NRM North. Regional Stormwater Quality Management Strategy

Transcription

1 NRM North Regional Stormwater Quality Management Strategy January 2014

2 NRM North Regional Stormwater Quality Management Strategy NRM NORTH, 2014 Level 2 McKenzie Building, Cameron Street, Launceston, Tasmania A copy of this publication is available on the NRM North website: Acknowledgements: This project was funded by NRM North, and developed through consultation with Northern Tasmanian Stormwater Program partners (Break O Day, Dorset Council, Flinders Council, George Town Council, Launceston City Council, Meander Valley Council, Northern Midlands Council, West Tamar Council, NRM North and TasWater) and EPA Tasmania. The strategy was developed for NRM North by consultants BMT WBM.

3 Table of Contents 1 INTRODUCTION 1 2 REGIONAL STORMWATER QUALITY MANAGEMENT STRATEGY (SQMS) Background to the Regional SQMS Development of the Regional SQMS How to use this Document SCOPE OF THE REGIONAL SQMS Vision for Stormwater Quality Management Objective of the Regional SQMS Scope of this Document Limit to the Scope Timeframe Life of the Regional SQMS STORMWATER QUALITY MANAGEMENT Why Manage Stormwater Quality? Stormwater Management Practices Water Sensitive Urban Design (WSUD) What is WSUD? WSUD systems WSUD Treatment Trains Source Control Management Climate Change and WSUD WSUD Case Studies Hoyland Street Biofilter Brisbane Retrofit of Biofilters Great Lakes Council Bramble Parade Ephemeral Wetland Great Lakes Council Integrated Urban Water Management (IUWM) ROLES AND RESPONSIBILITIES OF KEY STAKEHOLDERS Councils Natural Resource Management North (NRM North) The Department of Primary Industry, Parks, Water and Environment (DPIPWE) Environment Protection Authority (EPA) TasWater STATE POLICY, REGULATION, STRATEGY AND GUIDELINES The State Policy on Water Quality Management (SPWQM), The Drains Act The State Stormwater Strategy (SSS) The Land Use Planning and Approvals Act (LUPAA) Environmental Management and Pollution Control Act (EMPCA) NRM North Regional Stormwater Quality Management Strategy January 2014

4 6.6 Tasmanian Open Space Policy and Planning Framework (TOSPPF) Tasmanian Together Plan Tasmanian Wetlands Strategy (TWS) Regional Land Use Strategy of Northern Tasmania Northern Tasmanian NRM Strategy Soil and Water Management on Building and Construction Sites WSUD Engineering Procedures for Stormwater Management in Tasmania BACKGROUND TO DEVELOPMENT OF THE REGIONAL SQMS ACTIONS Barriers/Threats to Improved Stormwater Quality Management in the Region Opportunities for Improved Stormwater Quality Management in the Region STORMWATER QUALITY MANAGEMENT ACTIONS Action Responsibilities Actions Evaluation Monitoring and Reporting STORMWATER QUALITY MANAGEMENT ACTION PLANS 31 APPENDIX A PRIORITISED TOWN/LOCALITY POLLUTANT LOADS 44 NRM North Regional Stormwater Quality Management Strategy January 2014

5 1 INTRODUCTION Tasmania s Northern NRM Region (the Region) is highly valued for its natural beauty. For many, the natural environment is a big part of what makes the Region a desirable place to work and live, and attracts others from abroad for lifestyle change and to holiday. The waterways which meander through the Region are inherent to this natural beauty and of the high value it is awarded. Hence there is great importance in protecting these waterways from threats such as stormwater pollution to support future growth, industry reliant on healthy waterways and the liveability enjoyed by residents across the Region. Stormwater from urban catchments poses a number of threats and hazards to receiving water quality and ecological health. Urban stormwater is mostly untreated and transports pollutants such as litter, nutrients, sediment, heavy metals, pesticides and biological pollutants directly into receiving waterways. The emergence of stormwater as a pollution source has coincided with the evolution of urban environments globally. Extensive impervious surfaces (i.e. roads, roofs, car parks) in these areas prevent rainfall infiltration and cause large volumes of stormwater to generate in short periods of time, creating risk of flood. Consequently, the traditional stormwater management approach became one of drainage and conveyance, very effective in flood mitigation but equally effective in transporting large volumes of polluted stormwater directly into natural waterways. Declining water quality and ecological health in urban catchments has seen stormwater practitioners around the world begin to review traditional approaches to stormwater management. The sole concern is no longer mitigation of potential flooding through removal of stormwater as quickly and efficaciously as possible from urban areas. Emphasis of stormwater management has grown to include the preservation and/or restoration of receiving environments. This review process has seen the establishment of a suite of contemporary best practice stormwater management practices which incorporate both water quantity and quality considerations. Such practices (i.e. Water Sensitive Urban Design) are now recognised, endorsed and promoted by both Tasmanian and Australian Governments. Locally, urban runoff was first officially recognised as a source of pollution in Tasmania by the State Policy on Water Quality Management 1997 which outlines Councils responsibility for reducing stormwater pollution. In 2010 the State Stormwater Strategy was released which set out key principles, standards and accepted guidance documents for stormwater quality management in Tasmania. However, stormwater management processes in the Region remain, in the majority of cases, primarily concerned with quantity issues. Stormwater quality improvement measures have not yet become part of the business-as-usual management framework. In many circumstances stormwater management practices operate largely in a reactive sense, and water quality is only just beginning to emerge as an issue of importance. However stormwater pollution from urban centres poses a very real threat to the environmental values that are so vital to Tasmania s residents for liveability and for economic development in the State, especially that based around Tasmania s clean and green credentials as a tourist destination and place of residence. This Regional Stormwater Quality Management Strategy (SQMS) has been developed to provide the management frameworks and tools necessary to help Councils change to a more proactive management of water quality issues using contemporary best practice methods. The Strategy has been influenced by thorough review and analysis of all Council management processes linked to stormwater through consultation with all Councils in the Region, to ensure a holistic approach which suits the individual circumstances of each Council. Actions outlined in the Strategy will also help Councils fulfil legislative NRM North Regional Stormwater Quality Management Strategy January

