Upper Tier and Lower Tier municipality Integration to Collaborative Address Population Growth, Aging Infrastructure and Climate Change

Transcription

1 Fall 16 Upper Tier and Lower Tier municipality Integration to Collaborative Address Population Growth, Aging Infrastructure and Climate Change September 2014 Gonzalo Piñeros Canadian municipalities are facing challenges related to population growth, aging infrastructure, and climate change. Recent floods have caused sewer back-ups in many municipalities across Canada, highlighting the need to treat, distribute and upgrade water services to meet current and future water needs. Many municipalities treat stormwater as a waste, rather than a resource; causing stormwater infrastructure to be overlooked despite its impact on groundwater and wastewater. Upper Tier and Lower Tier municipalities must work collectively to develop an integrated water, wastewater and stormwater management solution. In order to achieve a seamless integration between Upper and Lower Tier municipalities, municipal governance structure and frameworks need to be revised and updated to incorporate policies that allow local governments to integrate their initiatives with federal and provincial plans. W Booth School of Engineering Practice msep.mcmaster.ca

2 Gonzalo Piñeros Canadian municipalities are facing challenges related to population growth, aging infrastructure, and climate change, which add to the increase concern in communities for a higher quality of life. Public health, the environment, economy, and social fabric of society have to be considered when evaluating the quality of life of a given community. For this reason sustainability has become an increasingly important element to be considered in the planning of urban areas. Sustainable infrastructures are being used in North America and Europe to fulfill a number of urban and ecological policies to address not only climate change but also a rapid increase in population growth. One sector where sustainable urban planning and ecological policies are not emerging as fast is the water management sector. Water scarcity, water quality concerns and an aging water system infrastructure is forcing communities to seek alternatives to the traditional water management approach (EPRI, 2010), however policies to foster a new sustainable water management approach are not in place in most communities (EPRI, 2010). Municipalities across Canada are facing challenges with respect to meeting their water needs. These challenges include flooding, directly associated with climate change, economic uncertainty, regulations and bureaucracy, aging and degrading water infrastructure, polluted water resources, and stakeholders with limited understanding of water issues (EPRI, 2010). Canada s water infrastructure deficit, of $160 billion dollars, for example is directly associated poor water quality, resulting in floods, sewer back-ups, boil-water warnings, water use restrictions and closed beaches in Canadian communities (McBean, 2014). The objective of this document is to create a methodology platform that highlights the governance structure and policies needed for municipalities in Canada to overcome these challenges through the integration of regional and local governments to address collaborative planning for growth, aging infrastructure and climate change. This document includes practices for Canadian municipalities to integrate federal, provincial plans and policies, such as source protection plans, with municipal initiatives, such as watershed management plans, in order to develop a water sustainability plan to optimize stormwater infrastructure. This paper includes examples of North American municipalities like Halifax (first municipality in Canada to regulate integrated water,

3 wastewater & stormwater utility) that have work together to facilitate the removal of governance structure and policy barriers to stormwater optimization and the adoption of water sustainability planning, resulting on the implementation of integrated municipal water systems management under key sustainability principles and best practices. This document will be of value to municipalities, the water, wastewater and stormwater management sector as well as government agencies involved in water regulations and policies to building communities with capacity and resiliency in water, wastewater and stormwater management now and for the future. The research process includes informal interviews as a primary mean of obtaining information from different individuals working in the water service, stormwater service and wastewater service industry. Such individuals are primary sources" who provided information not available from other sources. For the purpose of this paper, water infrastructure refers to physical infrastructures as well as waterrelated structures designed for the functional operation of the water system in a given society. The physical structures are both manmade and natural. Manmade infrastructures include reservoirs and retention systems, piped collection and distribution systems, treatment systems and natural infrastructures include forested land, stream buffers, flood plains and hydrologic networks, wetlands (EPRI, 2010).Water governance will make reference to the laws and regulations, the agencies and institutions responsible for decision-making and the policies and procedures used to make decisions and manage water resources (Water Governance BC, 2014). Municipality, as defined in The Ontario Municipal Act, refers to a geographic area whose inhabitants are incorporated (Ontario Municipal Act, 2001). Recent floods, sewer back-ups, boil-water warnings, and water use restrictions in many municipalities across Canada are highlighting the need to treat, distribute and upgrade water services to meet current and future water needs. There is increased recognition that integrated water, wastewater and stormwater management is the most plausible solutiong required to ensure cost-effective water services as well as sustainable water resources (McBean, 2014)to support public health, the economy and the environment today and in the future. Canadian municipalities have long-established water and wastewater asset management plans (McBean, 2014); however,many municipalities treat stormwater as waste, rather than a resource; causing stormwater infrastructure and stromwater management to be overlooked despite its impact on water and

