Interim strategic advice for the Perth and Peel regions
Perth and Peel @ 3.5 million Environmental impacts, risks and remedies
Interim strategic advice of the Environmental Protection Authority to the Minister for Environment under section 16(e) of the Environmental Protection Act 1986
July 2015 3 Published by the
Office of the Environmental Protection Authority Level 8, The Atrium, 168 St Georges Terrace Perth WA 6000 Locked Bag 10, East Perth WA 6892 p: 08 6145 0800 e: [email protected] w: www.epa.wa.gov.au
This document is available in alternative formats on request. Perth and Peel @ 3.5 million Environmental impacts, risks and remedies
Interim strategic advice of the Environmental Protection Authority to the Minister for Environment under section 16(e) of the Environmental Protection Act 1986
July 2015 1882 – Murray River, Peel region “I hired a couple of boatmen to take me up the river to Pinjarrah, about twenty miles. We found the water of the estuary fresh all the way, owing to the heavy rains that had fallen inland. Passing through winding channels between many pretty wooded islands, we reached the true mouth, or rather delta, of the Murray in about five miles. The soil on the banks and for some distance on either side is a rich vegetable loam, but becomes more light and sandy as you leave the river banks. The timber is whitegum, a valuable and very tough wood, quite different to our tree of the same name. Redgum, jarrah, and banksia intersperse with the graceful zamia, or West Australian palm, which with its pineapple shaped clusters has a very pleasing appearance. The river banks soon became high and the stream more confined, but there was still sufficient water to float any vessel of light draught, while some reaches would have floated a man-of-war could she have got there. Game was not abundant, it not being the proper season, but the water was literally alive with fish all the way.”
An interstate correspondent describing the environs of the Murray River
Adelaide Observer, 2 December 1882
Photo: Murray River, Pinjarrah, 1880s Courtesy of the State Library of Western Australia 09739PD 2008 – Murray River, Peel region “The Environmental Protection Authority also recognises the highly stressed tidal reaches of the Serpentine and Murray Rivers as measurably degraded ecosystems (experiencing algal blooms, bacteriological scums, fish kills, unsightly episodic decomposition of alga producing offensive odours).”
Peel Harvey Water Quality Improvement Plan, 2008
Photo: Algal bloom in the Serpentine River, 2006 Courtesy of the Peel Harvey Catchment Council
1 Chairman’s foreword
Western Australia has a remarkable environmental endowment of rich marine and terrestrial ecosystems spread over a vast geographic area. These ecosystems have developed in relative isolation over millions of years and their associated flora and fauna are highly specialised for the environments in which they live.
Most of our population lives in the Perth and Peel regions, which sit within one of the world’s 34 biodiversity hotspots.
While interaction with our natural environment is an important part of the Western Australian lifestyle, it wears the scars of 186 years of European settlement.
There has been extensive clearing of native vegetation and the habitat it provides for many species. Today, only 29 per cent remains of the original extent of vegetation on the Swan Coastal Plain portion of the Perth and Peel regions. Of this, just over a quarter is in some form of conservation tenure. A number of the original species that were present in the Perth-Peel area at the time of settlement have already disappeared from the region, including twelve mammals, and many of the plants are now restricted and threatened with extinction.
The quality of our rivers and estuaries has deteriorated and many of the wetlands on which a wide variety of flora and fauna depend have been filled or degraded.
However, while mistakes have undoubtedly been made, Western Australia also has a history of taking bold steps to protect and repair our natural endowment.
For example, in the 1890s, our leaders had the foresight to protect the inner city natural bushland we now know as King’s Park. An address to the Natural History Society by Sir John Forrest (its outgoing President) was reported thus:
…a reserve of suitable land should be made, before it was too late, for the preservation and cultivation of the native flora and fauna before they were destroyed. It might seem too soon for such a reservation to be made, yet, remembering how rapidly these new countries progressed and developed, and that what might be easy now would become difficult or impossible a few years hence... †
† Daily News, 2 October 1892 2 ‡ The West Australian, 24 October 1912 Interim strategic advice for the Perth and Peel regions
In 1912, Walter Kingsmill MLC took the progressive Every material item we possess or consume began step of introducing legislation to protect native flora as part of our environment. We are inextricably part in Western Australia, described at the time as “the of our environment and have the ability to positively only one of its kind in Australasia”‡. or negatively influence it.
In the 1920s, Premier Collier announced the If we are to give life to the principles of ecologically establishment of a national park at Greenmount, sustainable development, then we must place an now known as John Forrest National Park. appropriate weight on environmental values in decision making. In the 1930s the State moved to create the large Yanchep National Park and introduce regulations to The EPA is acutely aware of the current and likely protect its flora and fauna. It also protected Canning future pressures on the environment of the Perth Weir, Point Walter, Heirisson Island and Serpentine and Peel regions, and its own responsibility to Falls to maintain the people’s connection to nature. provide advice to the Minister for Environment as to how these can be managed over the long term. In 1950s, Government established a body to oversee the protection of the Swan River from its many However, this is not advice for one Minister, one sources of pollution and also introduced the Wildlife Government, or one generation. Conservation Act 1950 which continues to this day. It is advice for our present and future leaders. In 1971, the Western Australian Government established an Environmental Protection Authority We must take bold steps to build on our with the job of using its “best endeavours to protect environmental successes and openly acknowledge - the environment and to prevent, control and abate and remedy - our failures so that future generations pollution and environmental harm”. can see and experience our complex, fragile and unique environment. In 1992, Western Australia signed up to Australia’s National Strategy for Ecologically Sustainable Development which defines ecologically sustainable development as: “using, conserving and enhancing the community’s resources so that ecological processes, on which life depends, are maintained, and the total quality of life, now and in the future, can be increased”. Dr Paul Vogel
In recent decades, the Peel-Yalgorup system Chairman (1990), Forrestdale and Thomsons Lakes (1990) and Environmental Protection Authority Becher Point wetlands (2001) have been listed as internationally important Ramsar wetlands.
With the Perth and Peel regions likely to accommodate a population of 3.5 million in coming decades, the environment faces its greatest challenge.
The environment is a valuable commodity to society. In itself, it sustains life, providing us with the fresh water we drink, the clean air we breathe and the soils in which we grow our food. It supports our physical and mental health and well-being through its beauty and encourages our sense of adventure. It inspires our poetry and our culture. It connects us to the past, the present and the future. It supports our economy through the natural resources it provides.
3 Executive summary
Executive summary
The Perth and Peel regions are expected to both the Commonwealth and State environmental accommodate an additional 1.5 million people by impact assessments. 2050, bringing the area’s total population to more than 3.5 million. Strategic consideration of the Whether that population growth is reached sooner – environment or later – it is incumbent on the present generation Since its inception in 1971, the EPA has conducted to lay the foundations for that growth to occur environmental impact assessments of significant without further compromising our environment, development proposals. In 1996, the EPA was also both for its intrinsic value and because of the value given responsibility to assess all planning schemes it has to the health and wellbeing of the community. and scheme amendments.
The Western Australian Planning Commission’s What the EPA has learned over that time is that case (WAPC) Perth and Peel @ 3.5 Million report and by case assessments are usually not the best way to four draft planning frameworks for the Central, achieve broader strategic environmental outcomes, North-West, North-East and South Metropolitan particularly in areas where there is a range of Peel sub-regions, which were released in April 2015, cumulative environmental impacts, complex outline a vision for future land uses and a more biodiversity and many competing land uses. liveable, prosperous, connected, sustainable and collaborative community. These frameworks will The EPA strongly supports the Western Australian be finalised, after the consultation period, as Sub- Government’s initiative to undertake the Strategic regional Structure Plans. Assessment of the Perth and Peel regions to protect and maintain MNES. The EPA considers that Concurrently, the Western Australian Government is the best ‘whole of environment’ outcome will be engaged with the Commonwealth Government on a achieved by considering the EPA’s broader range of Strategic Assessment of the Perth and Peel regions. environmental factors and objectives alongside the That assessment will consider the environmental Commonwealth matters. implications of Perth and Peel’s future development on Matters of National Environmental Significance (MNES). The State is also assessing the environmental impact of future development on a suite of State environmental values, additional to The EPA considers that the the MNES. best ‘whole of environment’ The Environmental Protection Authority (EPA) will be providing strategic advice to the Minister for outcome will be achieved Environment on the draft planning frameworks and by considering the the broader implications for the environment that arise from a substantial increase in the population EPA’s broader range of of the regions, noting the cumulative impacts to date. This advice – the EPA’s interim strategic advice environmental factors and – is intended to influence the finalisation of the Sub-regional Structure Plans and the overarching objectives alongside the Strategic Conservation Plan which will address Commonwealth matters. 4 Interim strategic advice for the Perth and Peel regions
The EPA also believes that incorporation of the to limit the operation of Part IV of the Environmental strategic environmental outcomes from the Protection Act 1986 (the EP Act) in the Perth and assessment of State and Commonwealth values into Peel regions, delivering a high degree of land use the State’s land use planning system and associated planning certainty. policies provides the best opportunity to protect the Perth and Peel regions’ environment over the LAND – protecting our remaining long term. It is noted that one of the stated aims of biodiversity the draft Sub-regional Planning Frameworks is for Perth to “responsibly manage its ecological footprint Since European settlement, there has been and live within its environmental constraints, while significant clearing of native vegetation in the improving our connection with and enjoyment of Perth and Peel regions for urban, industrial and the natural environment”. agricultural purposes. Noting these cumulative impacts on biodiversity in the region, the EPA The EPA considers that the WAPC’s proposals for believes the State Government must redouble a more compact (connected) city – reflected in its efforts to protect and manage the remaining the draft Sub-regional Planning Frameworks – is regionally significant natural areas, building on the the single most significant step towards avoiding forward-thinking Bush Forever program. In the Peel environmental impacts in decades, particularly region, while there is currently no equivalent of on the urban fringes. The environmental cost of the Bush Forever program, the EPA has identified continuing the urban sprawl is incalculable and will regionally significant natural areas to inform be increasingly unacceptable to the community. In strategic regional planning. this vein, the EPA is particularly pleased that long- standing proposals to develop East Keralup will no The EPA considers that efficient use of existing longer proceed. cleared land, and smart urban infill that is mindful of potential amenity impacts and a changing The EPA is acutely aware that in coming decades climate, will deliver a city that is more liveable and greater value will be placed on the environment sustainable. in the calculation of sustainable outcomes, and believes it is important to prepare for this There are opportunities to increase community through maximum avoidance and mitigation of confidence in the protection of the environment by environmental impacts in long term planning. giving the most important areas of biodiversity a high level of tenure security. The EPA considers it is imperative that any long term plan to manage the likely environmental impacts of Further, there are opportunities to increase the a growing population should be accompanied by a visibility of biodiversity protection through clearer transparent, resourced, and whole of Government designations in planning instruments to distinguish implementation plan. between natural areas for conservation purposes and open space for playing fields and the like. Provided the environmental outcomes are ‘hard wired’ into the State’s land use planning system and RECOMMENDATIONS associated policies, and the State has developed Recommendation 1: that the State Government an appropriate response to issues identified in the protect regionally significant natural areas. forthcoming State and Commonwealth impact a. Continue to acquire the balance of Bush assessments, the EPA believes there is opportunity Forever sites, as opportunities arise. 5 Executive summary
b. Implement a strategy for the long-term The EPA also believes that water planning should protection of Peel Regionally Significant be undertaken in parallel with land use planning at Natural Areas. the sub-regional, district and local scale to ensure that best practice water management requirements Recommendation 2: that the WAPC, in relevant are incorporated into all new urban, industrial, and planning instruments, clearly distinguishes agricultural activities. between areas set aside primarily for conservation and those for other purposes (e.g. active The EPA considers particular attention should be recreation). given to the cumulative impacts and likely future impacts of development around the Swan-Canning Recommendation 3: that the State Government and Peel-Harvey estuaries as the environmental develop and implement a strategy for the values of these systems underpin the social, management of regionally significant natural recreational, and economic future of the region. areas. RECOMMENDATIONS Recommendation 4: that the State Government enhance the viability of consolidated regionally Recommendation 6: that the State Government significant natural areas by improving degraded continue to implement measures to reduce areas and re-establishing linkages. water use, increase water recycling and develop alternative fit-for-purpose water sources. Recommendation 5: that the WAPC protects a. The Department of Water to develop a Perth- Conservation Category Wetlands and minimises Peel Regional Water Supply Strategy as the the potential impacts on Resource Enhancement primary mechanism to guide the development wetlands, including their buffers, at structure of fit-for-purpose water supplies across all sub- planning and subdivision design stages. regions. a. Relevant agencies to finalise a whole of b. Support the Water Corporation’s continued Government policy for the identification and development of managed aquifer recharge implementation of wetland buffers. into confined aquifers of the Gnangara Mound. With the Department of Water, develop a Implementing these recommendations will ensure longer-term plan to align the groundwater that a representative portion of the biodiversity of abstraction bore fields with artificial recharge the Perth and Peel regions is protected for future sites, to better balance the recharge and take generations. of water. WATER – protecting the quality of our c. Integrate the recommendations of the Perth- Peel Regional Water Supply Strategy with water Sub-Regional Water Management strategies to Water, of appropriate quality, is essential to sustain ensure that the Sub-regional Structure Plans our population and to ensure our water dependent facilitate the implementation of alternative ecosystems persist into the future. water supplies. d. Ensure that the Water Supply Strategy and Sub- This is particularly challenging as the metropolitan regional water management strategies address region has experienced a decline in rainfall over the needs for water to irrigate Public Open the last three decades and the region’s rivers and Space and the green network, particularly in estuaries are showing signs of ecological stress as a expansion and urban infill areas. result of land use practices on our sandy soils. e. Continue and increase the focus on water use Nutrient run-off into wetlands, streams and efficiency, including for self-supply water users. waterways from the application of fertilisers Recommendation 7: that the WAPC, with the remains one of the largest contributors to the Department of Water, updates and ensures the deterioration of water quality. The EPA notes the consistent implementation of the Better Urban Government’s introduction of regulations to control Water Management Framework. the phosphorous content of fertilisers used in home gardens and lawns. In the long term this will make a. Develop and release for public consultation a significant difference to the impact of urban Sub-regional Water Management Strategies development on water quality but other pressures to support each Sub-regional structure plan, remain, such as effects from broadacre agricultural including for the Central sub-region. and horticultural practices. b. The Department of Water to develop drainage and water management plans for outstanding A key focus in the future should be the efficient areas within the Perth and Peel regions. use of scarce water supplies, including recharging c. Update the Better Urban Water Management aquifers with recycled water. framework to include guidance for urban
