programs and projects is an important opportunity for planners to contribute to improved water management.

The NWI recognises the importance of integrated urban planning in the development of water sensitive cities. It includes support for icon water sensitive urban developments and guidelines for evaluating options for water sensitive urban design. The NWC have been collaborating with key academic and industry bodies involved in WSUD including a workshop in Canberra in May 2009. For more information about this, please visit the Creating Water Sensitive Cities in Australia website.

PIA Response

PIA supports the restoration of environmental flows to the nation’s river systems, gains in water delivery and usage efficiency, and education, assistance and incentive for land managers to reduce salt inflow into the river systems.

PIA lobbies all levels of governments through submissions and advocacy forums to make effective use of planning as a tool to assist in the management of our water resources.

PIA commits to promoting widespread adoption and implementation of the General Principles and Specific Action Areas for Greater Water Efficiency. In addition, PIA endorses and promotes the following principles in relation to planning for water quality and management:

Awareness Raising and Capacity Building - Raising awareness of the need for water conservation and effective management; and building skills and capacity to address these issues at regional and local planning levels. In particular, to increase understanding of:
- The importance of the river channel, floodplains, riparian lands and wetlands as a total system
- The principles of integrated catchment management to protect water dependent ecosystems
- The impacts of development on water quality, quantity and biodiversity
- The means of ensuring that new (and existing) irrigation development, if it occurs, is sustainable and has minimal impact on ground and surface water resources and utilises the water conservation hierarchy
Promotion of Best Practice - Promotion of best practice water conservation and water sensitive urban design related examples of demonstration projects that have been successful including:
- Water catchment management programs that have been incorporated into statutory plans
- Management of stormwater to control the quantity and quality of flow into rivers, or treating it prior to entry into a waterway
- Water sensitive site planning and design
- Use of industrial and large commercial and retail complexes car park run-off for gardens not waste
- Use of permeable surface materials to car parks etc to reduce run-off into the drainage system
- Reuse of water via small-scale treatment plants
Information sharing - Developing the PIA website as a resource for references to relevant State and Territory strategies and action plans that could provide models of water management for other jurisdictions.
Development Control – Advocating for statutory planning to contribute directly to water conservation and management practices, by incorporating effective water management practices into statutory planning documents.
Pre-Application Information – Providing information on water conservation, water sensitive design, development and management techniques for developers and other disciplines associated with the built environment.
Referring Development Applications – Advocating for the development of referral systems to local catchment water management boards, catchment management authorities and Integrated Natural Resource Management groups. Emphasis should be given to providing over-the-counter and written information for applicants early in the development assessment process, preferably prior to the lodgement of the application.
Monitoring and Reporting – Providing updates on the range of measures being considered and implemented, which aim to regulate, provide incentives, and introduce innovative techniques to reduce the amount of water being used
Building and Plumbing Codes - Supporting the widening of the role of the Building and Plumbing codes of Australia in achieving consistency in water-related best practice regulation across the country.

Policy

Sponsors

Water and Planning

Introduction

The Rural Sector

The Urban Sector

The Pathway To Water Reform

National Water Initiative

Principles For Greater Water Efficiency

Statutory Planning Perspective

Water Sensitive Urban Design

PIA Response

Division Policy Statements

PIA Submissions

Useful References For Planners

Government Departments with Responsibility for Water

Water Sensitive Urban Design

Other Links