4 wastewater infrastructure advancements (McBean, 2014). Asset management approaches for stormwater infrastructure must be integrated within the municipalities long-established water and wastewater asset management plans. New water management and infrastructure development models are emerging. In 2007 the Water Environment Research Foundation (WERF) created the Baltimore Charter for Sustainable Water Systems a commitment to design new water systems that mimic and work with nature. These systems will both protect public health and safety and will restore natural and human landscapes (Nelson et al. 2007). Despite the new water management models that are emerging, most communities have difficulty drafting new sustainable water management policies to shift from the traditional water management model toward a more sustainable one (EPRI, 2010). Over three-quarters of Canadians have expressed concern about the water quality in their lakes, rivers, and streams (RBC, 2013), and with good reason considering that Canada is at greater risk from climate change. Frequent hail and thunderstorm predictions add to the growing concern (IPCC Report 2013). The Greater Toronto Area has experienced four extreme events in the last 10 years, and in 2013 extreme rainfall and rising floodwaters targeted communities in Calgary and Southern Alberta (Suzuki, 2013). Municipalities across Canada have a traditional approach to address water-related issues. Issues such as drinking water, stormwater, wastewater, urban watersheds, and related urban planning and disaster management responses are managed in isolation as mutually exclusive systems without considering their interrelationships and, is most cases, interdependencies (McBean, 2014). The development of water policies and regulations as well as management practices is affected by the different cultures and approaches to risk management in all the water-related areas, mentioned above (McBean, 2014). However, municipalities are starting to embrace a more holistic and integrated approach to municipal water management. The increased recognition of integrated water, wastewater and stormwater management has resulted in the adoption of Integrated Water Resources Management (IWRM), Integrated Water Management (IWM), or One-Water approaches by different municipalities (McBean, 2014). This more integrated approach allows water managers and regulators to address the more complex water challenges and risks inherent in decision-making. Water challenges in today s world

5 are more complex as a result of issues related to population growth, aging infrastructure, climate change, the complexity of water quality issues, the current economic challenges, and competing demands on resources (McBean, 2014). The growing recognition that effectiveness of decision-making in one of these management areas is directly impacted by the decision-making made in the other areas allows water managers and regulators to better coordinate the development and management of water, land, and related resources in a sustainable and equitable manner (McBean, 2014). In Canada the provinces of Ontario, Quebec and British Columbia have a two-tier municipality system. Municipalities in Ontario may be Single-tier municipalities, such as the City of Toronto and the City of Hamilton, or Two-tier municipalites. In the Two-tier municipalities category, an Upper-tier municipality is formed by two or more Lower-tier municipalities. The Upper-tier municipality could be either a county, such as Wellington, or a regional municipality, such as Halton. According to the Ontario Municipal Act, municipal responsibilities in the province are divided between the Upper-tier municipality and Lower-tier municipality for the Two-tier system. Single-tier municipalities on the other hand, assume all municipal responsibilities set out under the Municipal Act and other Provincial legislation. The Act also states that Municipalities are created by the Province of Ontario to be responsible and accountable governments with respect to matters within their jurisdiction, and each municipality is given powers and duties under the act and many other acts for the purpose of providing good government with respect to those matters (Ontario Municipal Act, 2001). In a two-tier municipality, the Upper-tier municipality delivers some public services. Upper-tier municipalities often coordinate area-wide service delivery to all Lower-tier municipalities. Public services are assigned to the Upper-tier or Lower-tier municipality by legislation. Both municipalities may provide these services exclusively or non-exclusively within their geographical boundaries. Waste management is a shared public service between both municipalities; the Lower-tier municipality is in charge of waste collection, while the Upper-tier municipality is in charge of waste disposal (McBean, 2014). In the case of Water, Upper-tier municipalities are usually responsible for Water and wastewater management, while the Lower-tier municipalities are responsible for stormwater management (McBean, 2014). Table 1.1 shows that the Upper-tier

6 municipalities are responsible exclusively for water production, treatment and storage; and non-exclusively for the collection of stormwater and other drainage from land (geographic region shown in Figure 1.1). Table 1.1 Public Utilities in a two-tier municipality (Ontario Municipal Act, 2001). Sphere of Part of Sphere Assigned Upper-tier Municipality (ies) to Exclusive or Non- Jurisdiction which Part of Sphere assigned Exclusive Assignments Public utilities Sewage treatment All counties, Niagara, Waterloo, Non-exclusive York Durham, Halton, Muskoka, Oxford, Exclusive Peel Collection of sanitary sewage All counties, Niagara, Waterloo, Non-exclusive York Durham, Halton, Muskoka, Oxford, Exclusive Peel Collection of storm water and All upper-tier municipalities Non-exclusive other drainage from land Water production, treatment and All upper-tier municipalities except Exclusive storage counties Water distribution Niagara, Waterloo, York Non-exclusive Oxford, Durham, Halton, Muskoka, Exclusive Peel