6 Interim strategic advice for the Perth and Peel regions
infill areas, brownfield development and Recommendation 12: that the WAPC and the identification, evaluation and implementation Department of Water update and implement the process for alternative water sources at each current policy framework to protect the quality of level of planning. groundwater used for drinking water supplies. Recommendation 8: that State Government a. Complete the review of the State Planning take steps to implement key actions necessary Policies to provide improved guidance on to improve and maintain the health of the Swan land use planning and development in public Canning River System. drinking water source areas. a. Improve the monitoring and public reporting b. Develop processes to undertake a transparent on the health of the river system. risk/benefit analysis where incompatible land b. Fully implement actions identified in the Swan uses are proposed in Priority 1 areas. Canning Water Quality Improvement Plan. c. Embed water quality criteria into protection c. Approve and implement the draft River plans, against which the impacts of Protection Strategy. developments in drinking water source areas can be assessed. Recommendation 9: that the State Government establish a clear, contemporary whole-of Recommendation 13: that the State Government government policy position on the protection support the development of a contemporary of the Peel-Harvey Estuary system and develop legislative framework that addresses water quality specific strategies to deliver policy outcomes. and quantity management. a. Develop a new, Government-endorsed policy Implementing these recommendations will lead position on the protection of the Peel-Harvey to a more integrated approach to land and water system, with the policy instrument chosen planning and management which will ensure that on the basis of the outcomes which are being the values of significant water systems are protected sought. as the Perth and Peel regions develops. b. Provide a planning mechanism to ensure land use is compatible with land capabilities. AIR – protecting our air quality c. Continue to coordinate agency, industry Air quality in the Perth and Peel regions is generally and community roles, responsibilities and of a high standard in comparison with other improvement actions through a coordinating Australian and international cities. However, on body such as the Peel-Harvey Estuary certain days of the year the Perth and Peel regions Management Committee. experience periods of poor air quality, often due to unforeseen and unmanageable adverse events Recommendation 10: that the State Government including smoke from bushfires and dust storms. implement the recommendations of the Peel- Strategies which minimise overall exposure of Harvey Water Quality Improvement Plan, the people to air pollutants will have the greatest including strategies to improve rural fertiliser benefit to human health. management. With an increasing population there is likely to be Recommendation 11: that the Department of a corresponding increase in both direct and diffuse Water and the Department of Parks and Wildlife sources of air pollution, potentially increasing the improve the knowledge and understanding of number of people exposed to this pollution. While the water quality of the Peel-Harvey and Swan- there are mechanisms in place to regulate and Canning catchments to support decision-making. manage industrial emissions, the management a. Develop estuarine health indicators for the of diffuse sources, such as transport emissions, Swan-Canning and Peel-Harvey systems. is complex especially in the context of a rapidly b. Set water quality objectives for all sub- growing city. catchments of the systems. Significant associations have been found between c. Develop a monitoring and reporting program changes in particulate and ozone concentrations in for the Peel-Harvey system, and improve Perth’s air and hospitalisations for asthma, chronic reporting for the Swan-Canning system, obstructive pulmonary disease, pneumonia and against the estuarine health indicators sub- respiratory disease. catchment water quality objectives. Ideally this should include an annual report card to the There have been major improvements in sulfur community. dioxide levels around Kwinana since the 1970s, with d. Develop/update estuarine ecosystem response the conversion to low sulfur fuels, installation of models to give a whole of system perspective pollution control technologies and a strong science- from which to assess potential impact based regulatory regime. of catchment based activities and future development. 7 Executive summary
Proactive steps to protecting Perth’s air quality have b. Use air quality knowledge to inform land use been undertaken through the Perth Air Quality and transport decision-making. Management Plan (2000). However, further steps c. Provide government departments with are necessary to maintain clean air in the face of access to air quality data to inform transport projected population growth. decisions. RECOMMENDATIONS d. Undertake air quality assessment for road network planning of major roads and strategic Recommendation 14: that the State Government, transport routes. through the Department of Environment Regulation, update and expand the Perth Air Recommendation 19: that the State Government Quality Management Plan to cover the Peel encourage increased uptake of active travel and region, and install permanent monitoring stations public transport, including implementation of the in the Perth CBD and Mandurah. WA Bicycle Network Plan 2014–2031. a. Identify and implement a range of air impact a. Continue support and implementation of mitigation strategies, including urban greening behavioural change and awareness programs and controls for wood heaters. which encourage walking, cycling and public transport. Recommendation 15: that the Department of Recommendation 20: that the WAPC, in Environment Regulation improve the knowledge consultation with the Department of Environment of the current state of air quality, and current and Regulation, provide guidance for local future major sources and types of air emissions for government and decision makers to establish the purpose of strategic land use planning. setbacks for future highly sensitive land uses (such a. The Department of Environment Regulation as hospitals, childcare centres, aged care facilities, to update the Perth Emissions inventory, and schools) from major roads and intersections. including the Peel region. b. Transport and planning agencies to use the These recommendations will ensure that the information to inform future strategic land use existing and future populations of the Perth and and transport planning at the regional scale. Peel regions continue to enjoy high standards of air quality and associated human health and amenity, Recommendation 16: that the State Government through a planned approach to the location of protect air quality, human health, and amenity sensitive land uses and promoting public and active through a whole of government approach to modes of transport. determination and enforcement of buffers around strategic industrial areas. PEOPLE – protecting the health, a. The WAPC/Department of Planning to develop heritage and amenity of our people a whole of government agreed policy on the development and implementation of buffers Human health, heritage and amenity can be through the review of the State Industrial affected by changes to the biophysical environment. Buffer Policy and adopt a precautionary Land use planning has its origins in the desire to approach where specific emissions sources are ensure that industrial and commercial activities not yet known. do not result in adverse public health outcomes. b. The WAPC to identify buffers around Strategic One of the most significant environmental Industrial Areas in the finalised Sub-regional determinants of health is the built environment. Structure Plans and enforce them through This includes the provision and location of services; subsequent statutory planning. residential, commercial and industrial areas; access Recommendation 17: that the Department of to transport options; noise and air pollution; and Environment Regulation develop an assessment waste management. Land use planning decisions framework for determining cumulative emissions have the potential to affect, protect and promote from proposed industrial areas. population health through environmental and social determinants of health. Recommendation 18: that the State Government implement a long-term integrated transport The EPA believes planning and designing cities to plan for the Perth and Peel regions which aligns improve contact with nature is important in order with the final Sub-regional Structure Plans and to attain the various health, amenity, community addresses air quality. connectedness and quality of life benefits. a. Ensure transport and land use planning The role and importance of biodiversity in delivering strategies are complementary in identifying health benefits and wellbeing should be considered measures to reduce traffic congestion and as a key component in the design of the Green improve air quality. Network and quality green spaces. 8 Interim strategic advice for the Perth and Peel regions
The Green Network will also assist to minimise Perth has one of the highest boat ownership per the urban heat island effect, where the ambient head than other Australian cities. This creates temperature of urban areas is significantly higher continuing demand for appropriate boat launching than surrounding rural or natural areas as a result facilities and coastal marinas. Added to the high of the heat absorption of the built urban form. The demand for coastal living, there is likely to be an urban heat island effect has potentially significant increasing demand for coastal developments impacts on human health and amenity, including of mixed use, such as marinas with urban and an increase in both acute and long-term health commercial development incorporated within the conditions. design.
Greater urban density through infill development RECOMMENDATION is a feature of the draft Sub-regional Planning Recommendation 22: that the State Government Frameworks. Urban infill developments can take request the EPA update and extend the many forms, and the EPA believes they can be environmental quality management framework designed in a form that minimises impacts on the outlined in the EPA’s document Perth’s Coastal amenity of existing residents, or exacerbation of the Waters: Environmental Values and Objectives to heat island effect. Urban infill developments also include all marine waters of the Perth and Peel provide an opportunity to enhance the quality of regions so that cumulative impacts in the marine the Green Network. environment of an increasing population can be RECOMMENDATION managed appropriately. Recommendation 21: that the WAPC and local Implementation of this recommendation will lay governments take steps to counteract the air the foundations of a management framework to quality, human health and amenity implications ensure future environmental assessments have the from the urban heat island effect through a necessary baseline information to assist decision greening strategy for the Perth and Peel regions. making and ensure significant marine values are protected from the indirect impacts of future Implementation of this recommendation through development. initiatives such as the Green Network will lead to outcomes such as an increased green canopy and green spaces in both new and existing urban areas. Urban, industrial and rural residential development – future considerations SEA – protecting the quality of our The WAPC has identified that future growth in the marine environment Perth and Peel regions should be through a more connected urban form, with a target of 47 per cent Activities that occur on the land can have urban infill. The EPA is highly supportive of the consequential impacts on the marine environment. connected city that the draft Sub-regional Planning Frameworks propose. With an increased population there will be an increase in the amount of solid and liquid waste Fragmentation of land ownership – and the produced. Poor waste management can affect the disproportionate ‘burden’ of environmental marine environment either from direct discharge protection on some owners – is a policy and of treated wastewater or from nutrients and other regulation conundrum that creates development contaminants leaching through the sandy soils that uncertainty and puts the environment at risk. This exist in the Perth and Peel regions. problem is evident today and will compound in future years. Careful planning of future wastewater discharge points will be necessary to reduce marine impacts to RECOMMENDATIONS water quality, benthic primary producer habitat and marine fauna. Recommendation 23: that local environmental outcomes on urban, industrial and rural residential Development of urban and industrial areas will land are implemented through structure plan and require effective storm water management in order subdivision design, supported by contemporary to reduce any cumulative marine impacts. policies and guidelines.
Agricultural and horticultural activities can use large Recommendation 24: that the WAPC should amounts of water, fertilisers and pesticides which consider policy and regulatory options to address must be managed appropriately to prevent leaching the delivery of environmental and development into the groundwater and eventually to estuarine outcomes on land parcels with fragmented and marine waters with consequent impacts (e.g. ownership. algal blooms, toxic algae, de-oxygenation events and, in extreme cases, fish kills).
9 Executive summary
The EPA believes that these recommendations will Recommendation 27: that the State Government enhance regulatory efficiency and environmental support the development of demand protection by encouraging the incorporation of key management policy responses to ensure that the environmental values into structure planning and basic raw materials are used sustainably. subdivision design based on agreed guidelines. This a. Promote novel development approaches in would obviate the need for referral of proposals or the urban and industrial areas to efficiently use schemes to multiple agencies. basic raw materials and minimise demand. b. Promote the use of waste-derived products Basic raw material extraction – future (such as mining and industrial by-products considerations and construction and demolition waste) as a replacement source of raw materials and to Increased construction and infrastructure modify or recreate landforms for approved development to support the population growth of land uses. Perth and Peel will increase the demand for basic raw materials such as sand, limestone, clay, and hard Recommendation 28: that the State Government rock. develop a contemporary Government policy and regulatory regime for basic raw materials. Extraction of these materials – which are often coincident with areas of high biodiversity value – a. The Department of Mines and Petroleum to can have a significant effect on the environment. investigate policy options to capture data on Historically, the case by case approach to basic the availability, demand and supply of basic raw material proposals has resulted in significant raw material resources on private as well as land use planning conflict and sub-optimal public land. environmental outcomes. b. The WAPC to review and update State Planning Policy 2.4 Basic Raw Materials to implement Best practice noise and dust management can negotiated solutions for basic raw materials mitigate the amenity effects in areas close to extraction sites, including managing urban extraction sites. encroachment. The EPA believes the supply of basic raw materials c. The State Government, in consultation with needs to be accompanied by strategies to promote the WA Local Government Association, to sequential land use (extraction of material before investigate policy, regulatory, and behavioural urban or industrial development) and ensure that barriers to sequential land use and implement these finite resources are used in the most efficient identified solutions. and effective ways possible. Implementing these recommendations will ensure There is opportunity to manage demand for these that the Strategic Assessment of the Perth and materials in the long term by promoting alternative Peel regions, which is balancing competing land building practices and materials, including the uses, both protects important areas of remnant use of mining and industrial by-products and vegetation and secures strategic basic raw material construction and demolition waste. nodes to meet future needs. The basic raw material areas currently identified in Infrastructure – future considerations the draft Sub-regional Planning Frameworks are not consistent with those areas under consideration The growth of the Perth and Peel regions depends in the Strategic Assessment of the Perth and on the provision of critical infrastructure to transfer Peel regions. This alignment should occur in the water supplies and wastewater, deliver electricity, finalisation of the Sub-regional Structure Plans and and provide road and rail transport options for associated policies to provide land use certainty. commuters and business.
RECOMMENDATIONS Infrastructure provision, particularly in an already constrained setting, can have significant impacts on Recommendation 25: that the State Government, the environment. in finalising activity footprints for the extraction of basic raw materials, should preference The EPA is encouraged by the State Government’s existing cleared land to avoid clearing high value investigation of multi-use infrastructure corridors. vegetation. These have the potential to limit the environmental impacts of individual proposals that would Recommendation 26: that the WAPC should otherwise fragment or have direct or indirect effects ensure the Sub-regional Structure Plans or other on remnant vegetation, wetlands or drinking water appropriate planning instruments are consistent protection areas. with and reflect interagency master planning undertaken for basic raw materials.