6 responsibilities relevant to stormwater, and start the move towards stormwater quality improvement measures becoming business-as-usual across the Region. As this SQMS development process has identified, stormwater management is a complex task, involving many stakeholders, all having different responsibilities and objectives, and a complex array of barriers to the improvement of stormwater management outcomes. Solutions to complex problems require innovation. Innovation is aided by collaboration. By collaborating at the Regional scale with this SQMS, Councils in the NRM North Region are showing they are prepared to innovate, share the effort, and lead by example. This document should therefore be seen as a tool to begin laying the foundation stones for improvement, setting up the management frameworks and tools necessary to change to a more proactive management of water quality issues. Through a consistent and collaborative approach across the Region, the Region can look forward to improved water quality and ecological health to support future growth, economic activity and the liveability enjoyed by many. NRM North Regional Stormwater Quality Management Strategy January

7 2 REGIONAL STORMWATER QUALITY MANAGEMENT STRATEGY (SQMS) 2.1 Background to the Regional SQMS This Regional SQMS aims to bring about the achievement of water quality objectives throughout the NRM North Region (the Region, as shown in Figure 2-1) through consistent approaches to stormwater quality management by authorities within the Region. Development of this Regional SQMS has been initiated by NRM North and the Northern Tasmanian Stormwater Program which aims to progress and co-ordinate stormwater quality management activities across the entire Region. The structure of this Regional SQMS includes a main body to the document which deals with aspects of stormwater quality management that are consistent across the entire Region, along with a detailed Stormwater Quality Management Plan (SQMP) for each Council included as appendices. This structure provides a cohesive framework for management of stormwater quality issues across the Region by taking advantage of efficiencies that can be gained from combining management strategies across municipalities, whilst offering enough detail at the municipal scale to aid stormwater management decision making by individual Councils to achieve water quality improvement goals. The Regional SQMS strategies focus on possible improvements in the management areas of: Policy and Planning; Operations; Regulation; and Education. The Regional SQMS is further accompanied by a Decision Support Tool to assist Councils with WSUD infrastructure planning. The SQMP appendices are intended to loosely follow the format of this Regional SQMS, highlighting aspects of stormwater management unique to each municipality. The appendices highlight specific catchment characteristics, hotspots and opportunities as well as a discussion of barriers to the improvement of stormwater quality management practices peculiar to each Council. The appendices also provide a number of future strategies for improved stormwater quality management and achievement of water quality improvement objectives. Every attempt has been made to structure the document and the strategic Actions so this Regional SQMS and appendices may be easily adopted alongside other Council planning and management documents, and become a useful tool in overcoming barriers to improved stormwater quality management practices in the Region. 2.2 Development of the Regional SQMS Development of this Regional SQMS was informed by a review of current Council stormwater management process and procedure. This review consisted of: An assessment of existing management documents for the Region; Consultation with Councils and interviews with key staff; and A workshop session with key stakeholders, including Council representatives, and external stakeholders such as TasWater and the EPA. The findings of this process along with an assessment of the current state of the industry informed the development of this Regional SQMS. This ensures the strategy is appropriate for the Region whilst NRM North Regional Stormwater Quality Management Strategy January

8 reflecting current best practice in the field of stormwater quality management and protection of waterway values. This Regional SQMS has been developed to provide a strategic approach to stormwater quality management within Council s areas of responsibility, to ensure that management Actions are consistent with current regional, state and federal stormwater quality management responsibilities. It aims to improve stormwater quality management outcomes by implementing improved Council processes and systems; strengthening stakeholder communication and cooperation; and building on the success of previous education campaigns for the wider community. 1 Flinders Council 2 Dorset Council 3 George Town Council 4 West Tamar Council 5 Launceston City Council 6 Break O Day Council 7 Meander Valley Council 8 Northern Midlands Council Figure 2-1 NRM North Region NRM North Regional Stormwater Quality Management Strategy January