7 Figure 1.1 Upper-Tier, Single-Tier, Regional Municipalities in Ontario Water, wastewater and stormwater cannot be managed in isolation as mutually exclusive systems; these systems are both interrelated and interdependent. Stormwater management, for example, does not only impact the Lower-tier municipality but it also impacts its Upper-tier counterpart. The City of Mississauga is responsible for stormwater, and its Upper-tier municipality, the Regional of Peel is responsible for drinking water and sanitary services. Both municipalities have been affected by stormwater, causing floods in the Lower-tier and sewer back-ups for its Upper-tier (McBean, 2014). Upper-tier and Lower-tier municipalities both have their respective municipal councils. The Lower-tier municipality council is elected by direct election either by wards or at large (Ministry of Municipal Affairs and Housing, 2011). The Upper-tier council is usually indirect, with Lower-tier councilors sitting at both councils, although some Upper-tier municipalities may hold elections to choose their regional councilors. In Waterloo Region, the Upper-tier council consists of elected regional councilors and the mayors of the region s Lower-tier municipalities (Ministry of Municipal Affairs and Housing, 2011). British Columbia s municipal government structure is similar to that of Ontario. However in a Two-tier municipality the Upper-tier is referred to as a regional district. Local government in British Columbia may refer

8 to the council of a municipality, Lower-tier, or the board of a regional district, Upper-tier (British Columbia Local Government Act, 1996). Integrated resource management is the coordinated development and management of resources such as water, land, and other related resources to maximize economic and social welfare without compromising the sustainability of vital ecosystems (EPRI, 2010). The current water management process views water provision and wastewater management as two exclusive processes. The water provision process extracts water and treats it to potable standards and delivers it to consumers, to be used and later disposed as wastewater. Wastewater is collected and taken to a water treatment plant facility to remove pollutants. Stormwater is mainly managed for flood control through rapid transportation and discharge (EPRI, 2010). Stormwater needs to be highlighted as a resource rather than a waste to mitigate societal cost such as infrastructure, pumping, treatment and environmental impacts (EPRI, 2010). Even the Ontario Municipal Act defines sewage as both stormwater and other drainage from land and as waste (Ontario Municipal Act, 2001). Unlike the current one-pass use of water, the recommended closed loop water management system emphasizes in resource recovery from wastewater. Resources such as reclaimed water, nutrients, carbon, metals, and biosolids are recovered for beneficial uses such as drinkable water offsets (irrigation), fertilizers, and generating power (EPRI, 2010). In the closed-loop water management system stormwater is harvested for water supply, irrigation, and infiltration and not collected, transported and discharged. Concepts of efficiency, recovery and reuse are key to potentially reducing full life-cycle costs (EPRI, 2010).

9 Table 1.2 Difference between current and new approach (Table 2.1, EPRI, 2010). Topic Current Practice New Paradigm Water Use Single use water is used only once and then disposed to water treatment plant. Multiple use Use household graywater for irrigation. Water Quality (supplied) Treat all supply-side water to potable standards. Apply right water for right use Treat water to a level of water quality based on the intended use. Potable water is not needed for irrigation purposes or to flush toilets. Wastewater Stormwater After a single use, waste water is treated and returned to the environment. Convey stormwater offsite as quickly as possible with no regard for maintaining hydrological integrity of ecosystem (EPRI, 2010). Close the Loop recover valuable resources from waste water (reclaimed water, nutrients, carbon, metals and biosolids) for beneficial uses such as potable water offsets, fertilizers, and generating power. Harvest stormwater for water supply, irrigation, and/or infiltration benefits (EPRI, 2010). Increase System Capacity Add capacity to water and wastewater facilities and collection/distribution systems as water demand increases. Implement cost-effective demand side and green infrastructure before increasing gray infrastructure. Type of Water Infrastructure Primarily use gray infrastructure engineered and constructed materials (pipes and treatment facilities and pumps). Integrate the natural capacities of soil and vegetation to capture, infiltrate and treat water (green infrastructure) with gray infrastructure. Centralized Infrastructure Centralized large water treatment and Multiple decentralized small water

10 Complex Design Infrastructure Integration distribution systems Administrative programs tend to favor more established, less complex, standard infrastructure designs and technologies (EPRI, 2010). Water, stormwater and wastewater are typically managed as exclusive systems treatment and distribution systems combining local needs and the triple bottom line. Today s complex water problems required new infrastructure design technologies and strategies. Water is water integrate infrastructure and management of all types of water regionally. Public Involvement Stakeholders are informed when approval of pre- chosen solutions is required (EPRI, 2010). Stakeholders are engaged in the decision-making system from the beginning (EPRI, 2010). Monitoring and Maintenance Cost-benefit Analyses Water and wastewater facilities use computerized Supervisory Control and Data Acquisition (SCADA) to monitor and control processes (EPRI, 2010). Use estimates of capital and recurring costs as the primary quantitative factor for cost-benefit analyses (EPRI, 2010). Moves smart systems out to end users to provide real-time feedback regarding energy use and water use rates to build understanding, modify behavior for higher efficiencies, and notify for maintenance (EPRI, 2010). Develop an understanding of the full cost and benefits of infrastructure, including externalities (EPRI, 2010). The Water Opportunities Act, 2010 (Ontario) requires certain municipalities to prepare, approve and submit to the Minister of the Environment municipal water sustainability plans for municipal water services, municipal wastewater services and municipal storm water services under their jurisdiction (Water Opportunities Act, 2010). The Act also states that two or more regulated entities may prepare a joint plan or a joint part of their plans, which creates an opportunity for Upper-tier and Lower-tier municipalities to develop a plan together (Water Opportunities Act, 2010).