10 Interim strategic advice for the Perth and Peel regions
The EPA notes that a number of proposed The EPA considers that future biodiversity loss infrastructure corridors are likely to impact Bush should be transparent so the community fully Forever protection areas and other areas of high appreciates the environmental imperative for a conservation value. These should be the subject of more compact urban form. Lack of transparency of whole of Government decisions that transparently environmental impacts, such as urban vegetation demonstrate avoidance (consideration of clearing, may undermine the broader whole of alternatives), mitigation (minimising temporary Government policy objective. This matter was first impacts through use of innovative technologies and raised by the EPA in its State of the Environment rehabilitation), or offsetting efforts as appropriate. Report 2007. The EPA considers that ad hoc impacts can be avoided if there is a long term integrated plan for The Strategic Assessment of the Perth and Peel transport infrastructure, with a particular emphasis regions offers opportunities to place greater on public transport. emphasis on rehabilitation and revegetation of land in the Perth and Peel regions through offsets to The State Government, perhaps through the enhance environmental values closer to the site of WAPC’s Infrastructure Coordinating Committee, impacts. should develop an evaluation framework for critical infrastructure that ensures environmental assets are The EPA considers that regionally significant natural given an appropriate and consistent value in whole areas should be retained and protected in public of Government decision making. ownership. The Metropolitan Region Improvement Fund (MRIF) has successfully been used to acquire RECOMMENDATIONS and manage regionally significant areas in the metropolitan area for many decades. The EPA notes Recommendation 29: that, in the finalisation of that there is no equivalent of the MRIF in the Peel the Sub-regional Structure Plans, the WAPC, in region. An adequate mechanism to both acquire consultation with relevant infrastructure agencies, and manage these lands is a priority to secure further considers and refines key infrastructure important biodiversity assets. corridors to avoid and minimise environmental impacts. In considering the Commonwealth and State impact assessment reports, the EPA considers that Recommendation 30: that, at the detailed the State Government should preference ‘whole planning and design stages of individual of environment’ outcomes rather than solutions infrastructure proposals, infrastructure agencies directed exclusively towards individual listed species demonstrate further avoidance and mitigation and ecological communities. This will require careful before offsets are applied. balancing of State and Commonwealth objectives Recommendation 31: that the State Government but is important to ensure there are no perverse further develop and implement its policy outcomes. framework to promote multi-use infrastructure corridors. RECOMMENDATIONS Recommendation 33: that the State Government Recommendation 32: that the State Government develop an offset policy framework for future ensure infrastructure corridor and siting options development in the Perth and Peel regions that are evaluated through a transparent, whole of places greater emphasis on rehabilitation and government endorsed methodology that places revegetation of degraded areas to achieve a net appropriate value on the environment. improvement in habitat and other environmental Implementation of these recommendations values. will provide the best opportunity to ensure that Recommendation 34: that the State Government environmental values are given appropriate develop an appropriate funding mechanism, akin recognition in decision making processes and that to the Metropolitan Region Improvement Fund, impacts to biodiversity are avoided or mitigated. for the acquisition of strategic conservation areas in the Peel region. Implementation and assurance Recommendation 35: that the State Government The key to delivering on the strategic environmental implement an assurance framework that outcomes – and the WAPC’s stated aim of ensuring demonstrates that the ecological footprint is the Perth and Peel regions live within their being responsibly managed (e.g. a periodic report environmental constraints – is to ensure there is on the extent of vegetation clearing across the a robust and transparent implementation and Perth and Peel regions). assurance framework supported by contemporary policy and regulation, clear responsibilities and Recommendation 36: that the State Government funding. Equally, public confidence depends on maintain public confidence in the delivery of such a framework. 11 Executive summary
commitments in the Strategic Conservation Plan (a product of the Strategic Assessment of the Perth and Peel regions) through a periodic public report.
Conclusion The EPA notes the development of the draft Sub- regional Planning Frameworks, and the analysis and policy undertakings associated with the Strategic Assessment of the Perth and Peel regions, are the result of many years of whole of Government collaboration.
This is appropriate because none of the likely environmental impacts of the future developments scenarios – overlaid on the cumulative impacts to date – can be addressed by any one Department, or one Minister.
Dissolution of departmental boundaries, rethinking of existing policy prescriptions and past practices, and an open mind to new learning will be essential to implement the State’s commitments. It will maintain community confidence that the environment will be appropriately protected as the region develops in coming decades to accommodate 3.5 million people.
The EPA offers this interim advice in the spirit of collaboration and in the hope that concerted and coordinated action can make a real and practical difference to some of the environmental challenges we face now, and are likely to face in the future.
Photo: Ramsar landscape. Courtesy of the Peel-Harvey Catchment Council
12 Interim strategic advice for the Perth and Peel regions
Contents Cumulative industrial emissions 60 Increased vehicle emissions from a city of 3.5 million 60 Transport emissions near major roads 61 Chairman’s foreword 2 Executive summary 4 People 63 Background and values 64 Context 15 Connection between human health and the natural The context for the EPA’s advice 17 environment 64 Introduction 17 Heritage values 64 Amenity values 65 Request from the Minister 18 Key issues and responses 65 Purpose of the EPA’s strategic advice 18 Urban heat impacts on health and amenity 65 Scope of the EPA’s strategic advice 18 Mosquito impacts on human health and amenity 67 Why strategic land use planning is the key to Health impact assessment 67 protecting the environment 19 Noise impacts on human health and amenity 68 A sustainable future 20 Land use conflict 68 Impact on Aboriginal heritage from future development Land 23 69 Background and significant biodiversity values in the Amenity and landscape values 69 Perth and Peel regions 24 Landform values 24 Sea 71 Vegetation and flora values 25 Background and significant marine values in the Fauna values 29 Perth and Peel regions 72 Wetlands 30 Marine protected areas (Marine Park areas) 73 Regional conservation planning 31 Cockburn Sound 73 Key issues and responses 33 High areas of human use 73 Fish habitat protection areas 73 Challenge: Protect the Perth and Peel biodiversity assets 33 Wildlife usage and breeding areas 73 Benthic primary producer habitat 74 Bush Forever 35 Key issues and responses 74 Peel portion of the Swan Coastal Plain 35 Jarrah Forest 35 Groundwater impacts to coastal waters 74 Levels of protection 35 Future infrastructure development and siting of Wetlands 36 marine and coastal developments 74 Dealing with uncertainty 74 Water 41 Background and significant water values in the Activities impacting on the Perth and Peel regions 42 environment (Classes of Action) 77 Gnangara and Jandakot groundwater mounds 42 Urban, industrial and rural residential Swan-Canning river system and Peel-Harvey development – future considerations 78 estuary system 43 Background 78 Wetlands 43 Key issues and opportunities 78 Key issues and responses 44 Fragmented land ownership 79 Reduced water availability, increased water demand, and impacts on the environment 44 Basic raw material extraction – future Nutrient pollution of the Swan-Canning system 48 considerations 80 Nutrient pollution of the Peel-Harvey system 49 Background 80 Appropriate information and tools to manage water Key issues and opportunities 80 quality 51 Environmental issues 82 Protecting the water quality of the Gnangara Mound 52 Planning for basic raw material extraction 82 Outdated legislative regime to manage water 53 Policy initiatives 83 Rehabilitation and closure 84 Air 55 Infrastructure – future considerations 86 Background 56 Background 86 Key issues and responses 57 Key issues and opportunities 86 Cumulative air emissions across the Perth and Peel regions 57 Cumulative environmental impacts 86 Public drinking water sources 88 Industrial sources of emissions in the Perth-Peel region 58 Multi-use infrastructure corridors 88 13 Contents
Innovation 88 Rigorous and transparent planning 88 Implementation 91 Implementation of EPA recommendations 92 Offsets 92 Other implementation mechanisms 94 Assurance - a dynamic assurance plan 94 Monitoring and evaluation 94 Reporting 94 Conclusion 97
Appendices 100 Appendix A: The EPA’s factors and objectives 100 Appendix B: Notes 102 Appendix C: Remnant vegetation of the Perth and Peel regions for the Swan Coastal Plain and Jarrah Forest IBRA regions 112
14 Interim strategic advice for the Perth and Peel regions
Context
15 Context
Commonwealth Environmental Actions impacting on the Assessment Commonwealth impact environment: assessment report (Matters of National Strategic • Conservation Environmental Pine harvesting (for public comment) Significance) (Commonwealth only) Plan • Urban land (for public • Industrial land comment) • Rural residential land State State • Infrastructure impact Environmental • Basic raw materials assessment Assessment report (whole of environment Final EPA (for public factors) strategic advice EPA comment) interim (2016) strategic advice Perth and Peel @ 3.5 million WA Planning (and draft Sub-regional Framework planning frameworks) Final Sub-regional structure plans (for public comment) (2016)
Figure 1: Indicative road map for the strategic assessment of the Perth and Peel regions.
16 Interim strategic advice for the Perth and Peel regions
The context for the EPA’s advice
Introduction growing is now creating a demand in other sensitive areas such as around the Peel-Harvey Estuary. In recent years Perth has experienced rapid growth Increased nutrients from conventional vegetable and its population is forecast to swell to 3.5 million farming practices will increase pressure on a system in coming decades. This calls for careful, long that is already under considerable ecological stress. term planning about how to develop our city and Increased nutrient export from activities that are maintain its important environmental values. incompatible with the land capabilities has the potential to threaten any nutrient reduction and The cumulative impact from development to water quality improvements. date has already adversely affected the region’s biodiversity. These development pressures on our environment will potentially accelerate with a population of The waterways, wetlands and hydrological regimes 3.5 million. The Strategic Assessment of the Perth of the Swan-Canning and Peel-Harvey catchments and Peel regions considers the environmental have been significantly altered to allow the impacts from anticipated future development, and development of settlements, agriculture, water ways to avoid, mitigate and offset these impacts, in supplies and infrastructure. order to meet the needs of a population of this size.
While Perth’s air quality is generally of a high This joint Commonwealth-State project is an standard, an expanding population with increasing assessment of the impacts to Matters of National dependence on car use and industrial development Environmental Significance (MNES) in the Perth and will impact the regions’ air quality if unmanaged. Peel regions. It is the largest urban-based strategic assessment undertaken to date in Australia. Demand for new housing, industries and infrastructure in urban and fringe areas of the Perth In parallel, the Minister for Environment has and Peel regions has potential to impact on the requested EPA strategic advice on a broader range remaining natural areas, catchments and waterways, of environmental factors so these can be considered air quality as well as the health and amenity of alongside MNES. The State is also assessing the people living in the regions. environmental impact of future development on a suite of State environmental values, additional to Over the past two decades most of the the MNES, and in the context of cumulative impacts development for new housing has been focused on to date. Two separate impact assessment reports the outer metropolitan region, in new greenfield will be produced for the Commonwealth and State, development. This has resulted in land clearing informing an overarching Strategic Conservation of large areas of remnant vegetation. Increased Plan which will provide an integrated approach housing density in greenfield development has to conservation in the Perth and Peel regions resulted in large numbers of people living in the (Figure 1). outer metropolitan areas, placing greater demands on transport networks.
Rapid development in the outer metropolitan region has also resulted in many areas historically used for market gardening or vegetable growing being displaced. New areas needed for vegetable
17 Context
Request from the Minister 2. advise on the environmental acceptability of the State’s proposed avoidance, mitigation, and In 2012, the EPA was asked by the Western offset strategies to minimise the environmental Australian Minister for Environment to provide impact of the future development as it relates strategic advice in relation to the: to the EPA’s principles, environmental factors a. strategic environmental implications of the and objectives. proposed future development for a city of 3.5 million people as outlined in the Draft Sub- Scope of the EPA’s strategic advice regional Planning Frameworks developed by the Department of Planning and the WAPC; and This advice focuses on the Perth and Peel regions, from Yanchep in the north to Preston Beach in the b. policy and guidance that can be used to south, and from the coast to Wooroloo and Lane optimise subsequent approval processes to Poole Reserve in the east. This area covers the ensure environmental outcomes are delivered Metropolitan and Peel Region Schemes (Figure 2). in the most efficient and timely manner. The activities within the scope of this advice include: Purpose of the EPA’s strategic advice • undeveloped land zoned Urban under the Metropolitan Region Scheme or Peel Region EPA strategic advice is provided pursuant to section Scheme prior to 1996 (not previously assessed 16(e) of the Environmental Protection Act 1986. under the EP Act); The EPA’s strategic advice will be provided in two • undeveloped land zoned Urban after 1996 parts: this interim advice, and final advice upon which may raise issues concerned with matters completion of the Strategic Assessment of the Perth of national environmental significance (MNES); and Peel regions. • areas identified for future Urban and Rural Residential not yet zoned in a region scheme; The interim strategic advice will: • areas identified for future industrial 1. outline the key environmental values and development not yet zoned Industrial in a threats that need to be considered for the region or local scheme; region to accommodate a population increase to 3.5 million people, noting the cumulative • major transport corridors (road, rail and environmental impacts to date; bridges); 2. identify current legislation, policy and guidance • water and power corridors (including pipelines) that can be used for future approval processes and the location of related infrastructure, while ensuring the EPA’s environmental including substations, pump stations, and objectives can be met; wastewater treatment locations; and 3. recommend strategies and actions to address • basic raw resource areas (sand, limestone, hard environmental issues that are likely to arise with rock, clay). an increasing population; This advice addresses the strategic environmental 4. provide guidance for future development issues of the Perth and Peel regions and focuses proposals and scheme amendments so that the on finding strategic solutions for managing EPA’s environmental objectives can be met; environmental impacts. For example, emissions 5. provide advice and guidance to the Western and discharges are considered in a broad sense Australia’s Planning Commission (WAPC) on the including the overall capacity of the receiving environmental implications of the draft Sub- environment in the region. This advice provides the regional Planning Frameworks; regional environmental context and the standards 6. recommend changes for incorporation within that will need to be achieved to meet the EPA’s the final Sub-regional Structure Plans; and environmental objectives. 7. provide guidance for the development of The EPA segments the environment into ‘factors’ implementation, offsets, monitoring, and (see Appendix A) to provide a systematic approach reporting frameworks for the Strategic to organising environmental information for the Assessment of the Perth and Peel regions. purpose of environmental impact assessment. The associated objectives for each factor are aspirational The EPA’s final strategic advice will: goals against which the EPA will make a judgement 1. examine the direct, indirect and cumulative on whether the overall impact on the environment environmental impacts within the Perth is acceptable. The factors are grouped into ‘themes’ and Peel regions and comment on the and this advice addresses the environmental issues environmental acceptability of those impacts of the Perth and Peel regions on a theme by theme as they relate to the EPA’s environmental basis, as well as providing key points for the main objectives; and types of development for the WAPC to consider in 18 Interim strategic advice for the Perth and Peel regions
transport and industrial activities. The generation of large amounts of wastes can contaminate land, water resources, and the marine environment. These relationships have implications for human health, as the condition of the environment is a major determinant of people’s health and wellbeing.
Maintaining areas of natural bushland with high biodiversity provides the benefits of connection to the environment and important ecosystem functions. Groundwater, rivers and estuaries provide important social, cultural, and economic benefits. Natural areas provide the opportunity for many recreational pursuits, education, and enhancing our scientific understanding of the natural world.