9 2.3 How to use this Document This Regional SQMS has been developed as a strategic tool for Councils to forward the improvement of stormwater quality management in the Region. The document provides: An introduction which may be presented to Councillors as an overview of this Regional SQMS objectives; Background information on stormwater quality management and current best practice approaches used to mitigate threats posed by stormwater pollution; A summary of key stakeholders in stormwater management in the Region and their roles; A summary of the policy and regulation framework Councils are operating under with regard to stormwater management, outlining Councils responsibilities under State policy; A summary of the main threats, barriers and opportunities raised by stakeholders as part of the consultation informing the development of this Strategy; A table of Regionally specific Actions and detailed Action Plans, to be carried out or co-ordinated by NRM North for the dissemination and benefit of all Councils; and A Stormwater Quality Management Plan for each Council included as appendices, listing information unique to each Council, including a table of municipal Actions and detailed Action Plans; The development of a strategic approach to implementation of improved stormwater management is aided by the provision of a Decision Support Tool. This Microsoft Excel tool leads Councils through: A process of prioritisation of sub-catchments to assess the best-bang-for-buck sub-catchments in which to begin implementation of stormwater quality improvement measures; A desk-top risk assessment of implementation; and A tool which provides deemed-to-comply estimations of potential treatment train solutions, providing size and cost estimations. NRM North Regional Stormwater Quality Management Strategy January

10 3 SCOPE OF THE REGIONAL SQMS 3.1 Vision for Stormwater Quality Management Stakeholders participating in the NRM North Regional SQMS will strive to successfully meet their responsibilities for the management of stormwater quality to protect and enhance waterway values through the improvement of stormwater quality. We will provide leadership in stormwater quality management and encourage and support community action. We will encourage initiative and growth with respect to implementation of stormwater harvest and re-use and the re-greening of urban space. 3.2 Objective of the Regional SQMS The objective of the Regional SQMS is: To be a working tool for three years subsequent to adoption of the plan, for improved stormwater quality management, through application of tools and strategies which provide a consistent approach to stormwater quality management tasks and processes in the Region. 3.3 Scope of this Document The vision and objective are addressed in this Plan by providing: A documented statement of commitment to improving stormwater quality management within the Region; A description of responsibilities for Councils and external stakeholders involved in stormwater management at various levels throughout the Region; Current best practice examples and case studies providing anecdotal evidence of successful implementation of WSUD to assist in implementing Actions and giving support to potential business cases; An Action Plan for improved stormwater quality management, for the next three years (which is the scheduled timeframe for review and renewal of this Regional SQMS); Designated responsibility for Actions and a framework for frequent evaluation and reporting on the progress of the Actions (through meetings between all stakeholders involved in Action outcomes). This strategy is designed to provide a pathway to improved stormwater quality management over the next three years, through implementation of the Actions contained in this Regional SQMS. The Actions in this Regional SQMS are targeted at: Providing integration of some common strategies for improved stormwater quality management practices and processes across Councils in the Region; Improving management tools (i.e. amendments to planning and policy at a Regional level, community education campaigns and packages and development of tools such as maintenance schedules for WSUD infrastructure, which maybe common for all Councils); Developing internal technical skills and expertise (i.e. internal training Actions can be rolled out across the Region); NRM North Regional Stormwater Quality Management Strategy January

11 Improving communication and co-operation between stakeholders involved in stormwater management (i.e. meetings, communication channels); and Showing leadership and commitment to water quality objectives, and supporting community education and involvement (Councils working together to improve stormwater quality management practice will garner more support from the community). 3.4 Limit to the Scope The Regional SQMS and municipal SQMP appendices do not intend to provide guidance for the following: Strategies concerning hydraulic capacity and flood mitigation. (Councils are responsible to ensure existing drainage strategies are aligned with those in this Regional SQMS); and Option analysis of specific stormwater re-use and WSUD projects. The Decision Support Tool developed as part of this Regional SQMS will help Councils explore the assessment of a particular WSUD project implementation in alignment with this Strategy. 3.5 Timeframe Life of the Regional SQMS This Regional SQMS should be updated at the end of a three year period following adoption, and should be updated with relevant Actions which take account of Action progress and reflect current best practice for urban stormwater quality management. Frequent evaluation and update of this Regional SQMS will ensure strategies maintain momentum, and communication channels are developed and strengthened between stakeholders to increase the sharing of knowledge and the efficiency of process. This communication is expected to occur at the bi-monthly Northern Tasmanian Stormwater Working Group meetings between stakeholders. The NRM North Stormwater Officer is responsible for the management of this process. NRM North Regional Stormwater Quality Management Strategy January