11 Upper-tier municipalities in Ontario are implementing water conservation initiatives. The Region of Waterloo and York Region are promoting rainwater harvesting to residential and commercial residents (McBean, 2014). The Region of Peel has partnered with Credit Valley Conservation (CVC), a communitybased environmental organization, dedicated to protecting, restoring and managing the natural resources of the Credit River Watershed (CVC, 2014), to reduce water consumption for landscaping regional roads by incorporating lot and conveyance controls to enhance storage and reduce watering in roadway medians (McBean, 2014). In British Columbia the Regional District of Metro Vancouver is a political body and corporate entity operating under provincial legislation as a regional district and greater boards that delivers regional services, planning and political leadership on behalf of 24 local authorities (DWMP, 2011). It comprises 22 Municipalities, one Electoral Area and one treaty First Nation (MV, 2014). The Regional District of Metro Vancouver covers the City of Abbotsford, Village of Anmore, Village of Belcarra, Bowen Island Municipality, City of Burnaby, City of Coquitlam, Corporation of Delta, City of Langley, Electoral Area A, Township of Langley, Village of Lions Bay, District of Maple Ridge, City of New Westminster, City of North Vancouver, District of North Vancouver, City of Pitt Meadows, City of Port Coquitlam, City of Port Moody, City of Richmond, City of Surrey, Tsawwassen, City of Vancouver, District of West Vancouver and the City of White Rock (MV, 2014). The Regional District of Metro Vancouver is made up of four separate corporate entities, each with a different set of members: the Greater Vancouver Regional District (GVRD), the Greater Vancouver Sewerage and Drainage District (GVS&DD), the Greater Vancouver Water District (GVWD) and the Metro Vancouver Housing Corporation (MVHC)(MV, 2014). Each of these four corporate entities is governed by a separate board of directors.(mv, 2014).The Directors are members of the Lower Municipal or First Nation councils and have been appointed to one the boards of the Regional District of Metro Vancouver by their respective councils (MV, 2014). The Regional District of Metro Vancouver interacts with its municipalities via a large number of monthly meetings for each committee (Source 1).. During these monthly meetings the boards (Upper-tier

12 councils in Ontario) develop region-wide policies that are voted on before acceptance and adoption by all municipalities (Source 2). Some of these policies may require a hundred percent consent and others more consensus (Source 2). a region-wide policy comes into effect, the Lower Municipalities must abide by it (Source 1)and create a local policy in accordance with the region-wide policy and which must be approved by Metro Vancouver (Source 1).This process may be seen as a top town approach from a hierarchal structure perspective; however it actually works more as a cross-functional team in a horizontal organizational structure because all even though all municipalities have to abide by these region-wide policies, such policies are voted by the (lower-tier) municipalities themselves through their representatives at the Metro Vancouver (upper-tier) council(source 2). Some examples of policies that have been developed by the Metro Vancouver Boards include the Regional Growth Strategy, and the Integrated Liquid Waste and Resource Management Plan (ILWRMP) (Source 1).And some examples of local policies created by municipalities that were developed as a result of the region-wide policy are the Official Community Plans (OCP), and Integrated Stormwater Management Plans (ISMPs)(Source 2). For example, Metro Vancouver developed the Integrated Liquid Waste and Resource Management Plan (ILWRMP), with municipalities weighing in to layout the plan and requirements (Source 2). Metro Vancouver was responsible to obtain provincial approvals while local governments developed Integrated Stormwater Management Plans (ISMPs) in accordance with Metro Vancouver's Integrated Liquid Waste Resource Management Plan (ILWRMP) requirements and to also meet provincial requirements (Source 2). (Lower-tier) municipalities work collaboratively both officially and unofficially in a number of interjurisdictional capacities. For example the City of North Vancouver and the District of North Vancouver are formally developing a joint Integrated Stormwater Management Plans (ISMPs) not only provincial and ILWRMP requirements but mainly to manage their shared watersheds (Source 1), Mackay Creek and Mosquito Creek, including the major tributaries: Mission Creek, Thain Creek, and Wagg Creek (CNV, 2014). The City of North Vancouver, the District of North Vancouver also participate informally in working groups with the District of West Vancouver, and the North Shore Emergency Management Office to coordinate action on a specific issue that affects all of them: climate change on the North Shore (Source 1). Another informal