In Western Australia, the first legislation specifically governing town planning was the Town Planning and Development Act 1928 (TP&D Act). It wasn’t until 1980 that the Act was amended to provide for the consideration of “amenity and environment”2 in the preparation of a statement of planning policy by the Town Planning Board or the Metropolitan Region Planning Authority. With the commencement of the Environmental Protection Act in 1986 the TP&D Act was amended to allow for the assessment of subdivisions under the EP Act prior to gaining approval from the WAPC for the subdivision of land.3 The consideration of the environment also extended to the preparation of Statements of Planning Policy Figure 2: The area in the Perth and Peel regions to have regard to “conservation of natural resources covered by this advice, showing the two region scheme for social, economic, environmental, ecological and boundaries. Data source: Department of Planning scientific purposes.” 4
The EPA and the WAPC have a history of working finalising the Sub-regional Structure Plans, together to address environmental issues within i.e. urban, rural residential and industrial the planning framework. Many important development, infrastructure development or basic environmental gains have been achieved through raw material extraction. the EPA and WAPC’s collaboration – for example, the The scope of this advice for sea, water and air Bush Forever initiative. factors will not include point source discharges Conservation planning in the Perth Metropolitan or emissions. Proposals that involve point source Region has a long history and has been discharges or emissions to the environment will incorporated within the planning framework since be dealt with on a project by project basis through the inception of the Plan for the Metropolitan Region existing regulatory processes. The assessment Perth and Fremantle, 1955 (known as the Stephenson of port infrastructure, fisheries, and aquaculture Hepburn Plan). Elements of the Parks and Recreation activities are also beyond the scope of this advice. reservation in the Metropolitan Region Scheme Why strategic land use planning is the that is present today are based on the framework proposed by Stephenson and Hepburn. The plan key to protecting the environment provided for regional open spaces
Planning the places we live and the way we interact that serve the needs of the region as a whole [and] with the environment are inextricably linked. include ocean beaches, the Swan River and foreshores, areas of landscape value in the Hills and elsewhere and Trees, shrubs and vegetation have long been large central parks.5 recognised as providing important functions in the urban environment.1 People living in cities are The Stephenson Hepburn Plan has been connected to the environment in both positive fundamental in providing the basis for the retention and negative ways. As cities are constructed and of large areas of significant biodiversity. It identified expanded biodiversity is lost as a result of land that public transport was the key to moving people clearing. Air pollution results from road-based to places of employment as the city expanded.
19 Context
The WAPC’s approach outlined in Perth and Peel located in strategic urban infill areas. Much of this is @3.5 Million and the draft Sub-regional Planning located in the central subregion as people want to Frameworks has seen a return of the same degree live close to the inner city, closer to key attractions, of strategic thinking outlined in the Stephenson and with better access to services. and Hepburn Plan. Together with the Strategic Assessment of the Perth and Peel regions, it Smart urban infill can reduce the impacts of provides the opportunity to lay the foundations for development on biodiversity if the population sustainable development. can be accommodated on existing developed and cleared land. Through integration of transport A sustainable future and land use planning, higher density can reduce congestion across the Perth and Peel regions. Consideration of the environment and sustainability The EPA considers that a more compact (connected) is a fundamental premise throughout the provisions city, supported by a contemporary policy and of the Planning and Development Act 2005 (P&D Act) regulatory framework, offers the best opportunity and planning framework. to minimise impacts on the environment in the long One of the purposes of the P&D Act is to “promote term. the sustainable use and development of land in the S t a t e”.
The House of Representatives Standing Committee on Environment and Heritage inquiry into Sustainable Cites 20256 identified that to be sustainable Australian cities should aim to: • conserve bushland, significant heritage and urban green zones; • ensure equitable access to and efficient use of energy, including renewable energy sources; • establish an integrated sustainable water and stormwater management system addressing capture, consumption, treatment and re-use opportunities; • manage and minimise domestic and industrial waste; • develop sustainable transport networks, nodal complementarity and logistics; • incorporate eco-efficiency principles into new buildings and housing; and • provide urban plans that accommodate lifestyle, employment and business opportunities.
In Western Australia, the State Government, the WAPC, the EPA, and the community face many challenges to achieving a sustainable city.
These include the resource intensive style of development that generally occurs across the region, the reducing availability of water, continued impacts on biodiversity from clearing, high dependency on car transport, and the emerging The EPA is highly supportive urban heat island effect. of the connected city that The EPA is highly supportive of the connected city that the draft Sub-regional Planning Frameworks the Sub-regional Planning propose. Frameworks propose. Increased density is vital for a sustainable and liveable city. The Perth and Peel @ 3.5 Million documents have identified that 380,000 of the 800,000 new homes required to accommodate the Perth and Peel regions’ increased population will be 20 Interim strategic advice for the Perth and Peel regions
Top: Diuris Purdiei Photographer - Andrew Brown, Department of Parks and Wildlife Bottom: Egernia luctuosa at Herdsman Lake Photographer - Glen Murray 21 Section X
22 Interim strategic advice for the Perth and Peel regions
Land
23 Land
The EPA’s aim for the Land theme is to maintain a representative portion of the biodiversity of the Perth and Peel regions for future generations.
Background and significant EPA has previously estimated the majority of the biodiversity values in the Perth and wetlands on the Swan Coastal Plain have been lost or irreversibly degraded10. Over 97 per cent of the Peel regions heavier more fertile soils on the eastern side of the Swan Coastal Plain have been cleared (CALM The Perth and Peel regions are comprised of the 1990).12 distinctive landforms of the Swan Coastal Plain, and the Darling Scarp and Plateau that are traversed by This chapter addresses the broad values of terrestrial rivers, floodplains, and wetlands. biodiversity in the Perth and Peel regions, including those values of wetlands, flora, vegetation, fauna The patterning of plant and animal distributions and landforms. is closely related to geology, geomorphology, and soils. From east to west, the Perth and Peel regions are divided into two distinct units: the Darling Landform values Plateau and the Swan Coastal Plain, separated by There are six major landform elements of the Swan the Darling Scarp. Coastal Plain that lie more or less parallel to the The Perth and Peel regions have very high coast and each has a characteristic suite of soils. biodiversity values. They sit within the South West From west to east they are: biodiversity hotspot, one of 34 in the world, which • Quindalup Dunes is recognised for its high biodiversity and degree • of endemism7,8. Separated from the rest of the Spearwood Dunes continent by desert, the plants and animals in the • Bassendean Dunes hotspot have evolved in isolation for millions of • Pinjarra Plain years. The Perth and Peel regions contain parts of • Foothills the Swan Coastal Plain and Jarrah Forest Interim • Dandaragan Plateau – separated from the units Biogeographic Regionalisation for Australia (IBRA) below by the Gingin Scarp. bioregions – two of the 80 regions that categorise the Australian continent into regions of like geology, The dunes near the coast support sparse low shrubs. landform, vegetation, fauna, and climate. This The older more stable dunes support Eucalypt region has the highest concentration of rare and Forest often dominated by Tuart. Further east the endangered species in Australia. Bassendean Dunes consist of poor grey sands, are relatively flat, and generally support low shrubland The Perth and Peel regions are the most populous with banksia species often dominant. and densely settled areas of the State and, together with the Wheatbelt, are the most heavily cleared. The major landform elements of the Darling Plateau Historically, the clearing for agriculture has been are the gentle slopes and occasional prominent on the heavy, more fertile soils on the eastern side hills. The valleys upstream are usually broad, flat- of the Swan Coastal Plain. More recent clearing has floored and swampy, while downstream towards the resulted from urban expansion across the Swan Scarp, where rainfall is higher and gradients steeper, Coastal Plain. While 50 per cent of the original they become deeply incised and V-shaped, with vegetation within the Perth and Peel regions fast-flowing often perennial rivers. The Plateau has remains, only 29 per cent of the Swan Coastal deeply weathered bauxitic soils and supports native Plain portion remains vegetated (Figure 3). The forest dominated by Jarrah. 24 Interim strategic advice for the Perth and Peel regions
Landforms and soils, along with climate, are the contributors of the diversity of vegetation, flora and Floristic studies of the Perth Peel Region fauna. A Floristic Survey of the Southern Swan Coastal Plain17 describes 44 regional Floristic Vegetation and flora values Community Types (FCTs) for the Swan Coastal Plain (SWAFCTs) in the area from Seabird to The vegetation of the Perth and Peel regions is Dunsborough. The SWAFCTs were described highly diverse in both structure and floristics and from the analysis of flora data from over 500 includes typical Australian plants such as the 100m2 quadrats in remnant vegetation on banksias, eucalypts and grevilleas. Native plants public lands. are well adapted to the nutrient-poor sandy and lateritic soils with low rainfall with the greatest The System 6 and Part System 1 Update plant diversity occurring on the most impoverished Program18 was part of the update of System 6 soils. Heathlands, shrublands and woodlands of conservation planning19 on the Swan Coastal the coastal plain support hundreds of species per Plain, south of the Perth Metropolitan Region. square kilometre – many of them endemic and Combined with further plots from several endangered. In the east on the Plateau, forests and sources20,21,22, it was directly comparable with woodlands with high rainfall support another highly the Gibson et al. (1994) study. diverse range of plants. A Floristic Survey of the Northern Darling Scarp23 Over 2,000 taxa of native, vascular plants have been (Markey 1997) describes 13 regional FCTs along recorded in the Perth and Peel regions. This flora a 100 km stretch of the northern Darling Scarp diversity is made up of relatively few families of from Bullsbrook to North Dandalup. The study plants each with many species, for example, there found that floristic communities were not are more than 60 different species of Acacia in the correlated with vegetation structure but largely Perth and Peel regions. Many species are naturally dependent on composition of the shrub, herb rare, with restricted distributions and specific and sedge layers. habitat requirements including Candle Cranberry (Astroloma foliosum) and the sundew (Drosera patens) which are endemic to the region. Environmental Protection and Biodiversity Protection Act 1999 (EPBC Act) or listed as priority flora by the The highly cleared and fragmented landscape Department of Parks and Wildlife. Fifty taxa are listed makes them particularly vulnerable to extinction as threatened under the EPBC Act with a similar with many species confined to small urban number listed as threatened under the WC Act. remnants where weed invasion, disease and altered Species listed as threatened at a Commonwealth fire regimes add to the impacts of small population level include Muchea Bell (Darwinia foetida) – size and declining specialised pollinators such as the Critically Endangered, Swamp Starflower (Calytrix Western Spinebill. breviseta subsp. breviseta) – Endangered and Wavy- More than 10 per cent of the taxa have been leaved Smokebush (Conospermum undulatum) and identified as of conservation significance. Yanchep Mallee (Eucalyptus argutifolia) – Vulnerable. Conservation significant flora include those listed as Over 204 species have been listed as priority flora by rare under the state Wildlife Conservation Act 1950 the WA Department of Parks and Wildlife. (WC Act), threatened under the commonwealth 25 Land
Figure 3: Remnant vegetation (green) in the Metropolitan and Peel Region Schemes and the Swan Coastal Plain and Jarrah Forest IBRA bioregions. Inset shows boundaries of the IBRA regions (red) and the regional location of the strategic assessment. Data sources: IBRA Regions, Department of the Environment (Commonwealth); Remnant Vegetation, Department of Agriculture and Food/Department of Parks and Wildlife (WA). Presentation: Office of the EPA. 26 Interim strategic advice for the Perth and Peel regions
Wavy-leaved Smokebush Conospermum undulatum
The Wavy-leaved Smokebush occurs between the Swan and Canning Rivers, in the foothills of the Darling Scarp. As a result of clearing and habitat fragmentation it is now only found in about 20 small, fragmented natural areas many of which have a significant degree of weed invasion. Wavy-leaved Smokebush has a low seed set, a low capacity to attract pollinators and low seed germination rates; attributes that are similar to other species that rely on fire for germination. However it is difficult to appropriately manage the fire regimes for this species as it occurs in built-up urban areas, recovery from fire needs to be carefully managed to ensure that weed proliferation does not smother seedlings.11
Photo: Val English, Department of Parks and Wildlife
Purdie’s Donkey Orchid Diuris purdiei
Purdie’s Donkey Orchid occurs from Perth south to near the Whicher Range. It grows on sand to sandy clay soils, in areas subject to winter inundation, and amongst native sedges and dense heath with scattered emergent small trees. The main identified threats are habitat loss and invasive weeds. Extensive clearing has reduced available habitat and Purdie’s Donkey Orchid is now largely confined to private and Local Government land in the Perth Metropolitan Region. It may also still exist in areas where fire has been absent for long periods, and searches after summer fires may result in the discovery of new populations.13
Photo: Andrew Brown, Department of Parks and Wildlife
Swamp Starflower Calytrix breviseta subsp. breviseta
The first known collection of Swamp Starflower was made in 1901 and a further collection was made from Gosnells in 1915. The taxon was then thought to be extinct until 1990 when rediscovered in the Kenwick area at the Greater Brixton Street Wetlands (Bush Forever Site 387). As part of the implementation of Bush Forever, a number of lots, including some of those that contain populations of the Swamp Starflower, were purchased for conservation.14
Photo: Andrew Brown, Department of Parks and Wildlife
27 Land
Carnaby’s Black Cockatoo Calyptorhynchus latirostris
Carnaby’s Black Cockatoo is widespread over much of the Darling Scarp and Swan Coastal Plain where it feeds in large, conspicuous flocks on native plants, e.g. banksia, introduced plants and pine plantations. The species is listed as endangered under the Wildlife Conservation Act 1950 and the Commonwealth EPBC Act. The cockatoos are often seen in large flocks, but they have low breeding rates and can live for over 50 years, therefore flocks may be made up of older non-breeding birds with fewer young birds. Within the Perth and Peel regions, Carnaby’s Black Cockatoo is threatened by the clearing of woodland that includes food trees such as marri and banksia, and by the loss of breeding hollows from land clearing, firewood collection and competition from feral honeybees.
Photo: iStock, © GCHaggisImages
Quenda Isoodon obesulus
The Quenda - also called the Southern Brown Bandicoot - is a medium-sized mammal, the distribution of which has dramatically declined over much of its former range. It is now largely absent from the inner Perth area27, persisting in peri-urban settlements on the Swan Coastal Plain and the Darling Scarp. It prefers natural bushland and vegetation surrounding wetlands, but will also visit neighbouring residential gardens. With its slender tail, coarse fur and long nose it is often mistaken for a rat. The Quenda is vulnerable from habitat loss through direct clearing of bushland, and also from the long-term effects of increased introduced predators, and vehicle strike as a result of urbanisation.