12 4 STORMWATER QUALITY MANAGEMENT 4.1 Why Manage Stormwater Quality? Stormwater from urban catchments poses a number of threats and hazards to the ecological health and values of receiving waterways. Urban stormwater is mostly untreated and carries pollutants such as litter, nutrients, heavy metals, pesticides and biological pollutants, to our rivers and receiving waterways. This together with the significant changes to the hydrological regime as a result of urbanisation (i.e. increased runoff volumes and frequency, increased magnitude of peak flows, earlier on-set of peak flows and increased erosion) threatens receiving water quality and ecological health. 4.2 Stormwater Management Practices Urban stormwater management is the process of controlling runoff to mitigate flooding and minimise the harmful effects urbanisation can have on the ecology of downstream waterways. Typically, Stormwater Quality Management Strategies and Plans outline physical and strategic measures to address existing stormwater issues, and to provide mechanisms to ensure that future planning and development mitigates against the risks and threats urban stormwater carries. Physical measures include: Infrastructure designed and constructed to drain rainfall adequately from urban areas and mitigate flooding problems (hydraulic structures); Infrastructure designed and constructed to protect downstream waterway ecology by removing pollutants (e.g. GPTs, vegetated systems); and Attempts to reduce the change to the hydrological regime (e.g. tanks, infiltration systems, wetlands, detention basins). NRM North Regional Stormwater Quality Management Strategy January

13 Strategic measures include: The implementation of planning controls; Community education and awareness programs; and A non-static framework of management which is informed by monitoring and feedback from community and stakeholders. The field of stormwater management has seen significant evolution in the expectations of the delivery of water services. The sole concern of stormwater management is no longer to mitigate potential flooding by the removal of stormwater as quickly and efficiently as possible from the urban site. Emphasis of stormwater management has grown to include the preservation and/or restoration of our receiving environments, as we start to clearly understand and communicate the value these waterways and common spaces add to our lives. Water security has also become a major driver of management decisions after recent years of drought and the uncertainty of climate change. These factors have combined to create a more holistic approach to stormwater management, as explored below. 4.3 Water Sensitive Urban Design (WSUD) What is WSUD? The most significant development in Australian stormwater management practices in recent decades has been the rise and adoption of Water Sensitive Urban Design (WSUD). While often implemented as individual strategies, such as constructed wetlands, swales and vegetated watercourses, WSUD in its holistic context is a planning philosophy. WSUD was developed in Western Australia in the early 1990 s with the aim of integrating water cycle management with the specific consideration of the ecological impacts and resource potential of urban stormwater. This focus of WSUD is clearly highlighted in the following summary of its published objectives, drawn from two well recognised Australian authors, Lloyd (2001) and Mouritz (2005). These objectives are as follows: Improvement of water quality throughout urban catchments; Restoration and/or preservation of more natural hydrological regimes in urban catchments; Improved visual and recreational amenity of urban environments; The use of urban stormwater as a resource; Minimisation of wastewater generation and the development of reuse schemes; and The reduction of potable water demand through demand management and substitution with alternative water sources of a quality and standard commensurate with end-use. NRM North Regional Stormwater Quality Management Strategy January

14 Bioretention Swales Sediment Basins WSUD systems Table 4-1 outlines the suite of contemporary best practice WSUD measures as detailed in the WSUD Engineering procedures for stormwater quality management in Tasmania. Table Typical WSUD Elements MEASURE DEFINITION PURPOSE Stormwater detention systems that promote settling of sediments through the reduction of flow velocities and temporary detention. Primary treatment. Removal of course sediments (i.e. >0.125mm) and associated pollutants. Provide flow retardation for frequent (low ARI) rainfall events. Vegetated channel with a bioretention system incorporated into the base to filter runoff prior to infiltration or discharge to the piped network. Secondary or tertiary treatment. Removal of course to medium sediments and associated pollutants, and soluble or fine particulate contaminants. Provide flow retardation for frequent (low ARI) rainfall events. Provide conveyance function. NRM North Regional Stormwater Quality Management Strategy January

15 Ponds Constructed wetlands Swale/buffer systems Sand filters Bioretention Basins MEASURE DEFINITION PURPOSE Vegetated channel with a bioretention system incorporated into the base to filter runoff prior to infiltration or discharge to the piped network. Filtration system consisting of free draining media to treat stormwater prior to discharge to the piped stormwater network. Secondary or tertiary treatment. Removal of course to medium sediments and associated pollutants, and soluble or fine particulate contaminants. Provide flow retardation for frequent (low ARI) rainfall events. Provide extended detention. Secondary or tertiary treatment. Capture gross pollutants. Retain coarse sediments. Fine filtration of flows. Vegetated channel. Primary or secondary treatment. Removal of course to medium sized sediments and associated pollutants. Reduce runoff volume through infiltration, and reduce flow velocities. Provide conveyance function. Shallow, extensively vegetated water bodies. Artificial body of open water formed by a dam wall, or created by excavating below the natural surface level. Secondary or tertiary treatment. Removal of course to medium sediments and associated pollutants, and soluble or fine particulate contaminants. Provide flow retardation for frequent (low ARI) rainfall events. Provide extended detention. Secondary treatment. Promote particle sedimentation, adsorption of nutrients by phytoplankton and ultra violet disinfection. Provide flow retardation for frequent (low ARI) rainfall events. Provide storage for stormwater reuse. NRM North Regional Stormwater Quality Management Strategy January