13 inter-jurisdictional collaboration is the Burrard Inlet Flood Sea Level Rise Collaborative; which includes several (Lower-tier) municipalities around Burrard Inlet and also the Simon Fraser University Adaptation to Climate Change Team) (Source 1). In the Regional District of Metro Vancouver, the water, wastewater and stormwater assets are distributed between Metro Vancouver (Upper-tier) and local municipalities (Lower-tier) as follows: For water assets, the District of Metro Vancouver is responsible for treating and water quality issues as well as its supply and delivery to each municipality; and each municipality is responsible for distributing water to each costumer (Source 1). In other words Metro Vancouver is responsible for some trunk mains, large diameter mains that transfer water from one area to another (BW, 2014), but not for water distribution or collection systems (Source 2). For example, The City of Surrey buys water from Metro Vancouver but is responsible for the Surrey s own distribution system, metering etc. (Source 2). The District of Metro Vancouver has trunk mains under the Fraser River that transport water to different reservoirs in Surrey (Source 2). Some municipalities can also supplement their water supply with their own resources; the Township of Langley augments their water supply with groundwater to reduce water rates (Source 2). For wastewater, the District of Metro Vancouver is responsible for the management of all wastewater treatment plants as well as the trunk mains that connect each (Lower-tier) municipality to the wastewater treatment plants (Source 1). Each municipality is responsible for managing smaller sanitary sewers systems that deliver sewage from each customer to the Metro Vancouver trunk mains to be delivered to the waste water treatment plants(source 1). The City of Surrey collects and pumps wastewater to the Metro Vancouver trunk mains to have it delivered to Metro Vancouver s wastewater treatment plants. The District of Metro Vancouver has three trunk mains in the City of Surrey that are used to collect sewage from multiple local governments (Source 2). All municipalities contribute bear the financial cost for the operation and maintenance of the wastewater treatment plants (Source 2). For stormwater each (Lower-tier) municipality is responsible for most stormwater planning and stormwater infrastructure (Source 1). Metro Vancouver does set region-wide policy through the Liquid Waste Management Plan, and helps to coordinate management and research through the Stormwater Interagency

14 Liaison Group (SILG) (Source 1). However, Metro Vancouver has no jurisdiction over any municipal wastewater system except one where Burnaby/Vancouver and Coquitlam entered an agreement for Metro Vancouver to manage one watershed for them (Source 2). In terms of Integrated Water Management Systems, British Columbia s municipalities, like the City of North Vancouver, have no official combined system (Source 1). The City of North Vancouver however, looks at cross-functional infrastructure opportunities when upgrading one water system to see whether the opportunity to upgrade another infrastructure at the same time is possible (Source1). North Vancouver also uses the development of its Integrated Stormwater Management Plan (ISMP) to do long term planning for both our stormwater and wastewater systems, taking into account how climate change will affect both systems. The City also uses ISMP to develop compatible computer models of stormwater and wastewater, using PCSWMM: software for stormwater management, wastewater and watershed modeling (Source 1). Water governance in British Columbia for water, wastewater and stormwater assets operate under the Drinking Water Protection Act, Drinking Water Protection Regulation, and the Water Act, however; they are not governed by the public utility act (Source 1). There are other laws and regulations that affect water governance in the province (See Figure 1.2). The current Water Act will be repealed when Bill 18, the new Water Sustainability Act (introduced on March 11, 2014) comes into force in 2015 (Water Sustainability Act, 2014). The Water Sustainability Act responds to current and future pressures on water, including a growing population, a changing climate and expanding resource development (Water for BC, 2014) through sustainable water management.

15 Figure 1.2Legislation Influencing Water in B.C. (Water Law Framework, 2014) The government structure for water, wastewater and stormwater is divided between Metro Vancouver and its municipalities. Metro Vancouver governs water assets and wastewater assets under the Greater Vancouver Water District (GVWD) board and the Greater Vancouver Sewerage and Drainage District (GVS&DD) board respectively. Stormwater assets, on the other hand, are governed by local municipal governments (Source 1). Each local City Council has authority over all three assets (Source 2) and it governs stormwater as well as smaller local water and wastewater assets (Source 1). The Integrated Liquid Waste and Resource Management Plan (ILWRMP) under the Performance Measures and Adaptive Management section requires municipalities to report back to Metro Vancouver stormwater related metrics (Source 1). Water pricing, Metro Vancouver determines water and wastewater rates through the GVWDGVS&DD boards to sell to its municipalities. However, the rate structure for bulk water use will change when the GVWD board introduces a new region wide policy in 2015 in accordance with the new Water Sustainability Act (Source 1). Stormwater management, on the other hand, depends on the municipality. In the City of North Vancouver stormwater is funded through the general municipal expenditures, which means that there are no distinct stormwater rates