Photo: © Simon Cherriman
Western Swamp Tortoise Pseudemydura umbrina
The Western Swamp Tortoise is considered Australia’s rarest reptile only known from the ephemeral swamps of the Pinjarra Plain area of the Swan Coastal Plain. It was discovered in 1839, but not seen again for over 100 years when it was rediscovered around Ellenbrook. It is estimated that only 100 individuals remain in the wild. Threats include loss of habitat from development and agriculture, introduced predators and the increased drying of swamps caused by a changing climate. Translocations have occurred, using captive bred stock, in two additional locations, Mogumber Nature Reserve and Moore River Nature Reserve. The species is reliant on human conservation assistance including captive breeding and translocations to ensure its long-term survival.
Photo: Courtesy of Perth Zoo
28 Interim strategic advice for the Perth and Peel regions
The EPA has not made specific recommendations Fauna values about the protection of conservation significant flora and ecological communities in this advice. Over 330 terrestrial vertebrate species have been Instead, this advice centres on natural areas of recorded for the Perth and Peel regions. Invertebrate regional significance with multiple values. This does diversity is rich, with known species of insects not imply that the EPA does not consider these to be estimated to be over 1,000 and over 300 species important but they are being addressed through the of arachnids. Short-range endemic invertebrates State and Commonwealth strategic environmental include two-species of short-tongued bee impact assessments and Strategic Conservation (Leioproctus bilobatus and L. contrarius). Plan. In focusing on regionally significant natural Nine vertebrate and one invertebrate species are areas, which also support threatened ecological listed under the EPBC Act including the Western communities and conservation significant flora, Swamp Tortoise, with an additional 15 vertebrate the EPA considers that the approach represents and nine invertebrate species are listed at the State biodiversity values more broadly. level under the WC Act. However, a further 46 bird Vegetation is the most obvious aspect of terrestrial species have been identified as in need of special protection as they are in decline on the Swan ecosystems to observe and measure, and is 24 therefore often used as a surrogate for ecosystems. Coastal Plain.
Vegetation complexes of the Swan Coastal Plain and The fauna of the Perth and Peel regions of the Swan Jarrah Forrest IBRA bioregions have been described Coastal Plain have been significantly impacted since by Heddle et al. (1980) and Havel and Mattiske European settlement. In particular, mammals and (2000) respectively.15,16 The vegetation complexes small insectivorous birds have declined in species diversity, while populations of reptile and frog were mapped at a scale of 1:250,000 based on 25,26 dominant species and vegetation structure in species remain relatively viable. An estimated relation to landforms, soils, and climatic conditions. twelve mammals, including the Numbat, have Vegetation complexes are an ecosystem surrogate disappeared from the regions following European that have been mapped across both the Swan settlement, and other species such as the Brush- Coastal Plain and Jarrah Forest bioregions entirely, tailed Phascogale, Western Ringtail Possum and so they are used for environmental management, Pygmy Possum are now only known from less planning, and impact assessment. On the Swan disturbed habitat at the limit of the Perth and Coastal Plain, 42 vegetation complexes have Peel regions. There has been a dramatic decline in been mapped, of which 26 are in the Perth and observations of Chuditch in the Peel region since Peel regions. A smaller number of Jarrah Forest the 1990s, which coincides with the rapid urban vegetation complexes are represented within Perth development of the area. However, in recent years, and Peel; 18 of 146 occur in the region. The pre- there have been sightings of Chuditch, Quokka clearing and current extent of vegetation complexes and Woylie that can be attributed to translocation is commonly used to measure targets, such as the projects and baiting programs aimed at fox-control. 10 per cent reservation target within Bush Forever. Three species of conservation significant black Several floristic studies have been undertaken on cockatoo use the Perth and Peel regions as foraging the Swan Coastal Plain and adjacent Darling Scarp and breeding habitat: Carnaby’s Black Cockatoo, which have largely defined floristic communities Baudin’s Black Cockatoo and the Forest Red-tailed in the region. Floristic community types form Black Cockatoo. Small, insectivorous birds such as the basis of the definitions of many threatened the Red-winged Fairy-wren, Southern Emu-wren, ecological communities that are listed at State Golden Whistler and White-breasted Robin have and commonwealth level. These surveys have also been lost from many areas on the Swan Coastal informed the selection of regionally significant Plain. The Southern Emu-wren is known to persist natural areas. in only two locations along the foothills, and the White-breasted Robin is now restricted to the far Eight ecological communities are listed as north and far south of the Perth and Peel regions. threatened under the EPBC Act, for example Clay Pans of the Swan Coastal Plain – Critically Native fauna are able to persist in small, isolated remnants of vegetation complexes that provide Endangered. Twenty vegetation-based ecological 28 communities have been recognised as Threatened, critical habitat throughout the region. Of including ‘Eucalyptus calophylla - Eucalyptus particular importance is vegetation associated with the Quindalup-Spearwood and Bassendean marginata woodlands on sandy clay soils of the 24,25 southern Swan Coastal Plain’, and ‘Banksia attenuata dunes, Ridge Hill Shelf and Pinjarra Plains and woodland over species rich dense shrublands’. the Wandoo white gum woodland of the Darling Scarp. A high level of reptile diversity is evident in the western dune systems, while frog diversity is highest in the eastern sumpland and wetland
29 Land
areas25. Wetlands, rivers and the surrounding many fauna species that rely on wetlands for their vegetation provide refuge habitat for fauna and survival. For example burrowing frogs, including allow movement within urbanised landscapes. In the Moaning Frog, lay their eggs in burrows dug particular, the large wetlands of the Peel region into sand or mud that may be hundreds of metres provide significant foraging habitat for thousands from water. After a few months, the young frogs of migratory shorebirds annually during the disperse to find water. Similarly, the Oblong Turtle summer months. The adjacent areas of the Darling lays its eggs away from water, where they will not Scarp provide refuge and recolonising potential be submerged with winter rainfall. The hatchlings to species of bird that are in decline on the Swan must then travel considerable distances to reach the Coastal Plain. However, fauna in this region have wetlands they require to feed and grow into adults. also experienced decline and local extinction due When these wetland/upland ecological links are lost to human modification of habitats29. The removal of ecological processes collapse, leading to species Jarrah forest habitat along creek lines in the Darling decline and loss. Scarp may disrupt the seasonal movement of fauna – for example, honeyeater species – and also restrict Greater Brixton Street Wetlands fauna from recolonising areas on the Swan Coastal Plain. Greater Brixton Street Wetlands, Bush Forever Site 387, is an area of outstanding flora diversity, Although fauna species can seek refuge in isolated supporting more than 20% of the plant species remnants, these populations are also likely to be found in the Perth Peel Region, in less than 0.02% more prone to the effects of fire, competition, of the area. The wetlands occur on the eastern predation28, and genetic fragmentation30. Further side of the Swan Coastal Plain on Pinjarra Plain at reduction in the size and number of these remnants the foot of the Darling Scarp. They are the only through their removal for urbanisation and remaining substantial area characteristic of the infrastructure will increase the pressure on a number heavy seasonally inundated soils of the Pinjarra of fauna species already of concern in the Perth and Plain. The significance of the area has also been Peel regions, and is likely to lead to a higher level of recognised through its inclusion in the Australian conservation status for these species. Directory of Important Wetlands and on the The EPA has not made specific recommendations Register of the National Estate. about the protection of statutory listed fauna and The heavy clay soils are generally waterlogged assemblages in this advice. This advice centres on in winter and spring, in places forming shallow natural areas of regional significance with multiple pools, which dry out in early summer. Over 500 values. taxa occur: this very high species richness is attributable to a succession of annual species and Wetlands geophytes (bulbs, tubers, corms and rhizomes) which grow as the clay pans slowly dry out. The The Perth and Peel regions are characterised by areas surrounding the deeper clay-pans support westward flowing rivers and associated tributaries a diverse range of native herbs, sedges and flanked by floodplains, which are charged by runoff rushes and, slightly higher in the landscape, Marri from the Darling Scarp. To the north, a series of woodlands cover low sandy rises. swamps and lakes have formed in the inter-dunal swales and depressions of the Spearwood and The site supports two Commonwealth listed Bassendean Dune systems, and in the south, large Threatened Ecological Communities - ‘Claypans lakes are a distinguishing feature. These wetlands of the Swan Coastal Plain’ and ‘Eucalyptus have a strong connection to groundwater and calophylla - Kingia australis woodlands on many are seasonal, receiving much of their water heavy soils of the Swan Coastal Plain’, and four supply from rainfall rather than inflowing streams. recognised as Threatened by the Minister for This makes these wetlands vulnerable to impacts Environment. caused by groundwater extraction and the effects of declining rainfall which reduces groundwater The wetlands support a large number of recharge. conservation significant species. Nine species are listed as threatened under the Wildlife Wetlands ecosystems provide habitat for a Conservation Act 1950, including Swamp wide variety of flora and fauna – many support Starflower (Calytrix breviseta subsp. breviseta) and threatened and priority ecological communities. Purdie’s Donkey Orchid (Diuris purdiei). Seven are They also provide a broad range of ecosystem also listed at the Commonwealth level, and 18 services, have cultural significance and are species are listed as priority by the Department important for recreation. Upland vegetation of Parks and Wildlife. The Bush Forever site is adjacent to wetlands also provides habitat critical also important habitat for the Southern Brown for parts of the life cycle (breeding and foraging) of Bandicoot (Isoodon obesulus).
30 Interim strategic advice for the Perth and Peel regions
The Perth and Peel regions include three wetlands The Swan Coastal Plain Geomorphic Wetlands recognised as being internationally important and Dataset is used extensively through the planning listed under the Ramsar Convention as stated in the and environmental assessment and approvals EPBC Act: the Becher Point Wetlands, the Forrestdale system to determine the potential impacts of and Thomsons lakes and the Peel-Yalgorup System. development and ensure that high value wetland In addition, there are 17 wetlands or wetland systems are protected. The dataset is periodically systems listed on the Directory of Important updated when a new wetland assessment is Wetlands in Australia9 including Brixton Street undertaken, usually due to a development proposal. Swamps, Ellen Brook Swamps System, Forrestdale Lake, Gibbs Road Swamp System, Herdsman Lake, Loch McNess System and Perth Airport Woodland Regional conservation planning Swamps. Over its history, the EPA has initiated and contributed to studies highlighting the significant In 1996, the Swan Coastal Plain Geomorphic values of the Perth and Peel regions, and has Wetland Dataset was established. At the regional provided strategic advice for regional planning. This scale, wetlands of the Swan Coastal Plain portion of has predominantly focused on the identification of the Perth and Peel regions are mapped, classified regionally significant natural areas which have been and evaluated into three different wetland determined as priorities for protection, based on a management categories (Table 1). series of criteria24,33 including Bush Forever Sites and Peel Regionally Significant Natural Areas. Table 1: Wetlands management categories In 1972, the EPA established the Conservation Management General description Through Reserves Committee which divided category Western Australia into 12 Systems (or areas) and Conservation Wetlands which support a high level provided recommendations for national parks of attributes and functions. and nature reserves in each system. System 6 (the Resource Wetlands which may have been Darling System), which stretched from Moore Enhancement modified or degraded, but still support River to Bunbury and incorporated the Swan substantial attributes and functions. Coastal Plain and Jarrah Forest, was subject to a detailed study recognising the complexity of the Multiple Use Wetlands with few remaining issues involved. The System 6 report35 provided important attributes and functions. recommendations for setting aside land for the conservation of natural areas, which were approved for implementation by Cabinet in 1984. The EPA The EPA considers the following as significant emphasised the importance of conservation of wetlands in the region: the natural ecosystems of System 6 and the great • wetlands recognised by the Ramsar Convention value of natural communities of plants and animals on Wetlands of International Importance; adapted to the environmental conditions as a • wetlands identified in A Directory of Important genetic resource. The EPA stated that the State Wetlands in Australia; and should conserve natural ecosystems of System 6 • Conservation Category Wetlands identified in not only for itself, but for the world and posterity. the Swan Coastal Plain Geomorphic Wetland In its recommendations the EPA specifically noted Dataset. the importance of setting aside Regional Open Space beyond the Perth Metropolitan Region and Ramsar and nationally important wetlands are identified that reservation alone was insufficient included in the definition/mapping of Conservation because the land must be properly managed. Category Wetlands. Other wetlands are recognised as also having important environmental values but Since 1994, the EPA has supported the collection of are a lower priority for statutory protection. environmental information throughout the southern Swan Coastal Plain. Information from analysis has Conservation Category Wetlands support a high been used to update biodiversity conservation and level of ecological attributes and functions. They inform natural area recommendations (commonly are considered the most intact and best examples referred to as the System 6 update) including of wetlands remaining on the Swan Coastal Plain reports such as Bush Forever24, The Vegetation, Flora, and any activity that may lead to further loss or Fauna and Natural Areas of the Peel Harvey Eastern degradation is inappropriate.31, 32 Estuary Area Catchment (Swan Coastal Plain)36, The Flora and Vegetation of the Dawesville to Binningup Region (Swan Coastal Plain)37 and Summary of Vertebrate Fauna Values of the area between Dawesville and Binningup, Southern Swan Coastal Plain38.