16 ASR Rainwater tanks Infiltration measures MEASURE DEFINITION PURPOSE Sub-surface water filtration system. Secondary or tertiary treatment. Encourage stormwater to infiltrate into surrounding soils. Reduce runoff volume and provide pollutant retention on site. Provide detention and retention function. A tank used to collect and store rain water runoff. Reduce runoff volumes and associated stormwater pollutant loads. Conserve mains water. Aquifer Storage and Recovery (ASR) Injection of water into an aquifer for subsequent recovery and use. Secondary or tertiary treatment Reduce runoff volumes and associated stormwater pollutant loads. Provide storage for stormwater reuse. Conserve mains water WSUD Treatment Trains Stormwater quality improvement and WSUD objectives are most effectively achieved by distributing treatment systems within a catchment or development, creating a treatment train a series of treatment systems that complement each other to achieve water quality improvement outcomes. Each stormwater treatment element operates effectively over particular hydraulic loading rates and pollutant size ranges. Within a treatment train, pollutants should be removed in order of size, treating gross particulates (litter, larger organic matter) first, then coarse particulates (sediment) and finally fine colloidal and dissolved material (nutrients, heavy metals). Individual treatment train elements should be designed to remove a specific range of pollutants, relevant to the characteristics of the runoff and the elements order in the treatment train Source Control Management Current best practice promotes the use of source control strategies that treat, store and infiltrate stormwater runoff at the site it is generated. Decentralised source control measures (such as on-site rainwater tanks with overflow to infiltration trenches) can greatly reduce the size of downstream stormwater infrastructure required. Source control is a viable alternative to the more traditional stormwater practice of instantly conveying runoff offsite and downstream where treatment options become much more constrained. Catchment-wide source control strategies that manage stormwater at the source of runoff via structural or non-structural techniques are an effective means of protecting NRM North Regional Stormwater Quality Management Strategy January

17 downstream water quality and suppressing flood peaks. Managing stormwater at its source can be achieved through adoption of Integrated Urban Water Management (IUWM) and WSUD principles Climate Change and WSUD The temperature in Tasmania is expected to rise over the 21 st century by approximately 2.9 C under the high emissions scenario and 1.6 C under the low emissions scenario 1. Rainfall patterns across Tasmania from season to season show significant changes across the two emissions scenario models. It is expected that rainfall will increase in Tasmania s coastal areas and decrease in inland areas 1. Runoff is expected to decrease markedly in Tasmania s central highlands by These predicted changes pose potential hazards to human health (e.g. due to reduced security of water supply, increased water demand due to increased temperatures, and reduced water quality in rivers due to the combination of lower flows and higher temperatures). WSUD can help to mitigate against such issues by diversifying water supply options and through water quality treatment WSUD Case Studies Hoyland Street Biofilter Brisbane Description: As part of a road intersection upgrade, the opportunity was taken to install a biofilter in the grassed verge of the intersection cloverleaf. This biofilter was constructed in 2001 and in 2013, is still operating as well as, if not better, than when it first established. Presenting this case study is to show that if properly designed, WSUD treatment systems are not only long-lived assets, they are relatively self-sustaining, as this device has only required minimal maintenance over its current lifespan. Costs: The biofilter itself cost approximately $110k (in 2001). Benefits: By incorporating this with the road intersection upgrade, considerable savings were made through integrating the construction at the same time as the road. This offset increased costs associated with this being one of the first biofilters constructed in Australia and the contractors being unfamiliar with the techniques to construct it. NRM North Regional Stormwater Quality Management Strategy January

18 Retrofit of Biofilters Great Lakes Council Description: Developing a Water Quality Improvement Plan for the Great Lakes region of NSW identified that urban runoff was causing significant impacts. As part of implementing the plan, Great Lakes Council identified several hotspot areas where retrofit of biofiltration systems would lead to improvements in stormwater runoff. These systems were integrated into open space areas between pipe outlets and existing drains and have demonstrated how retrofit of stormwater systems can be implemented. Costs: Each biofilter cost approximately $50-100k, considerably cheaper than proprietary systems to treat the same areas. Benefits: Conventional stormwater drainage in this area had resulted in very little height difference between stormwater outlets and the main stormwater channel. As such, treatment systems could only be implemented where there was only small height change overall. Biofilters gave Council the opportunity to implement treatment systems into these areas and improve the overall aesthetic of what was a concrete lined drain Bramble Parade Ephemeral Wetland Great Lakes Council Description: A low lying area in Tuncurry, part of the Great Lakes Council region, was originally constructed as an artificial wetland. Due to poor design, especially with regards to water levels, numerous issues were encountered with vegetation dying, predation of vegetation by water birds, odors and generally poor aesthetics. The wetland was redesigned to raise overall levels and construct it as a dry or ephemeral wetland. This resolved all of the original issues and provided a robust, lowmaintenance treatment system for Council. Costs: Redesign and construction cost approximately $200k. Benefits: This ephemeral wetland has avoided all issues associated with the original wetland and reduced neighborhood complaints to a minimum. It has also improved the look and feel of the area and is a valued asset. NRM North Regional Stormwater Quality Management Strategy January