16 (Source 1).The City of Surrey determines water rates for residents and businesses from the costs to buy water from Metro Vancouver plus operating costs to manage the water distribution system and a ten-year capital plan to update or replace water infrastructure (Source 2). Wastewater rates are determined in a similar manner, from the costs to send wastewater to Metro Vancouver sewage treatment plant plus operating costs to manage the wastewater collection system and a ten-year capital plan to update or replace wastewater infrastructure(source 2). Stormwater in Surrey, unlike in North Vancouver, has distinct stormwater rates for both residents and businesses, derived from a ten-year capital plan to update or replace stormwater infrastructure including dykes, shoreline protection, ravine stability etc. and operating costs to manage the stormwater system (Source 2). The City of Surrey has over 1500km of creeks and over 100 km of dyke structures in addition to pump stations and pipe systems (Source 2). When it comes to calculating water loss, the City of Surrey estimates that it loses 15,000 liters/day of drinking water from their system (Source 2). Both Surrey and Metro Vancouver meter the amount of water that Metro Vancouver sells to the City (Source 2). Surrey has been implementing water meters; however, not all customers are metered so the numbers of water loss in liters/day are an estimate. Homes and businesses not on meters were assumed to use the per capita average of those on meters (Source 2). Cooperation between the Region (Upper-tier) and its municipalities (Lower-tier) in the Metro Vancouver Region takes place at the different regional Boards, which include representation from all or most member municipalities, such as the City of North Vancouver (Source 1). Metro Vancouver has two water related boards, the Greater Vancouver Sewerage and Drainage District (GVS&DD) and the Greater Vancouver Water District (GVWD) and its municipalities (Lower-tier) are active on these boards to help shape Metro Vancouver s water policy and initiatives (Source 1). Cooperation between both Region and municipalities also take place at different issue specific working groups, such as the Stormwater Interagency Liaison Group (SILG) (Source 1). SILG was created in 2002 by Metro Vancouver, its member municipalities, and provincial and federal environmental agencies under Metro Vancouver s provincially approved Liquid Waste Management Plan (MVSMP, 2010); SILG was created due to the increasing concern on changes in stormwater runoff quantity and quality and their impact on salmon and trout streams (MVSMP, 2010). On a policy perspective under the federal Fisheries Act, Metro Vancouver and

17 its municipalities are not allowed to discharge stormwater and runoff that would have negative impact on the fish and their habitat (MVSMP, 2010). SILG sets a region-wide policy to coordinate management and research and also shares best practices across the region (Source 1). Metro Vancouver s municipalities are active members of these groups. Inter-jurisdictional cooperation also takes place between municipalities (Lower-tier) through Metro Vancouver (Upper-tier) for the purchase and design decisions for shared water infrastructure, such as wastewater treatment plants through the GVS&DD (Source1). Metro Vancouver s three main roles are political forum, policy development and service delivery to its municipalities (DWMP, 2011), as shown in Figure 1.3. With the development of integrated systems and the facilitation of local governments collaboration under the Metro Vancouver umbrella; Metro Vancouver s metrics, targets and key deliverables are harmonized across the region (DWMP, 2011). Figure 1.3 Metro Vancouver Regional Roles (DWMP, 2011) In Ontario, Upper-tier and Lower-tier municipalities interact in a similar manner to that of The Regional District of Metro Vancouver and its 21 municipalities. The Region of Waterloo (Upper-tier) integrates the cities of Cambridge, Kitchener, Waterloo and Townships of North Dumfries, Woolwich, Wilmot, Wellesley (Source

18 3). The Regional council of the Region of Waterloo is composed of the Regional Chair, eight directly elected Regional Councillors, and the mayors of the seven local municipalities (Region of Waterloo, 2014).The Peel Regional Council is formed different from that of the City of Waterloo. It consists of 25 members, the Regional Chair, the Mayors of the three Lower-tier municipalities (Caledon, Brampton and Mississauga), the 11 City of Mississauga Council members, 6 City of Brampton Council members and the 4 Town of Caledon Regional Council members (Region of Peel, 2014). There is a significant interaction as well as information sharing between the Upper-tier municipality and Lower-tier municipalities in Ontario. In the Region of the Region of Waterloo Upper and Lower tier municipalities coordinate infrastructure, programmes and public communications (Source 3). Upper-tier and Lower-tier municipalities each maintain their own database of information that they share on a case-by-case basis (Source 3). For water management and services there meetings are held at various times to maintain communications such as annual meetings to review design standards and quarterly meetings to review best management practices (Source 3) both attended by the Region of Waterloo and lower-tier representatives as well as neighbouring jurisdiction(source 3). There are also quarterly operations coordination meetings between the Region of Waterloo and Lower-tier municipalities (Source 3). The Region of Waterloo council develops policies with consultation of its Lower-tier municipalities (Source 3); a very inclusive process considering that the mayors of each municipality sit in the council as well. In the Region of Peel, Upper and Lower-tier municipalities work collaboratively to ensure projects are coordinated, for example in the case of coordinating roadway re-surfacing following water main repair (Source 5). In Peel, Regional and City issues are coordinated as best as possible to allow both Upper and Lower tier representatives to be involved in educational campaigns and facility planning (Source 5). In Ontario the responsibility for water, wastewater and stormwater assets in municipalities, is similar to that of British Columbia. In The Region of Peel, the region is responsible for water and wastewater, and Lowertier municipalities are responsible for stormwater (Source 5). Most Lower-tier municipalities work independently on storm drainage projects within their jurisdiction; however inter-municipal Staff work together on cross-boundary projects when necessary (Source 5). Similarly, in the Region of Waterloo (Upper-tier) is