31 Land
Bush Forever was developed as a whole of The EPA has an objective33 to seek to retain at government policy to develop a strategic plan least 30 per cent of the pre-clearing extent of each for identification, protection, and management ecological community, consistent with recognised of regionally significant natural areas in the Swan retention levels41. The EPA has a modified objective Coastal Plain portion of the Perth Metropolitan to seek to retain at least 10 per cent of the pre- Region. It also had a target for the retention of at clearing extent of each ecological community for least 10 per cent of all 26 vegetation complexes defined constrained areas (intensely developed) in originally occurring in the Swan Coastal Plain the Perth Metropolitan and Bunbury Regions.24,40 portion of the Perth Metropolitan Region. The EPA uses vegetation complexes as the basis for regional representation of biodiversity. Bush Forever combined the work of multiple government agencies (the Department of Due to extensive clearing this target is not Conservation and Land Management, the achievable for many of the vegetation complexes Department of Environmental Protection, the on the Swan Coastal Plain, making the remaining Ministry for Planning, the Water and Rivers remnants regionally significant. Generally more than Commission and the Western Australian Museum) 30 per cent of each ecological community on the and drew on work from the wider scientific Darling Plateau and Scarp is on lands vested in the community, local government and conservation Conservation Commission as either conservation groups. It was the culmination of the update of reserves, state forest, or timber reserves. System 6 (Swan Coastal Plain portion of the Perth Metropolitan Region), Perth Environmental Project, The criteria and targets have been applied in EPA the Urban Bushland Strategy39 and Perth’s Bushplan reports and recommendations for the Greater 40 project (now Bush Forever). It identified 287 sites Bunbury Region Scheme and in the selection of 34 of regional conservation significance and provided Peel Regionally Significant Natural Areas . detailed information on the values of these sites – The Peel Regionally Significant Natural Areas including floristic communities, significant species (Peel RSNAs) were defined in Environmental of flora and fauna, vegetation condition, wetland Protection Bulletin 12.34 The Bulletin identifies 146 values, and soil types – to demonstrate how the priority regionally significant natural areas that criteria for regional significance were met. best represent the range of landscapes, habitats, Six criteria were used to determine regional vegetation and flora originally found in the area, significance in the selection of Bush Forever sites: within the Peel Region Scheme portion of the Swan Coastal Plain. The regionally significant natural areas 1. representation of ecological communities were developed jointly by the EPA and the WAPC. 2. diversity The Peel RSNA information provides a key resource 3. rarity to inform strategic regional planning. The Swan 4. maintaining ecological processes or natural Coastal Plain portion of the Peel Region has 21 per 34 systems cent native vegetation remaining. The Peel RSNAs make up 16 per cent of the remaining 21 per cent of 5. scientific or evolutionary importance, and native vegetation. 6. wetland, streamline and estuarine fringing vegetation and coastal vegetation. The selection of the Peel RSNAs relies principally on information about landforms, soils, vegetation and These criteria were further developed by the EPA flora, and habitats. Specific consideration was given for State-wide identification of regionally significant to including typical and unusual areas representing 33,40 natural areas. the major landforms, the consolidation of public lands containing highly significant natural areas, The Bush Forever report included an ecological linkages, and the conservation of tuart implementation plan that identified and assigned communities. Tuart is the dominant eucalypt species 12 implementation options based on priority for of the Quindalup and Spearwood dunes in the study protection, land tenure, and degree of constraint. area, but its extent and health have been extensively These options included: urban, industrial, and impacted by development and disease. As a result, basic raw material negotiated planning solutions; in addition to the EPA’s six criteria there was a rural complementary mechanisms; proposed parks particular focus on Tuart, with some populations and reservation; some existing protection; other included as the best examples of their type even government lands, and major road/rail reserves. when there was little or no understorey remaining. Metropolitan Region Scheme (MRS) reservation was recommended for Bush Forever sites of very While the information used to determine the Peel high conservation value totalling 2,400 ha. Funding RSNAs provides a good basis for the selection of of $100 million from the Metropolitan Region regionally significant natural areas, fauna, wetlands Improvement Fund (MRIF) was allocated for the and naturally non vegetated lands (for example acquisition of these sites. dune blow outs and mudflats) should be used for a
32 Interim strategic advice for the Perth and Peel regions comprehensive assessment of natural values. Unlike of native vegetation.44 The Local Government Bush Forever sites, the Peel RSNAs were identified Biodiversity Planning Guidelines for the Perth independent of current zonings or existing Metropolitan Region complement Bush Forever approvals and did not have implementation options with a focus on Local Natural Areas. The Guidelines or mechanisms. provide the process and framework for local authorities to assess the ecological significance of The EPA has provided section 16(e) advice in Local Natural Areas and determine their protection the Dawesville to Binningup area identifying status. WALGA has supported local authorities the conservation values of the area, areas of in developing and implementing biodiversity conservation significance and areas that may have strategies specific to their area. land uses compatible with environmental values.43 The study area covered an area of approximately 286 Biodiversity values are also retained through square kilometres. The northern half of the study incorporating natural areas in local planning area lies within the Perth and Peel regions. The area design. While the most significant natural areas are has natural values that are unique and significant identified for the highest forms of protection, there at a global scale and includes Yalgorup National are natural areas within development nodes that Park, the Ramsar wetlands of the Peel Yalgorup can be protected at the development stage. system including Lakes Clifton and Preston, and the threatened ecological community of the Lake Key issues and responses Clifton thrombolites. The EPA’s advice was based on a series of scientific studies commissioned to clarify Challenge: Protect the Perth and Peel the environmental values of the area including biodiversity assets geomorphology, vegetation and flora, fauna, and There has been extensive regional conservation hydrology. The EPA recommended that Yalgorup planning by State government, the EPA and National Park be extended and consolidated by local government. These plans and strategies are incorporating private enclaves west of the Yalgorup recognised nationally for their innovation and Lakes, other adjacent reserved lands, and the collaboration in retaining biodiversity assets. vegetation buffer including the eastern side; and However, the implementation of these plans has that there be a presumption against development proved challenging due to increasing population on the western side of the Yalgorup Lakes. pressure which will only become greater with a The most relevant conservation recommendations projected population increase of 3.5 million in the for the eastern section of the Perth and Peel regions, Perth and Peel regions. predominantly the Darling Scarp and Plateau, are The current estimates of the remnant vegetation the System 6 Red Book Recommendation and the of the Swan Coastal Plain and Jarrah Forest IBRA Forest Management Plan 2014-2023. Significant bioregions within the Perth and Peel regions are additions to the reserve system are a feature of the outlined in Appendix C. Based on these estimates, Forest Management Plan 2014-2023, in particular the from 2015 mapping, it is evident that much of the establishment of a system of formal and informal Swan Coastal Plain in the regions is altered to such reserves and protected areas which will eventually an extent that all remnant vegetation from many comprise approximately 62 per cent of the native of the vegetation complexes present is regionally forest ecosystem. Local government authorities, significant and in need of retention and some level the WA Local Government Association (WALGA), of protection. the Urban Bushland Council, the Wildflower Society of WA and other conservation groups have also The EPA’s priority for conservation in the Perth and made an important contribution to the retention Peel regions is to secure at least 30 per cent of all and management of biodiversity values and the the vegetation complexes within ‘unconstrained implementation of biodiversity strategies. Examples areas’, the Darling Plateau and rural zoned land include the Local Government Biodiversity Planning of the Peel Region. In the remaining constrained Guidelines for the Perth Metropolitan Region44, Local area the target is 10 per cent. This objective can’t Government Guidelines for Bushland Management be met for five vegetation complexes which have in the Perth and Coastal South-West NRM Regions of already been cleared to below the 10 per cent target Western Australia45, Managing our Bushland46 and the (see Figure 4). Despite their threatened status, the Bush Forever Report Card47. majority of their small remaining areas are not in some form of conservation reserve. Local Government has a key role in the retention, protection and management of biodiversity because Conservation planning should focus on retaining it represents the level of government closest to the at least 30 per cent of all vegetation complexes in community, is responsible for the management the unconstrained portions of the Perth and Peel of at least 7,800 ha of native vegetation, and is regions. Implementation of Bush Forever, the Forest required to make land use planning decisions with Management Plan 2014-2023, and protection of the the potential to impact on more than 75,000 ha Peel RSNAs will contribute to meeting this target. 33 Land
Figure 4: Five vegetation complexes have less than 10 per cent remaining of their original extent within the Perth and Peel region.
1%1% 5% 3% 3% Commonwealth government
State government
Local government
State owned corporation
Private owned corporation
Private individual
87%
Figure 5: Ownership of Bush Forever (2013) areas by broad scale groups
1%1% 1% 1% 2% Department of Parks and Wildlife
5% WA Planning Commission
Department of Lands 15% State of Western Australia
Main Roads WA 52% Botanic Gardens and Parks Authority
Department of Housing 22% WA Land Authority
Other
Figure 6: State government ownership of Bush Forever (2013)
34 Interim strategic advice for the Perth and Peel regions
Bush Forever conservation. These values could be protected by increasing and consolidating the area of Yalgorup Bush Forever proposed a suite of implementation National Park through the acquisition of private land options that have been implemented with enclaves west of the lakes and lands adjacent to varying degrees of success. Parks and Recreation the lakes, and/or those that contain internationally, Reservation was proposed as the highest level of nationally and regionally significant environmental implementation to protect biodiversity. However, values. it is now recognised that Parks and Recreation Reservation alone does not provide adequate The EPA supported the recommendations in the security and additional protection measures are Peel Region Scheme to create the Peel Regional required, specifically for conservation. Park that protects the Peel-Harvey Estuary and the associated rivers48. In addition, the EPA Currently, 72 per cent of Bush Forever sites are stated that all natural areas in good condition reserved for Parks and Recreation of which 21 per on the eastern side of the Swan Coastal Plain, cent have a form of conservation tenure, i.e. Nature including Conservation Category Wetlands, have Reserves, National Parks, Conservation Parks, and high conservation value. The EPA commends the other reserves with Conservation included in the WAPC for its ongoing efforts to implement the purpose of vesting. The areas reserved for Parks Peel Regional Park and continues to supports its and Recreation not dedicated to conservation implementation. provide the best opportunity to increase the level of conservation protection. The Strategic Conservation Plan provides the opportunity to implement the previous Of the 74,729 ha in Bush Forever, 86 per cent is recommendations made by the EPA for the owned by State Government agencies (see Figure 5) conservation of biodiversity within the Peel portion and nine per cent is owned by private individuals of the Swan Coastal Plain. and corporations. The WAPC, the Department of Parks and Wildlife and the Department of Lands own the majority of the government-owned Bush Jarrah Forest Forever sites (Figure 6). State agency ownership The Forest Management Plan (FMP) proposed does not necessarily equate to protection as the significant additions to the reserve system, in owners may have primary responsibilities other than particular the establishment of a system of formal biodiversity conservation. Of the 86 per cent of Bush and informal reserves and protected areas that will Forever sites owned by State Government, less than eventually comprise approximately 62 per cent of a quarter (24 per cent) is in secure protection for the native forest ecosystem. The EPA endorses the conservation. Areas in State Government ownership implementation of the FMP system of reserves and represent the most strategic opportunities to protected areas, particularly within the Perth and improve the level of conservation protection. Peel regions. Bush Forever highlighted complementary Recommendation 1: that the State Government mechanisms to promote private conservation protect regionally significant natural areas. efforts, however it is now recognised that Bush Forever sites are most appropriately protected and a. Continue to acquire the balance of Bush managed in public ownership. Forever sites, as opportunities arise. b. Implement a strategy for the long-term protection of Peel Regionally Significant Peel portion of the Swan Coastal Plain Natural Areas. The EPA expects that the 146 RSNAs within the Peel Region are used as a key resource to inform strategic Levels of protection regional planning34. The network of Regional Open Space in the Perth Of the total area of Peel RSNAs (23,578 ha), 60 per and Peel regions includes State forests, regional and cent is owned by state government and 44 per district parklands, and green corridors. It supports cent is in conservation reserves (Nature Reserves, biodiversity, preserves natural amenity and protects National Parks, Conservation Parks and other valuable resources, covering 363,621 ha.49 reserves with Conservation included in the purpose There are several levels of protection used in the of vesting). Thirty-nine per cent is in private Perth and Peel regions for natural areas. Areas ownership. formally recognised for conservation by the Land The internationally recognised Yalgorup Lakes Administration Act 1997 have the highest level of and other significant environmental values found protection. These include Nature Reserves, National together in the Dawesville to Binningup study Parks, and Conservation Parks. area make it an extremely important area for
35 Land
Some lands are not formally reserved for fauna species (Carnaby’s Cockatoo) where that conservation purposes but have a form of habitat has been excessively impacted by historical protection. These include Regional Parks, State and proposed clearing identified through the draft Forest, and Parks and Recreation and Regional Open Sub-regional Planning Frameworks. The Strategic Space in the Metropolitan and Peel Region Schemes. Conservation Plan should clearly demarcate where strategic rehabilitation serving multiple purposes is Some of these areas are managed for conservation proposed, to maximise the environmental benefits. or have been reserved for purposes that include conservation, however they are not considered Recommendation 3: that the State Government securely protected. develop and implement a strategy for the management of regionally significant natural The Perth and Peel network of Regional Open Space areas. (which includes Parks and Recreation) has multiple uses, not always compatible with conservation of Recommendation 4: that the State Government natural areas. For example, natural areas used for enhance the viability of consolidated regionally passive recreation can be managed in conjunction significant natural areas by improving degraded with biodiversity conservation, unlike those used for areas and re-establishing linkages. active recreation, such as playing fields. As a result, there is a need to better distinguish areas set aside for regional conservation purposes and those for Wetlands other usages in the Regional Open Space network. Wetlands continue to be lost by filling, draining and land development, or severely degraded through Recommendation 2: that the WAPC, in relevant impacts such as land clearing, excessive fire, planning instruments, clearly distinguishes grazing, altered water regime, and acidification. The between areas set aside primarily for conservation wetlands of the Perth and Peel regions have been and those for other purposes (e.g. active extensively impacted with only 17 per cent mapped recreation). as Conservation Category wetlands. The EPA Management issues recognises that it is not feasible to give all wetlands the highest level of protection. The EPA considers Key threats to biodiversity are clearing, degradation that all Conservation Category wetlands, which and fragmentation of habitat, the introduction of include Ramsar and nationally listed wetlands, with invasive species, disease, and altered fire regimes. appropriate buffers need to be protected. Impacts Active management of these threats is needed to on Resource Enhancement wetlands should be maintain biodiversity values. Active management minimised. is particularly costly in these fragmented The Swan Coastal Plain Geomorphic Wetland landscapes, so the retention and protection of large, Dataset is currently managed by the Department consolidated blocks with lower susceptibility to of Parks and Wildlife. The EPA understands that threats is cost effective and more viable. these datasets have not been actively maintained In some areas both management and strategic and that the management category for a number rehabilitation will be required. Proactive planning of wetlands is incorrect and requires revision. for the restoration of ecological communities and Comprehensive mapping and categorisation of landscape rehabilitation, between and around wetlands is important to ensure that decision selected sequences of the small remaining remnants making for ongoing development on the Swan on the eastern side of the Swan Coastal Plain, has Coastal Plain protects the Conservation Category been recommended as part of a number of regional wetlands, particularly through the land use planning conservation plans24,33,40. Strategic large-scale and development system. For the draft Sub-regional planting of native species within the Perth and Peel Planning Frameworks to be effective in protecting regions can fulfil multiple purposes: it can reconnect the highest value wetlands, it is important that the the fragmented network of natural areas, improve Swan Coastal Plain Geomorphic Wetland Dataset is water drainage functions, sequester carbon, and maintained. The ongoing maintenance needs to be provide substitute specific habitat requirements for adequately resourced. fauna adversely affected by development, such as Knowledge of wetland systems has improved and Carnaby’s Cockatoo. the importance of ecological processes and the Rehabilitation should be prioritised with the highest links between upland and wetland areas is well priority being the improvement of condition in understood. Some species, such as burrowing existing protected natural areas, and buffering of frogs, depend on both wetland and upland areas key areas to reduce impact of adjacent land use to complete their life cycle and, in the absence of threats by reducing the edge to area ratio. Secondly, adjacent areas, populations of species collapse. re-establishing links between natural areas and, However, wetland buffers are not systematically thirdly, replacing critical habitat for threatened protected. The Geomorphic Wetland Dataset only 36 Interim strategic advice for the Perth and Peel regions defines the wetland – not the buffer – therefore buffers need to be determined on a site by site basis. There is no contemporary standard for wetland buffers, although 50 m from the limits of the wetland vegetation has been used. Guidance regarding the application of buffers is needed for decision makers to be effective in protecting wetlands and their associated values.