19 4.4 Integrated Urban Water Management (IUWM) Integrated Urban Water Management (IUWM) is a strategy for achieving WSUD objectives and can be described as the holistic approach to the design of urban water infrastructure and management of the urban water cycle. IUWM encourages the management of water supply, stormwater and wastewater in a coordinated way for the purposes of environmental protection, economic advantage and sustainability under the impacts of climate change and population growth. IUWM encompasses the potable water supply, wastewater and stormwater streams within the greater context of sustainable urban design and environmental protection. IUWM strategies consider each water stream as a potential resource, as opposed to traditional approaches (where stormwater and sewerage were considered waste streams and carried away to disposal in receiving waters). Integrated systems, such as urban stormwater harvesting and re-use systems, often have multiple benefits across the different water streams (e.g. reducing potable water consumption, reducing stormwater generation and pollutant loadings) together with broader liveability benefits (e.g. mitigating the urban heat island effect, securing water supply to parks and gardens). In other words, integrated systems achieve the objectives of WSUD as described above. There are many informative publications and research projects on the topic, including the Centre for Water Sensitive Cities, Cities as Water Supply Catchments, and the Moreton Bay Total Water Cycle Management Plan. NRM North Regional Stormwater Quality Management Strategy January

20 5 ROLES AND RESPONSIBILITIES OF KEY STAKEHOLDERS The management of stormwater quality issues is a shared responsibility between all three levels of government, Natural Resource Management bodies (NRMs), Water Authorities and landowners and managers. The following paragraphs highlight the stormwater management responsibilities for key stakeholder agencies. 5.1 Councils Councils play an important role in managing stormwater at an urban and precinct level. The day-to-day management functions and services carried out by Councils provide an ideal basis for managing stormwater to achieve local and regional environmental outcomes. Responsibilities for stormwater management include: Strategic planning for drainage infrastructure for both upgrade and new development; Setting planning conditions for urban development through implementation of the planning scheme; Enforcement of planning permit conditions (including Sediment and Erosion Control); Implementation and management of infrastructure specifically aimed at mitigating identified stormwater pollution threats (e.g. a gross pollution trap or wetlands); Management, construction and maintenance of the urban stormwater drainage network; Street cleaning; Waste collection; Litter control programs; and Community education and awareness campaigns. The schematic in Figure 5-1 shows an example of the different stormwater management roles and responsibilities across the potential divisions and business units in a Council. NRM North Regional Stormwater Quality Management Strategy January

21 Figure 5-1 Schematic of stormwater management roles and responsibilities across Council departments NRM North Regional Stormwater Quality Management Strategy January

22 5.2 Natural Resource Management North (NRM North) NRM North is a non-government organisation working to encourage, promote and facilitate the sustainable use of natural resources, including water, in Tasmania s Northern NRM Region (the Region). The Region s boundaries align with those of Northern Tasmania Development, the regional development organisation owned by the eight Northern Tasmanian Councils, namely: Break O Day, Dorset, George Town, Launceston City, West Tamar, Meander Valley, Northern Midlands and Flinders. Increasing concerns about stormwater quality in the Region saw NRM North initiate the Northern Tasmanian Stormwater Program (NTSP) in partnership with Councils and TasWater. The NTSP is governed by the Northern Tasmanian Stormwater Working Group (NTSWG) which comprises representatives from each of the partnering organisations, and provides scientific and technical guidance towards activities of the NTSP. The NTSWG is a formal working group of the Tamar Estuary and Esk Rivers Program Scientific and Technical Committee. Through the NTSP, NRM North employs a Stormwater Officer to coordinate and progress stormwater quality management activities in the Region. Common shared services extended to program partners by the Stormwater Officer include technical advice and support on a range of matters as they relate to stormwater quality plus leveraging and seeking funding, investment and support to implement priority stormwater quality initiatives in the Region. 5.3 The Department of Primary Industry, Parks, Water and Environment (DPIPWE) The DPIPWE has no direct responsibility for Council stormwater systems; however, it is responsible for the management and protection of Tasmania s natural resources and environments. As part of this responsibility the department allocates State government funding for capital works programs across the Tasmania, including stormwater quality improvement works and programs. The DPIPWE published the State Stormwater Strategy in 2010 which gives specific best practice guidance for stormwater quality management for the protection of waterways. The DPIPWE is a source of State funding and support for environmental initiatives such as the Tamar Estuary and Esk Rivers (TEER) Program. Representatives of DPIPWE also contribute as part of the TEER Program Steering Committee and act as program managers. 5.4 Environment Protection Authority (EPA) The primary function of the EPA is to administer and facilitate compliance with the provisions of the Environmental Management and Pollution Control Act (EMPCA) 1994, the objectives of which seek protection of the quality of Tasmania s environment including the quality of surface waters and groundwater. Through EMPCA, the EPA has access to a range of regulatory tools to fulfil its statutory responsibilities. Under the land Use Planning and Approvals Act 1993 the EPA regulates level 2 and 3 activities identified through EMPCA as those which may cause environmental harm. The EPA determines appropriate environmental conditions that would be part of the permit and where necessary would stipulate requirements for acceptable management of stormwater including discharge quality. The EPA also plays a role in the generation of water quality policy and guidelines, and facilitates and participates in technical advisory groups concerning water quality issues. The EPA is generally not responsible for undertaking urban stormwater quality monitoring, except where reported pollution NRM North Regional Stormwater Quality Management Strategy January