19 responsible for drinking water source, water treatment, water storage and water pumping as well as wastewater treatment, discharge and bio-solids(source 3). And the Lower-tier municipalities like the City of Waterloo are responsible for water distribution and billing as well as exclusively responsible for stormwater management (Source 3).The Upper-tier and Lower-tier collaborative interact to provide better water services. For example the Region of Waterloo owns the wastewater treatment plant and the transmission water-mains and the each Lower-tier municipality owns their sanitary collection system which includes trunk sewers and pumping stations). However for water-mains the Lower-tier municipality undertakes the repair work (Source 4). In the City of Waterloo the water distribution system, wastewater collection system, and stormwater management system are all managed under the Water Services Division at the City of Waterloo (Source 4). The Water Services Division at the City of Waterloo estimates the non-revenue water loss including authorized and unauthorized water use (based on the 2013 total water use) to be approximately l/day (Source 4); about 13% of the total water use by the City. Authorized non-metered water, flushing activities, fire department use, was acknowledged to determine an actual water loss based on American Water Works Association (AWWA) Water Audit practices and associated software (Source 4). The City of Waterloo funds water, wastewater and stormwater based on user rates (Source 4). For water and wastewater the majority of customer charges are based on meter readings; however, for stormwater the charge is a tiered flat rate based on property type and size as a measure of impervious surface making it not financially sustainable (Source 4), the City plans to strengthen wastewater significantly over the next three years (Source 4).The stormwater program in the City of Mississauga is generally funded through taxes and development charges (Source 5). Water and wastewater have more financial stability, sustainability and predictability due to the long-standing practice of rate predictions (Source 4). The City of Waterloo has initiated an asset management plan for all three assets (Source 4). The relation between water, wastewater and stormwater on groundwater supply is becoming clearer for Canadian municipalities as conventional stormwater practices and increased water takings can impact recharge (McBean, 2014) such as dry weather which causes low stream flows, reducing the assimilative capacity of wastewater treatment plants and restrict water-taking permits (McBean, 2014). However not all

20 municipalities use groundwater as their water supply, and it is important to highlight that risks for each municipality can be derived from its water supply source, aged infrastructure and/or growth pressure(mcbean, 2014). In Ontario, for example, Orangeville has a groundwater supply where infiltrating stormwater poses potential risk. Mississauga s, a lake-based water supply, potential risks are mainly due to growth pressures and aged infrastructure. Both Mississauga and Toronto currently have less than three percent left developable land, which is mostly infill with very little green field development resulting in low development charges and only tax-based income supply (McBean, 2014). Milton, Vaughan and Brampton are fast growing municipalities with potential to retrofit. Brampton s challenge is to implement proper stormwater management through monitoring across communities to protect fisheries and build resiliency. Monitoring shows that wet weather stream flows are three times higher than predevelopment flows resulting in increased erosion despite of ponds (McBean, 2014). Municipalities are developing strategic plans for their water, wastewater and stormwater assets. The city of Waterloo provides a ten-year rate model, identifying capital and operating forecasts and associated rates (Source 4); and currently has master plans developed for sanitary and stormwater and a water distribution master plan scheduled for 2015/2016(Source 4). The City has initiated an asset management plan also (Source 4). Region of Waterloo (Upper-tier) oversees water conservation programs and has implemented region-wide measures for water conservation; as a result there has been a steady decline in water demand in the past decade, attributed to conservation programs for the most part (Source 4). The City of Waterloo also provides an incentive program for stormwater management practices on private properties (Source 4). The City of Mississauga, Peel Region, is using lot-level low impact development approaches hoping to reduce the impact of stormwater runoff in the future (Source 5). In British Columbia Metro Vancouver s (Upper-tier) Regional Growth Strategy to 2040 provides a framework for land use related to water and wastewater(source 1).Metro Vancouver s strategy encourages municipalities to foster a compact urban area that can operate more efficiently and requiring less infrastructure, and preserving lands that protect drinking water and stormwater assets(source 1).The City of North Vancouver s Official Community Plan and Integrated Stormwater Management Plans, although still in the

