SoE 2006 > Human settlement > 2.2 Urban water

2.2 Urban water

The quality of NSW water supplies is excellent but security of supply and levels of water consumption remain critical issues. Population growth, drought, and the need for environmental flows for river health, as well as concerns about climate change, are forcing a rapid shift to water efficiency and reuse.

Metropolitan water utilities in NSW provide high-quality drinking water that meets the Australian Drinking Water Guidelines. The quality of drinking water supplied by rural and regional water utilities also generally meets these guidelines.

Progress continues on reducing per capita water consumption, but the ongoing drought and the need to provide environmental flows in Sydney and other areas means water savings will have to be sustained and increased.

The Metropolitan Water Plan 2006 aims to secure Sydney's water supply by maximising water recycling, encouraging water savings, accessing deep water in dams, reducing leaks and having drought response solutions ready. Many councils are introducing small-scale stormwater recycling schemes to reduce the amount of potable water used on open space areas. Recycled sewage schemes are also increasing around the State.

NSW indicators

Introduction

Safe and reliable water services are essential to support a growing NSW population and associated economic activities. The rising demand for water is a significant environmental issue as it puts catchments under considerable pressure. While approximately 90% of the water taken from the NSW environment is used for irrigated agriculture (NLWRA 2001), urban water use has profound impacts on the waterways that supply the water as well as those that receive subsequent discharges of treated sewage and urban runoff.

Urban waterways are typically fed by catchments that have been highly modified and contain large areas of impermeable hard surfaces. The waterways themselves have usually been modified as well, often having reduced or non-existent riparian areas. As a result, the types and quantity of discharge (from both point and diffuse sources) and the capacity of the waterway to deal with those discharges differ significantly from non-urban areas.

Runoff from urban areas is generally contaminated by sediment, nutrients, hydrocarbons, heavy metals, pathogens, and possibly other toxic and persistent chemicals. These contaminants originate from sources such as roads, sewer overflows, spills, industrial activities and building sites. Their impacts on receiving waters include reduced diversity of species through loss of pollution-sensitive species, as well as other species dependent on them, and high levels of persistent toxicants in sediments and aquatic species (see Water 5.3 and Water 5.7).

In addition to runoff and other types of diffuse-source pollution, urban waterways also receive point-source discharges, such as those from sewage treatment plants and industrial activities. However, following significant reductions in nutrients from some point sources over recent years, diffuse sources currently contribute most of the nutrient and sediment water pollution in urban waterways.

Current status and trends

Urban drinking water quality

The NSW Government has endorsed the Australian Drinking Water Guidelines (NHMRC & NRMMC 2004), which promote a preventive risk management approach for drinking water quality, from the catchment to the household tap.

NSW drinking water quality generally meets the standards set by the guidelines. These include compliance with health-related guideline values in 95% of water samples assessed for chemical water quality. While the chemical quality of drinking water throughout NSW is generally high, there is some variation among regional water suppliers (known as utilities). These exceptions may relate to an unusual event in supply or a problem within a catchment, which may be alleviated through remedial action and water treatment.

Table 2.2 summarises NSW compliance with the guidelines' indicators for chemical as well as microbiological water quality. It is recommended that 98% of samples taken to assess microbiological water quality contain no thermotolerant coliforms or Escherichia coli, because their presence can indicate faecal contamination and the potential presence of waterborne pathogens. The microbiological quality of drinking water throughout NSW is high.

Table 2.2: NSW compliance with the Australian Drinking Water Guidelines

Source: NSW Health data March 2006

Urban water supply and demand

By March 2006, it had been over seven years since the Sydney water storage system had been at full operating storage capacity. This could be attributed to variations in rainfall (including a prolonged dry spell) and growth in demand for water prior to water restrictions.