Recommendation 5: that the WAPC protects Conservation Category wetlands and minimises the potential impacts on Resource Enhancement wetlands, including their buffers, at structure planning and subdivision design stages. a. Relevant agencies to finalise a whole of Government policy for the identification and implementation of wetland buffers.
Top: Wetlands on the Swan Coastal Plain Courtesy of the Peel-Harvey Catchment Council Bottom: Caladenia huegeli, Office of the EPA 37 Land
Anstey Keane, Bush Forever site 342, during a site visit by members of the EPA, May 2014. Photos: Office of the EPA
38 Interim strategic advice for the Perth and Peel regions
Examples of significant areas with inadequate Fund, the Peel Region Scheme does not have protection administrative arrangements for the purchase of environmentally significant areas to add to the There are several examples of iconic regionally Regional Open Space reservations. The need for significant natural areas that are inadequately such a mechanism was identified by the EPA in protected in the Perth and Peel regions. Some System 6, which recommended statutory means are highlighted here as examples of where early be established by which conservation land could action, such as acquisition to consolidate areas be set aside beyond the Metropolitan Region or increasing reservation status, would achieve Scheme.35 The State Conservation Plan and exponential benefits. planning frameworks provide the opportunity for implementing these recommendations. Anstey Keane Yalgorup National Park Anstey Keane is a 366 ha Bush Forever site (342) that contains damplands and uplands, Yalgorup National Park has natural values that and supports communities representative of are significant globally, supporting Ramsar the eastern side of the Swan Coastal Plain, wetlands, the Lake Clifton thrombolite Threatened conservation category wetlands of National Ecological Community – listed as Critically importance, and significant fauna. It is also one Endangered by both Commonwealth and of the most diverse areas for flora on the Swan State – and tuart communities. Its significance Coastal Plain in the Perth Metropolitan Region. has been recognised by the EPA in System 6, It meets all six of the EPA’s criteria for regional the Dawesville-Binningup report and the Peel conservation significance. RSNAs.35,43,34 The area is also valued by the Bush Forever endorsed a recommendation for the community for its recreational opportunities. majority of the Anstey Keane site to be protected In recognition of its global significance the and managed within the Jandakot Regional Park EPA made recommendations to extend and for conservation purposes. The EPA endorses consolidate the Park and provide adequate the full implementation of the Bush Forever resources for effective management. The EPA also recommendations. recommended areas where development should 35 The natural values of the site are threatened by be restricted or excluded. The EPA reiterated inappropriate uses and infrastructure proposals. the importance of the natural values in various The EPA recently recommended against an reports since (Dawesville Binningup and the Peel infrastructure proposal which would have RSNAs). bisected the site. This is consistent with the The variety of existing tenure and private 50 Jandakot Regional Park Management Plan ownership within National Park boundaries, that recommends unmade road reserves be potential development, as well as its linear amalgamated into the adjoining conservation shape are the key threats to the National Park. reserves. The EPA supports this road closure The linear shape and high edge to area ratio through the implementation of the State make it extremely vulnerable to impacts arising Conservation Plan. Public ownership and from unmanaged fire, feral species, disease, and management of the whole site is required to unmanaged recreational activities, as well as protect its natural values. abstractive industries. There is a need to expand and consolidate the Park to reduce the impact of Proposed Peel Regional Park these threats. The proposed Peel Regional Park includes the The EPA has recommended against a number Ramsar listed Peel-Harvey Estuary, the Serpentine, of proposals for development adjacent to the Murray and Harvey rivers, significant flora and Park and proposals for the private enclaves fauna. Its significance has been recognised by within the National Park, as well as areas where the EPA in System 6, EPA Report 994 for the Peel development should be restricted or excluded43 Region Scheme, and the Peel RSNAs.35,48,34 The EPA in recognition of both the significant values of the supported the WAPC recommendation for a Peel National Park and its vulnerability to impacts from Regional Park to protect the significant values.51 adjacent land uses. The Strategic Conservation The area is threatened by urban encroachment, Plan and final Sub-regional Structure Plans weeds, fire, feral species, nutrification of provide the opportunity for implementing these samphires, and unmanaged recreational activities. recommendations. Unlike the Metropolitan Region Scheme, which has the Metropolitan Region Improvement
39 Section X
40 Interim strategic advice for the Perth and Peel regions
Water
41 Water
The EPA’s aim for the water theme is to adopt an integrated approach to water and land use planning and management so that the values of significant water systems are protected.
Background and significant water and drainage systems, and their catchments. It values in the Perth and Peel regions identifies the values of these systems and addresses issues associated with both water quality and water quantity. The biodiversity values of water Ensuring water security is critical to support the systems, particularly wetlands, have been discussed development of the region to accommodate previously under Land. 3.5 million people. Water is needed not only for drinking but also for irrigation of public open The key water assets that need to be considered space and for industrial and agricultural purposes. in the final Sub-regional Structure Plans and the However, consumptive water requirements need Strategic Conservation Plan are the regions’ river to be met while maintaining the values of water- and wetland systems, and groundwater resources. dependent environments. This is a particular challenge in a drying climate with changing water regimes and where traditional sources of water from Gnangara and Jandakot groundwater groundwater and surface water are either close to or mounds fully allocated. The Gnangara and Jandakot groundwater systems On top of the already significant rainfall reductions provide a very significant component of Perth’s that Perth has experienced, there are predictions of drinking water supplies, are used extensively by further reductions in rainfall within the South West private users for irrigation and other activities, and as a result of a changing climate, which will further support many high value wetlands and other water impact on water availability.52 dependent ecosystems.
Land use change and intensification can The Gnangara Mound is the largest and most significantly increase risks to water quality. important shallow groundwater resource in the Inappropriate land use can cause contamination of Perth and Peel regions. It is used extensively for groundwater, waterways, and wetlands. Potential public water supplies, horticulture, parks and contaminants include pathogens, nutrients, industry, and domestic bore use, and supports hydrocarbons, and other chemicals. environmental values including numerous wetlands such as Lake Joondalup and Loch McNess, and caves There exists a large body of regulation and policy to in Yanchep National Park. guide water management, administered primarily by the Department of Water. Some aspects of The Jandakot Mound contributes a smaller but water management are well established within the important amount to Perth’s public drinking planning framework. However, regulation and policy water supplies, and supports a range of wetlands has not always been implemented in an effective including the Ramsar-listed Forrestdale and way. Furthermore, understanding and managing Thomsons lakes. The Jandakot Mound water the cumulative impacts of development on water resource is also used for local horticulture, parks, systems and their associated environmental values industry, and domestic bores. is not straightforward and is generally not readily Current groundwater use in many of the addressed through existing processes. groundwater management units of the mounds is This chapter addresses the full range of water at or beyond the allocation limits, reflecting in part systems in the Perth and Peel regions, which the reduced recharge to the mounds over the last includes groundwater, wetlands, estuaries, rivers 30 years associated with declining rainfall. 42 Interim strategic advice for the Perth and Peel regions
Swan-Canning river system and Peel- Both the Swan-Canning and Peel-Harvey systems Harvey estuary system have experienced significant water quality issues, primarily as a result of poor catchment water quality Rivers in the Perth and Peel regions provide associated with land use, which are discussed later important ecological, social, cultural and economic in this chapter. values, as well as providing the basis for a network of urban and rural drainage systems to manage stormwater and prevent flooding. Wetlands
With the Perth central business district on its The EPA has long recognised the importance of the wetlands of the Swan Coastal Plain and the services flanks, the Swan-Canning river system is an icon of 53 Perth. Many Perth residents enjoy its beauty and they provide. The wetlands of the Perth and Peel spend time on the water or along its foreshore. The regions provide important social and cultural values river system is also an integral part of our history, through recreation, tourism, and landscape amenity, forming part of the significant cultural heritage of and are often place of cultural and historical interest. the Noongar people, as well as being the location Many of the regions’ wetlands also form part of of the first Swan River Colony. It is used extensively urban stormwater and rural drainage networks, for boating, fishing, and recreational activity on the providing flood control and improving water quality foreshores, and provides important amenity value through removing suspended matter and biological through many suburbs of Perth. It is used by over processing of nutrients and other contaminants. 80 species of waterbirds and supports a resident The important role wetlands play in protecting population of bottle-nosed dolphins. The Swan River biodiversity is discussed under Land. drains the large Avon River agricultural catchment Wetlands in the region have been highly cleared, to its east, and the system provides the basis of the and those that remain are vulnerable to reductions urban stormwater drainage network through many in water level as a result of reduced rainfall and parts of Perth. increasing water use. The Peel-Harvey estuary system is equally important. It too supports extensive fishing, boating and other recreational activity, has important amenity value to the many urban developments and canal estates that surround it, and provides an important rural drainage function through the Peel-Harvey drainage scheme, operated by the Water Corporation, and a number of river systems. The Peel-Harvey estuary is part of the internationally significant Peel- Yalgorup Ramsar site, is classified as a conservation category wetland, and contains many important environmental values in addition to its migratory waterbird habitat. The City of Mandurah has stated that the health of the estuary is the single most important issue for the City’s economy – it is the basis for why people live in Mandurah and is critical to property values, tourism and recreation. 43 Water
Key issues and responses Through its water allocation planning process, the Department of Water identifies water dependent Reduced water availability, increased ecosystems, their environmental values, and the water demand, and impacts on the water required to maintain those values. These are considered in determining final water allocations environment for consumptive use and the water which will be The impacts of a changing climate have been and ‘provided’ for the environment (the environmental continue to be very significant for water resources water provision, which may be less than the in the Perth and Peel regions. Reduced rainfall and environmental water requirement).56 lower groundwater levels will continue to impact on native vegetation, wetlands, and other groundwater The Department of Water has developed allocation dependent ecosystems, as well as reducing water plans for most water resources in the Perth and Peel available for use. regions. Allocation plans determine the amount of water that can be allocated from a resource, after The CSIRO’s report Water yields and demands in considering the environmental values that must south-west Western Australia54 predicts that future be protected. The Department has included future surface water yields in the south-west will be on projections of climate in its allocation planning for average 24 per cent lower than current yields by some time to ensure long-term sustainable use of 2030. Groundwater yields may decrease by between water resources. two per cent under the median future climate and seven per cent under the dry extreme future Of particular relevance to water values in the climate. For the Gnangara Mound, it is projected Perth and Peel regions is the Department of that yield declines may be greater than one-third. Water’s planning work for the Gnangara Mound. The Department is developing the next Gnangara While water availability is reducing, demand for groundwater allocation plan, which will aim water is increasing as a result of population growth to set levels of abstraction that match a drier and associated increase in economic activity. climate to 2030. This will include comprehensive environmental, social, and economic impact Demand for water for irrigation of public open space assessment, consultation with stakeholders, and is one of many issues that need to be considered in use of the Perth Regional Aquifer Modelling System planning for future urban expansion areas. (PRAMS) to analyse land use, abstraction, and climate scenarios into the future. The Water Corporation’s report Water Forever: Towards Climate Resilience55 provides a range of A key issue to be considered in revising the options to secure Perth’s public water supplies to Gnangara groundwater allocation plan will be the year 2060. The Water Corporation estimates that, the extent to which wetlands and other water as a result of reduced rainfall combined with the dependent ecosystems should be allowed to growing population, an additional 120 gigalitres adapt in the face of a changing climate, rather than (GL)of water will be required for public water maintaining current values reflective of past water supplies by 2030 – a gross additional 40 per cent of regimes. The rate at which hydrological regimes current annual water use. change may be too fast for wetlands to adapt, and consideration may need to be given to acceptable The CSIRO projects runoff will reduce by 20 to 30 per rates of decline for some systems, or maintaining the cent under the median future climate and by 40 to values of certain wetlands (such as through artificial 50 per cent under the dry extreme future climate recharge) while allowing others to progressively dry. which would affect surface water dependent ecosystems. Reduction in freshwater flows The Department of Water has also recently reviewed associated with a changing climate is considered the Peel Coastal Groundwater Plan, which updates to have been one of the factors exacerbating the management of the groundwater resources phytoplankton blooms in the Swan-Canning river in and around Mandurah and the Peel-Yalgorup system. wetlands. The Plan allocates groundwater resources for users while securing water required to protect Over the last decade or more, Government has the values of the Ramsar-listed Peel-Yalgorup responded to the current reduction in water system. 57 availability through a number of strategies and plans. The key solutions to the challenge of increasing demand and reduced availability of water are The Water Forever report provides an overview of increased water use efficiency, water recycling, and water supply issues through the Perth Integrated development of fit-for-purpose alternative water Water Supply Scheme and identifies strategies sources. to reduce water used by 25 per cent, increase wastewater recycling to 60 per cent, and develop new sources. 44 Interim strategic advice for the Perth and Peel regions