21 developing stages, lays out similar objectives and land use plans to make the most of their infrastructure(source 1).North Vancouver also has asset management plans for all infrastructure projects; and their engineering department is developing a strategic plan that will apply to all engineering works, however this is in the early stages of development (Source 1).Surrey on the other hand has looked at the renewal requirements for their water, wastewater and stormwater assets and has conducted some joint asset management studies(source 2). The City Surrey uses the same software program to manage its operations and has linked plans through Geographic Information System (GIS) to ensure that renewals are conducted where possible together, including linking to road/pavement plans (Source 2). The situation in coastal British Columbia adds more risks to that of mainland Ontario. Surrey s ten-year plans are currently focused on funding sources and long-term plans are focused on renewals (Source 2). Surrey is looking at how to incorporate Sea Level Rise (SLR) predictions in 80-year and 180-year horizons to water management (Source 2). Sea Level Rise is predicted at 1 metre by 2100 and 2metres by 2200, (Source 2). In addition to this land subsidence is predicted at about 2mm/year and storm surges and waves have to also be added to the equation (Source 2). This means changes in groundwater and large costal protection needs will be 2m to 4 m higher than present by 2100, which is taking into account when designing or upgrading services in low-lying areas (Source 2). Water Conservation also plays a key role in water management practices. Metro Vancouver has several water conservation programs at both the municipal (Lower-tier) and regional district levels (Upper-tier)(Source 1). Conservation programs are mostly related to conserving drinking water (lawn watering regulations), but they may also benefit wastewater systems (low flow toilet rebates)(source 1). Metro Vancouver runs tours of protected water source watersheds to better understand conservation issues (Source 1). The City of Surrey has large conservation programs for water and stormwater (Source 2). The City has been running the Project Save H2O for 6 years now and the Salmon Habitat Restoration Project for almost 20 (Source 2). Both programs educate the public on water conservation and healthy streams, fisheries enhancements and water quality (Source 2). Surrey has also developed spin off programs for storm drain marking, industries, stream stewardship; which has resulted in a very active community involvement with residents marking storm drains, as well as testing water quality (Source 2). We do joint projects with schools and stream keeper groups to assist with education

22 and also neighbour programs (stream planting, invasive removals) (Source 2). The City of Surrey has a Sustainability Charter, A Climate Change Adaptation Strategy, various Neighbourhood Concept Plans, Water Plans, and Integrated Stormwater Management Plans for all sub-watersheds, Lowlands strategy as well as various policies and Official Community plan to ensure planning for current and future (even changing future) needs in a sustainable way(source 2). City Council is supportive of adopting new ideas to ensure sustainability in Surrey (Source 2). The City also has plans for each utility related to seismic vulnerability and making systems more resilient (Source 2); and it is looking at heat recovery from sanitary sewers to input into the City centre district energy network (Source 2). Capital and planning studies are funded through each utility as part of 10-year plan portion and the City provides general revenue for the City-wide plans to be developed (Source 2). It is crucial that Upper Tier and Lower Tier municipalities or Regional Districts and Local municipalities work collectively to develop an integrated water, wastewater and stormwater management solution. Canadian municipalities where municipal governance structure and frameworks present a barrier to achieve a seamless integration between Upper and Lower Tier municipalities, need to be revised and updated to incorporate policies that allow local governments to integrate their initiatives with federal and provincial plans like municipalities in Ontario and British Columbia. Water (and other resources nutrients, carbon, energy) can be more sustainably managed if municipalities consider the system holistically, rather than exclisuve systems as specialized elements (water supply versus stormwater versus wastewater versus aquatic ecosystems) with limited interrelationship. Highlighting Stormwater as a resource rather than a waste. The first step for municipalities to implement an integrated management of municipal water systems is to fully understand the different (and region specific) risks being managed across the systems and how such risks interrelate to prioritize investments or actions and avoid unintended consequences (McBean, 2014). Canada s Economic Action Plan provides $ 200 million over five years to establish a National Disaster Mitigation Program; which supports investments in structure mitigation measures (McBean, 2014). With an integrated management of municipal water systems will have a stronger voice and provide accountability and

23 transparency; which is critical for both provincial and federal funding in a competitive environment for infrastructure funding by all sectors, not only the water sector (McBean, 2014). Recommendations for municipalities working collectively to develop an integrated water, wastewater and stormwater management solution include: The first step is to broad the definition of water infrastructure to embrace a broader, more holistic definition that includes both traditional manmade water and wastewater infrastructure, and natural watershed systems (EPRI, 2010).Water infrastructure needs to be connected to other different aspects and services in the community, including transportation, energy and other public services since it affects our water supplies, public health, fishing and shell-fishing, recreation, aesthetics, and ecological resources (EPRI, 2010). Addressing water sustainability holistically will make the interrelationships between water management, energy, agriculture, land use and associated ecologies more recognizable (EPRI, 2010). Municipalities must identifyfederal fundingallocated specifically for sustainable, green water management practicesto set up rebates for water efficiency and water reuse systems, green stormwater infrastructure, decentralized wastewater systems, and long-term monitoring and adaptive management programs (EPRI, 2010). Lower-tier governments can use this funding not only for flow creek and sewer flow monitoring, water quality, ecosystem health but also for local utilities, affordable housing agencies, and local and state economic development agencies through green initiatives that retrofit existing homes and treatment facilities, and build demonstration projects; creatinglocal green industries and jobs (EPRI, 2010). Municipalities must revise their utility rate approval criteria and procedures to allow for rate structures that provide adequate revenue streams (EPRI, 2010). Cureently the primary revenue source for water service in municipalities is customer billing, usually is based on water usage; although water rates often go down for larger users, providing little incentive to encourage water conservation (EPRI, 2010). In some municipalities utility regulators in may set rate structures that prohibit conservation pricing (EPRI, 2010). It is crucial for municipalities to identify such structures and review them and update them to foster water conservation using water metering as a conservation tool. Municipalities must implement water metering with a progressive rate structure and the ability for consumers to easily track their water use. Municipalities must recognize the benefits of water/wastewater reuse and other demand management