Average daily water use per person in Sydney has fallen significantly from 506 litres (L) in 1990–91 to 342 L in 2004–05 (Figure 2.2). In recent years these water savings have been due to mandatory water restrictions and water savings measures, including the Water Savings Fund, Sydney Water's Leak Reduction Program, the introduction of BASIX, the Water Efficiency Labelling Scheme, rainwater tank rebates, the Waterfix Program and the Every Drop Counts Business Program. Without these it is estimated that water use would be 403 L per person per day (SWC 2005). Level 1 mandatory water restrictions were introduced in October 2003, followed by Level 2 in June the next year, and Level 3 in June 2005. The introduction of pay-for-use water pricing and other water savings measures have also reduced water consumption.

Over the next 25 years, Sydney's population is forecast to grow by more than one million (ABS 2005a; DoP 2005a). If consumption remained at 2003 levels, by 2029 Sydney would use an extra 200 gigalitres (GL) of water each year (DIPNR 2004a).

Environmental flows must also be guaranteed for river health and to protect the environment of people living in regional centres and towns in the catchments that supply water to Sydneysiders, such as Nowra and Goulburn. The Hawkesbury–Nepean River system, for example, requires additional environmental flows to avoid ongoing ecological damage. Water extraction and excess nutrient inflows, combined with drought, have endangered the health of aquatic ecosystems and have had an adverse impact on agricultural and recreational users of the river (see Water 5.2).

Figure 2.2: Sydney Water per capita water consumption

Source: SWC 2005

In 2004–05, the residential sector accounted for approximately 70% of Sydney Water's annual metered water use (Figure 2.3) and 53% of water supplied by Hunter Water (HWC 2005; SWC 2005). Bathroom and laundry uses typically accounted for two-thirds of household water consumption (NSW Government 2006).

Changing water use and installing more efficient fittings and appliances are key strategies to enhance water conservation. Most major supply authorities in NSW are pursuing a combination of public education, revised price structures, water restrictions, new water-efficiency standards and retrofit programs to achieve savings in water use.

Figure 2.3: Drinking water consumption in Sydney by sector, 2004–05

Source: NSW Government 2006

In recent years, the operations of local water utilities across regional NSW (that is, all except Sydney and Hunter water corporations) have been strongly influenced by drought, with 81% receiving below-average rainfall in 2003–04 (see Appendix 1). This has led to an increased focus on water conservation and demand management, particularly through water restrictions, pay-for-use water pricing and integrated water cycle management (DEUS 2004a). During 2004–05, 45% of NSW water utilities had water restrictions in place (DEUS 2005a).

In 2004–05 in regional NSW, the median average residential consumption of drinking water was 200 kilolitres (kL) per connected property, down from 215 kL in 2003–04 and 220 kL in 2002–03. This is similar to the consumption level in Melbourne and lower than many other Australian utilities (DEUS 2004a). Figure 2.4 shows the difference in consumption between a sample of coastal and inland water utilities. Inland areas rely more on reticulated supplies due to their drier climate. The differences between Bathurst and Orange are likely to be due to differences in charges. In 2003–04, the minimum access charge in Bathurst was $250 which included 45 kL/yr of water, increasing to $300 for up to 300 kL/yr. Orange residents paid a minimum access charge of $300 for 150 kL/yr, increasing to $352 for 250 kL/yr. Therefore there is financial incentive for Bathurst residents to save water. Note that the volume of water included within the service access charge in Orange decreased from 305 kL in 2001–02 to 150 kL in 2002–03.

Figure 2.4: Average annual residential water consumption for selected NSW water utilities

Source: DEUS data 2006

Discharges to urban waterways

Since 2002–03, Sydney Water has invested more than $86 million to maintain and improve the performance of wastewater pipes as part of its sewage overflow abatement works. As a result, wet-weather overflows have dropped from 608 in 2002–03 to 168 in 2004–05. However, lower flows due to drought conditions have increased the incidence of sewer chokes causing more dry-weather overflows, with over 19,000 incidents reported in 2004–05 (SWC 2003; SWC 2004; SWC 2005).