23 incidents occur. However, the EPA works to develop and maintain strategies to ensure mechanisms are in place to maximise the benefits for ambient water quality monitoring programs. 5.5 TasWater TasWater commenced operating in July 2013, and was formed through the Corporations previously tasked with the management of Tasmanian water and sewerage supplies, namely: Ben Lomond Water, Cradle Mountain Water, Southern Water and Onstream. TasWater s directive is to provide water and sewerage functions to residents across Tasmania. Although they hold no direct responsibilities for stormwater management, TasWater are important stakeholders due to the following overlapping issues: Stormwater quality may impact on the quality of water entering main water storages; and TasWater holds an objective to encourage water conservation, the demand management of water and the reuse of water on an economic and commercial basis, which ties into stormwater recycling initiatives, source control and IUWM. NRM North Regional Stormwater Quality Management Strategy January

24 6 STATE POLICY, REGULATION, STRATEGY AND GUIDELINES There are a substantial number of national, state and regional frameworks and guidelines which influence the management of stormwater quality in Tasmania. The aim of this section of the Regional SQMS is twofold; To highlight the obligations that fall to the various groups with administrative responsibilities for the Region; and To elucidate the regulatory options within the existing framework, to encourage and enable environmental protection of the Region. There are currently no regulatory water quality requirements for stormwater in Tasmania. However, the Tasmanian Policy calls upon the use of accepted best practice standards, and there are a number of documents clearly outlining best practice, at both the state-wide and regional scale. These are described below. 6.1 The State Policy on Water Quality Management (SPWQM), 1997 The SPWQM by the Environmental Protection Division of DPIPWE (DPIPWE, 1997), is: To achieve the sustainable management of Tasmania s surface water and groundwater resources by protecting or enhancing their qualities while allowing for sustainable development in accordance with the objectives of Tasmania s Resource Management and Planning System (Schedule 1 of the State Policies and Projects Act 1993). (DPIPWE,1997). Division 3 of the SPWQM, relating to the management of diffuse sources of pollution sets out the following specific requirements, directly relevant to this plan: 31. Control of erosion and stormwater runoff from land disturbance Planning schemes should require that development proposals with the potential to give rise to off-site polluted stormwater runoff which could cause environmental nuisance or material or serious environmental harm should include, or be required to develop as a condition of approval, stormwater management strategies including appropriate safeguards to reduce the transport of pollutants off-site Stormwater management strategies pursuant to clause 31.1 should address both the construction phase and operational phase of the development and use of land and have the maintenance of water quality objectives (where these have been defined) as a performance objective Planning schemes must require that land use and development is consistent with the physical capability of the land so that the potential for erosion and subsequent water quality degradation is minimised. 33. Urban Runoff 33.1 Regulatory authorities must require that erosion and stormwater controls are specifically addressed at the design phase of proposals for new developments, and ensure that best practice environmental management is implemented at development sites in accordance with clause 31 of this policy. NRM North Regional Stormwater Quality Management Strategy January

25 33.2 State and Local Governments should develop and maintain strategies to encourage the community to reduce stormwater pollution at source Where urban stormwater runoff is prejudicing, or has significant potential to prejudice, the achievement of water quality objectives, councils should prepare and implement a stormwater management plan consistent with the principles and methodology set out in Guidelines for Urban Stormwater Management, publication 10 of the National Water Quality Management Strategy Councils should carry out an assessment of the need for stormwater management plans in respect of stormwater discharges within their jurisdiction, and provide a report on this assessment to the Board within 3 years of the making of this Policy. The assessment should also be reported in the council s annual report. Section 33 of the Policy (above) stresses the importance of erosion and stormwater quality controls for new development, and highlights the importance of Stormwater Management Plans for Councils. The management of stormwater according to these principles aims to achieve a number of Water Quality Objectives (WQOs) set out in the Policy. The WQOs are summarised as follows: Protected Environmental Values are values or uses of the environment for which it has been determined that a given area of the environment should be protected. Water quality objectives may be set for surface waters and groundwaters in Tasmania by determining which of the following protected environmental values should apply to each body of water. Water Quality Guidelines are estimates, based on the best scientific information available, of the levels of indicators which should be met in order to protect an environmental value. Water Quality Objectives for a specific body of water are the most stringent set of water quality guidelines which should be met to achieve all of the protected environmental values nominated for that body of water. Protected Environmental Values (PEVs) have been established for all catchment receiving waterways in the area through the Environmental Management Goals for Tasmanian Surface Waters (DPIWE 2003). Stormwater must be managed to protect the PEVs by compliance with approved standards or according to best practice guidelines. The resource which most clearly outlines the most stringent set of water quality guidelines (as referred to in the Policy), to be used to achieve the WQOs in relation to stormwater, is the State Stormwater Strategy (DPIPWE, 2010). This document provides clear information on relevant guidelines and state, national and international best practice procedures including specific examples (refer section 6.3 below). 6.2 The Drains Act The Drains Act (1954) is the policy document used to provide for the management of urban drainage and stormwater systems and infrastructure and for related purposes, in Tasmania. A review of the Drains Act (1954) was recently undertaken as part of the wider reforms of the Tasmanian water and sewerage sector, as the Act is widely recognised to be out-dated in some respects. The Drains Act (1954) is to be replaced by the Urban Drainage Bill (2013), currently in draft form. NRM North Regional Stormwater Quality Management Strategy January