Urban stormwater management programs have helped improve the quality of urban runoff discharged to waterways. The $82-million Urban Stormwater Program, introduced in 1997 to improve urban stormwater-quality management practices, and the $19-million Blue Mountains Urban Runoff Control Program, have together prevented 18,380 tonnes of pollution entering NSW waterways. These programs have increased public awareness of the impacts of urban discharges and funded construction of nearly 100 artificial wetlands to reduce the flows of nutrients and sediment to waterways. Despite such efforts, the prevention of urban waterway pollution remains a challenge.

Details of pollution from urban discharges, including point sources and the impact of urban discharges on beach and harbour water quality, are provided in Water 5.3 and Water 5.6, respectively.

Response to the issue

Metropolitan Water Plan

In October 2004, the NSW Government released the Metropolitan Water Plan (DIPNR 2004a). The plan was prepared as a response to the drought and the need to manage water quality and its supply and demand, and improve river health in the greater Sydney area. Following an independent review of the plan (ISF/ACIL 2006), a revised version, the 2006 Metropolitan Water Plan, was released in May 2006, covering water management in Sydney until 2029 (NSW Government 2006).

The 2006 plan incorporates a portfolio of measures to maximise water recycling, encourage water savings, access additional water sources, reduce leaks and have drought response solutions ready. The combined effect of the plan's water-saving and supply measures are designed to ensure that Sydney has sufficient water to meet its needs until at least 2015 (Figure 2.5). Starting in 2007, reviews of the plan every four years will inform an adaptive management approach to balance ongoing supply and demand issues while providing for environmental flows. The 2006 plan also outlines a range of options that could be considered for deployment beyond 2015 if needed.

Figure 2.5: Meeting Sydney's water needs to 2015 – water sources additional to current available supply from dams

Source: Adapted from the Metropolitan Water Plan (NSW Government 2006)

Notes: The figure depicts the balance of water savings and water savings measures to meet Sydney's needs to 2015, as described in the 2006 Metropolitan Water Plan.

The total volume recycled is anticipated to be more than 70 billion litres every year by 2015. Because the use of recycled water for some purposes does not save drinking water, total drinking water expected to be saved through recycling is 59 billion litres per year.

Recycling

NSW's largest industrial recycled water scheme came online in 2006, providing 20 megalitres of recycled sewage water per day for use by BlueScope Steel in Port Kembla. This will save 7.3 GL of drinking water each year.A tender process for another large-scale industrial recycled water project at Camellia near Parramatta is now underway.

Sydney currently recycles 15 GL of sewage water each year. Figure 2.6 shows the increasing volumes of water saved since 2000.

Figure 2.6: Water savings achieved by Sydney Water since 2000

Source: SWC 2005

Water supply

The Metropolitan Water Plan (NSW Government 2006) identifies a number of new sources of water for Sydney. These include harvesting stormwater, accessing water at the bottom of dams, and readiness to pursue short-term extraction from aquifers and desalination of seawater as extreme drought measures.

Integrated water cycle management (IWCM) is the integration of water supply, sewerage and stormwater, so that water is used optimally within a catchment to maximise benefits to the community and the environment. IWCM is a requirement of the Best Practice Management of Water Supply and Sewerage Guidelines (DEUS 2004b), which are being adopted by regional water utilities. More than 20 IWCM strategies have been prepared for regional areas, such as Deniliquin and Kempsey, and regional utilities have been able to use government subsidies to prepare drought management plans (DEUS 2005b).

Amendments to the Local Government Act 1993 have given local government the ability to charge for providing stormwater management services, including the reuse of stormwater. DEC has published guidelines to assist local government and the water industry to develop local stormwater reuse projects (DEC 2006a).

Water savings

Water efficiency in new residences is being addressed by initiatives such as the Building Sustainability Index (BASIX), which requires new dwellings to use up to 40% less water (see Human Settlement 2.1).

Another water savings approach is requiring government agencies, local government and major water-using businesses in Sydney Water's area of operations to prepare Water Savings Action Plans, and cost-effective measures to improve water efficiency are expected to be implemented. Through better planning and efficient water use, it is estimated that water savings of up to 25% can be realised (NSW Government 2006). Businesses in Sydney, the Blue Mountains, Illawarra and Central Coast can apply to the $130-million Water Savings Fund for assistance in implementing water efficiency and recycling measures. For example, the 41 projects selected in the 2006 second round of Water Savings Funds will save more than 4.5 GL of reticulated drinking water a year through recycling, stormwater harvesting, water use efficiency and groundwater use.

National initiatives

Nationally, there have also been initiatives to encourage water efficiency and innovation in sourcing water supplies, as well as in treatment, storage and discharge of the water. The National Water Initiative, agreed to by the Council of Australian Governments in 2004, includes an urban water reform program aimed at reducing demand and promoting water-sensitive urban design.

One of its first programs is implementation of the Water Efficiency Labelling and Standards Scheme across Australia. The scheme , which became mandatory in NSW in July 2006, requires water-efficiency labels on all showerheads, washing machines, toilets, dishwashers, urinals and some types of taps, as well as minimum water-efficiency standards for toilets. Buyers in NSW – and across Australia – have been able to compare the relative water efficiency of product models. Some utilities in NSW are also offering rebates on water-efficient appliances.

Urban discharges

There is increasing focus on mitigating the environmental impacts of urban stormwater flows and pollution. Through the NSW Stormwater Trust, the Government has initiated a number of projects to develop a process for setting stormwater management objectives which reflect the sensitivities of different types of receiving ecosystems. The new approach will support the Water Quality and River Flow Objectives defined for NSW waters. Increased environmental flows are to be provided for a number of rivers around Sydney, and flows for other rivers will be developed over time, following community consultation and using monitoring results (NSW Government 2006).

In response to the increase in dry-weather sewage overflows, Sydney Water is implementing an optimal sewer blockage strategy to ensure a cost-effective approach to managing chokes. Its program to maintain wastewater pipes, SewerFix, is ongoing.

Other responses to urban discharges are detailed in Water 5.3 and Water 5.4.

Future directions

Population growth and climate change are long-term trends that must be reconciled in the management of finite water resources. IWCM, which incorporates demand management, water recycling and water-sensitive urban design, is a key driver for improving the sustainability of our water consumption. Recognising recycled wastewater and stormwater as legitimate water sources is fundamental to achieving IWCM.

National guidelines on water recycling and standards for using reclaimed water are being developed to assist in community acceptance of these water sources and to safeguard public health. New recycling schemes currently under construction or coming online in the next few years will double the volume of water recycled to 30 GL. In addition, the Western Sydney Recycling Water Initiative will provide recycled water to new homes in western Sydney and further recycling schemes are proposed to provide a total of around 70 GL of recycled water per year in Sydney by 2015 (NSW Government 2006). Some regional utilities, such as in Goulburn, are also considering recycling to provide drinking water.

Water pricing – including pricing of recycled water and stormwater – is a key driver for reducing potable water consumption while at the same time encouraging the viability of emerging reuse and recycling opportunities. The Independent Pricing and Regulatory Tribunal of NSW (IPART) has commenced a review of recycled water prices for the Sydney, Hunter, Gosford and Wyong water utilities (IPART 2006). IPART is also considering pricing arrangements for sewer mining, where water is extracted from sewage, treated and then used.

Plans for increasing Sydney's water supply will need to consider equity issues and environmental impacts that may be shifted within the Hawkesbury–Nepean catchment or between catchments. Adequate environmental flows need to be guaranteed to maintain the health and biodiversity of individual water supply catchments and their rivers (see Water 5.2).