26 Submissions were taken from relevant stakeholders including, Local Government, the Local Government Division within the Department of Premier & Cabinet, NRM North, the Derwent Estuary Program, TasWater and Workplace Standards Tasmania, regarding suggestion amendments to the Act. There were a number of submissions suggesting the new Drains Act should mandate the use of WSUD principles for all new developments. Unfortunately, the proposed response was for the Act to remain silent on the issue, leaving local Councils as the planning authorities to use their discretion to manage the introduction of WSUD. The objects of the draft Urban Drainage Bill (2013) are: (a) To protect people and property by ensuring that stormwater services, infrastructure and planning are provided so as to minimise the risk of urban flooding due to stormwater flows; and (b) To provide for the safe, environmentally responsible, efficient and sustainable provision of stormwater services in accordance with the objectives of the resource management and planning system of Tasmania. Section 10 of the draft Urban Drainage Bill (2013) stipulates that Councils must develop stormwater management systems and a Stormwater Management Plan. The inclusion of water quality improvement objectives in Stormwater Management Plans is inherent in clause c) and d) of Section 10 (reproduced below), and it is left to individual Councils to put detail around how they wish to incorporate these objectives into their strategy and Actions. 10. Stormwater system management plans (1) A Council must develop a stormwater system management plan for the urban area of its municipality within 3 years after the day on which this Act commences. (2) A stormwater system management plan is to specify (a) Plans for the management of any assets used for the delivery of a stormwater service; and (b) The level of risk from flooding for each urban stormwater catchment in the stormwater system; and (c) Any other matters prescribed in the regulations or that the Council considers appropriate. 6.3 The State Stormwater Strategy (SSS) Although the SSS prepared by DPIPWE is a non-statutory document, it defines the accepted standards for best practice stormwater quality management in Tasmania, which are required by the SPWQM. The Strategy also identifies relevant guidance documents which give specific design targets and criteria, along with effective management processes and tools. The following requirements for managing stormwater quality in new developments, as seen in the SSS, give some clear direction on how to achieve best practice standards: All new developments that create 500m 2 or more of additional impervious surface, including subdivision, roads and other large developments, should incorporate best practice stormwater management. The following standards are recommended: Construction Phase Soil and water management controls should be required and implemented through the development application process, including detailed Soil and Water Management Plans where warranted. Best Practice guidance on sediment and erosion control measures is provided in the document Soil and Water Management on Building and Construction Sites (DEP 2009). Operational Stage NRM North Regional Stormwater Quality Management Strategy January

27 New developments should be designed to minimise impacts on stormwater quality and, where necessary, downstream flooding or flow regimes. Stormwater should be managed and treated at source using best management design practices (eg WSUD) to achieve the following stormwater management targets: 80% reduction in the annual average load of total suspended solids 45% reduction in the annual average load of total phosphorus 45% reduction in the annual average load of total nitrogen. Further to this, Section 3 of the SSS gives Council procedures and examples to help with prioritisation of action within the catchment, as relevant to stormwater quality management. 6.4 The Land Use Planning and Approvals Act (LUPAA) 1993 The LUPAA is the mechanism used by many Councils to manage their planning and development applications. Currently, should the Council require particular design methodologies for subdivisional development; they must rely on applying engineering conditions to a Planning Permit for the proposed development. These conditions can range from items such as footpath width specifications, and infrastructure inspection regimes, through to plumbing conditions. Currently, there is no support through the planning approvals system giving Council the right to mandate best practice with regards to stormwater quality issues for new developments. All participating Councils are in the process of preparing compulsory planning scheme amendments for approval by the Planning Commission. No Council has chosen to incorporate mandatory water quality requirements for stormwater management as part of the amendments to the planning scheme. This is a discussion which should be continually revisited by the Northern Tasmanian Stormwater Working Group, as strategies from this Regional SQMS progress. 6.5 Environmental Management and Pollution Control Act (EMPCA) 1994 The EMPCA is the primary environment protection and pollution control legislation in Tasmania. This legislation primarily aims to prevent, reduce and remediate environmental harm from pollution and waste. Environmental harm being any adverse effect on the environment (of whatever degree or duration) and includes an environmental nuisance. Division 1 of the EMPCA sets out the following specific requirements directly relevant to this plan: 20A. Duty of Council to prevent or control pollution (1) In this section, prescribed activity means (a) An activity that is a level 2 activity; and (b) An activity that is a level 3 activity in respect of which the Council has not, by an order under section 26 of the State Policies and Projects Act 1993, been made responsible for the enforcement of conditions upon which the activity may proceed. (2) In relation to activities other than prescribed activities, a Council must use its best endeavours to prevent or control acts or omissions which cause or are capable of causing pollution. NRM North Regional Stormwater Quality Management Strategy January