There has been a strong focus on water use of the developing urban areas in the northern sub- efficiency for the public water supply system, and regions, necessitating the investigation of alternate significant savings have been achieved through sources. implementing a range of marketing and regulatory strategies (such as the Perth winter sprinkler bans). Considerable work has already been undertaken However it is arguable that there has not been an to identify potential alternative water supplies equivalent focus on water use efficiency of self- that are fit-for-purpose and reduce the reliance on suppliers through the water licensing process. scheme water. The Water Corporation’s Water Forever strategy identifies alternative water sources such as There are over 170,000 domestic bores located recycled wastewater via managed aquifer recharge, across the Perth metropolitan area which abstract and greater direct use of treated wastewater by water from superficial aquifers, primarily for garden industry.58 irrigation. While strict restrictions apply to the operation of the bores, they are not required to be The Water Corporation is currently using managed licenced and there is no regulation of the number of aquifer recharge (or groundwater replenishment) new bores that are constructed. The Department of to supplement groundwater supplies. It has been Water regularly surveys bore numbers and estimates trialled successfully at the Beenyup Wastewater the total water use. In 2010, total water use was Treatment Plant and a 14 GL source development estimated at 73 GL, approximately 15 per cent of project is now underway at the site. Wastewater is all groundwater taken in the Perth region at that pre-treated through several processes before being time. This use is taken into consideration by the recharged to the aquifer to ensure that the quality Department in determining other water allocations of the groundwater is maintained or improved. (such as for public water supplies) through the Such managed aquifer recharge has the potential allocation planning process. to increase the water available for subsequent abstraction from the aquifer. The current practice of using high quality groundwater and surface water for some non- There are also several examples of treated potable uses, either directly or through the public wastewater being used directly, such as the Kwinana water supply system, will likely not be possible Water Reclamation Plant where recycled water is under future water availability scenarios. In some used for industrial purposes, and the irrigation of areas of Perth, domestic bores have contributed to Public Open Space at the McGillivray Sports Park. environmental issues including drying of wetlands The main impediments to increasing use of treated and saltwater intrusion into the aquifer. In these wastewater and other alternative water supplies areas, the Department of Water’s policy position is are concerns about impacts on human health and to not support the construction of new domestic the environment, and the relative cost compared to bores. Already, groundwater allocations are not other water sources. available for irrigation of public open spaces in some
Photo: Mundaring Weir overflowing in the 1940s
Courtesy of the State Library of Western Australia 006159d
45 Water
While there are real and perceived concerns about It is estimated that up to 60 per cent of the average the potential impacts of alternative water supplies household water use does not need to be of on human health, these are primarily focused on drinking water quality and could be substituted reuse of treated wastewater for drinking water with a non-drinking water source. There is a supplies. In this respect, multi-barrier approaches significant opportunity to use recycled grey water are being used through the current groundwater for uses such as irrigation and toilet flushing. Grey replenishment project to provide very high levels water reuse systems can be installed individually by of treatment to ensure groundwater quality (and the home owner, or through the provision of dual subsequent drinking water quality) is not adversely pipe reticulation systems at a subdivision level. affected. The EPA understands that there is no current consideration being given to direct use of It is critical that evaluation and planning of treated wastewater for drinking water supplies, alternative fit-for-purpose water sources is done given health concerns. early in the planning process, including so that land can be identified as required for alternative water With increasingly limited availability of groundwater supply infrastructure, dual pipe systems can be and surface water, and the growing dependence facilitated, and so that re-zoning can occur with the on desalinated water supplies, the relative cost of knowledge there will be water available to support treated wastewater and other alternative water the development. supplies is likely to reduce. The EPA understands that the Department of Water The are many benefits of using alternative water is developing a Perth-Peel Regional Water Supply supplies including avoided wastewater disposal Strategy. This will evaluate each of the Sub-regional costs, deferring costs for development of new Structure Plan areas to determine the gaps between public water supplies, increased availability of water non-potable demand projections and groundwater for irrigation, replenishment of groundwater to availability, and identify the need for alternatives. compensate for reduced recharge, and prevention Where a gap is identified the strategy will evaluate of saltwater intrusion into confined aquifers. supply options and determine the most appropriate option. This planned approach will provide In 2013 the Department of Water released a proactive, location specific, water planning guidance Guideline for the approval of non-drinking water and direction for the subsequent development of 59 systems in Western Australia, Urban developments. specific non-drinking water schemes. The EPA is confident that the current regulatory mechanisms outlined in the Guideline will ensure The EPA strongly supports the development of a that alternative water supplies can be developed to Perth-Peel Regional Water Supply Strategy to guide meet its environmental objectives, including human implementation of alternative water sources. The health, water, and land factors. Supply Strategy will complement Sub-regional Water Management Strategies developed to Excess stormwater harvested from the drainage support the Sub-regional Structure Plans (see the network also presents a potential opportunity Drainage and Stormwater management section for potable and non-potable uses. Availability below), providing an integrated approach to of storage is the primary impediment, as excess water resource management and development of drainage water is available during winter when alternative water supplies. there is limited demand for uses such as irrigation. Stormwater harvesting from urban catchments, Recommendation 6: that the State Government combined with managed aquifer recharge to continue to implement measures to reduce superficial or confined aquifers for storage, can be water use, increase water recycling and develop used to balance the seasonal demands. alternative fit-for-purpose water sources. a. The Department of Water to develop a The Department of Water has examined options Perth-Peel Regional Water Supply Strategy in the Perth and Peel regions for stormwater as the primary mechanism to guide the harvesting and storage, including groundwater development of fit-for-purpose water supplies recharge through infiltration to superficial aquifers.60 across all sub-regions. The Department of Water has also examined, in detail, the feasibility of using stormwater through b. Support the Water Corporation’s continued the development of the Murray Drainage Plan.61 development of managed aquifer recharge The studies have found that stormwater collected into confined aquifers of the Gnangara through subsurface drainage systems offers Mound. With the Department of Water, significant potential for harvesting and managed develop a longer-term plan to align the aquifer recharge, and there are clear opportunities groundwater abstraction bore fields with to integrate managed aquifer recharge into future artificial recharge sites, to better balance the urban and industrial areas. recharge and take of water.
46 Interim strategic advice for the Perth and Peel regions c. Integrate the recommendations of the Perth- requirements are addressed for new development Peel Regional Water Supply Strategy with Sub- areas, with the aim of protecting the quantity and Regional Water Management strategies to quality of water resources.63,64,65,66,67,68,69,70 ensure that the Sub-regional Structure Plans facilitate the implementation of alternative There are a number of other plans that still require water supplies. development, including for industrial and urban development areas in the north-east corridor. d. Ensure that the Water Supply Strategy and Sub-regional water management strategies The Department of Water also provides guidance address the needs for water to irrigate on local stormwater management through its Public Open Space and the green network†, Stormwater Management Manual for Western particularly in expansion and urban infill Australia.71 The stormwater management objectives, areas. principles and framework provided in the manual e. Continue and increase the focus on water are consistent with the EPA’s environmental use efficiency, including for self-supply water objectives. users. An important consideration for the EPA is managing Drainage and stormwater management the hydrological regime of wetlands, which are often incorporated into drainage designs. Drainage Drainage and stormwater management and the planning and district and local water management nutrient enrichment of waterways are intricately strategies are the appropriate mechanisms to linked. This is especially apparent for the Peel- ensure that new development and urban infill areas Harvey and Swan-Canning systems where, by are designed to protect the hydrological regime transporting water quickly from the catchment, of wetlands. If carefully designed and managed, drainage systems and practices have facilitated the drainage and stormwater management can help impacts of nutrients from land uses on water quality protect wetlands from the impacts of the drying of the rivers and estuaries. climate.
Drainage management in both rural and urban The Better Urban Water Management framework settings is an important consideration in identifying is the key policy document that guides integrated appropriate areas for development. Areas of high land and water planning in the Perth and Peel water table will require more comprehensive regions. It describes where, when, and how water drainage systems and, given the lack of nutrient management needs to be considered alongside retentive soils in the Perth and Peel regions, planning considerations at the various stages of environmental objectives for water quality are the planning system. There is a large amount of unlikely to be met. The location of developments supporting policy and guidance for managing and the design of new drainage systems must be drainage, nutrient, and stormwater management undertaken in a way that does not exacerbate the that is effectively brought together within the Better existing nutrient issues for rivers and estuaries in the Urban Water Management framework. region. However, the framework has not been systematically The planning, design, construction and implemented and it specifically does not apply to management of new and existing urban drainage urban infill development and brownfield sites. It have been well integrated into the planning process. also does not include consideration of the need The WAPC’s Better Urban Water Management and options for alternative water sources. The framework has facilitated integration of water EPA considers that it is important to revise the management at most stages of the planning framework to expand and clarify its scope, especially process.62 The framework applies to the whole water as 47 per cent of the population expansion in the cycle and addresses management of water quality, Perth and Peel regions will be achieved through water quantity, and impacts to ground and surface urban infill development. water, wetlands, and waterways. As a priority for implementation of the framework, The Department of Water has prepared a the EPA considers that Sub-regional Water considerable number of water management plans Management Strategies need to be developed to cover priority urban growth areas between for each of the sub-regions in the Perth and Yanchep and Pinjarra to ensure that drainage Peel regions, in parallel with the development of the Sub-regional Structure Plans. Other water planning activities should also be consistently † The green network incorporates the network of green implemented at other levels of the Better Urban spaces, water systems, biodiversity corridors and trees Water Management framework, in parallel with land that deliver multiple environmental, economic, and social use planning. values and benefit, and is discussed in further detail under People. 47 Water
Recommendation 7: that the WAPC, with the Combined with the seasonality of river flow and Department of Water, updates and ensures the the salt water tidal wedge that moves up the consistent implementation of the Better Urban Swan River during summer, the system is highly Water Management Framework. susceptible to algae blooms. Over the past 20 a. Develop and release for public consultation years, this has led to a number of toxic or nuisance Sub-regional Water Management Strategies phytoplankton (microalgae) blooms. Some have to support each Sub-regional structure plan, resulted in significant fish deaths and closure of including for the Central sub-region. the part of the system for recreational use. There is ongoing concern that phytoplankton blooms may b. The Department of Water to develop drainage become a regular occurrence in the system unless and water management plans for outstanding management of non-point source nutrient input is areas within the Perth and Peel regions. carefully managed. c. Update the Better Urban Water Management framework to include guidance for urban Monitoring by the Department of Water indicates infill areas, brownfield development that, in particular, the middle and upper sections of and identification, evaluation, and the Swan River are in poor health and the condition implementation processes for alternative continues to decline. water sources at each level of planning. While reductions in rainfall mean that there is less nutrient load entering the Swan River, particularly Nutrient pollution of the Swan-Canning from the Avon Catchment, the lower flows also system mean that both the Swan and Canning rivers are being poorly flushed. Nutrients are retained in The Swan-Canning system has experienced sediments and recycled through the water body, significant nutrient associated water quality issues particularly when the tidal salt water wedge, which over the last 20 years and more, reflecting a long moves up the Swan River during summer, creates history of point source and non-point source stratification. nutrient and other contamination to the River. While point source pollution is now no longer an issue, The Department of Parks and Wildlife is the lead nutrients continue to enter the system from urban agency responsible for the health of the Swan- areas via groundwater and drainage on the Swan Canning system. It will work closely with the Coastal Plain, and from the large Avon agricultural Department of Planning and local governments catchment associated with the use of rural fertilisers. to ensure the land use planning and development is compatible with the needs of the system. The The system is surrounded by development on Department will also oversee actions required poor, sandy soils which enable nutrients, such as to reduce the input of nutrients and other those from fertilisers, to leach quickly into the river contaminants to the system. system via groundwater and stormwater drainage.
48 Interim strategic advice for the Perth and Peel regions
There are considerable policy and planning Nutrient pollution of the Peel-Harvey frameworks in place focused on protection of the system Swan Canning system. State Planning Policy 2.10 Swan-Canning River System (2006) provides the The Peel-Harvey Estuary and coastal catchment have context for consistent and integrated planning and long been recognised as having significant water decision making in relation to the system. The Swan quality issues as a result of nutrient enrichment from Canning Water Quality Improvement Plan (WQIP) land use, facilitated by the extensive rural drainage (2009) identifies priority actions, such as fertiliser network through the catchment. The primary source management, to reduce nutrient loads from of nutrient pollution is rural fertiliser use, although catchments into the Swan Canning river system. there are contributions from a range of other The Swan River Trust had prepared a Draft River sources. Protection Strategy, as required under the Swan and The system has experienced extensive water quality Canning Rivers Management Act 2007, but this has problems for the last 40 years. With the construction not been approved. of the Dawesville Channel, the main issue is now The Swan River Trust also developed specific toxic phytoplankton blooms and occasional fish kills sub-catchment management plans (local WQIPs) in the lower estuarine reaches of the Serpentine for those catchments contributing the greatest and Murray river systems. While the environmental amounts of nutrients. condition of much of the main estuarine water body has generally improved since the construction of The WA Auditor General’s report on the health the Dawesville Channel, concerns remain about of the Swan Canning River System, released in the health of some parts of the estuary and that August 2014, highlights that despite the plans ongoing nutrient input from the catchment above and programs in place to address such issues, target levels will continue to degrade the values of the health of the rivers continues to decline. The the system. Auditor General has called for stronger coordination between the agencies involved in issues affecting The system has a long documented history of public the river system. The report also underlines the investment to improve water quality. There is also importance of implementing the necessary actions a considerable body of policy and planning with a to improve the health of the rivers, as well as a larger focus on water quality improvement in the system. focus on monitoring and reporting on the health of This includes the Environmental Protection (Peel the system. Inlet-Harvey Estuary) Policy 1992 (EPP), State Planning Policy 2.1 – Peel Harvey coastal plain catchment (1992) The Auditor General particularly highlighted the (SPP), Ministerial conditions on the Peel-Harvey lack of an approved River Protection Strategy, and Environmental Review and Management Program suggests that this is important to enhance the (ERMP, 1988), and more recently the Water Quality capacity of the Department of Parks and Wildlife to Improvement Plan (WQIP) for the Rivers and Estuary focus actions on those that are the highest priority. of the Peel Harvey system (2008). The EPA has been In response to the report, the State Government involved in many of the policies and plans that indicated the proposed River Protection Strategy have been put in place to manage the water quality would be finalised and implemented. The EPA issues. welcomes this commitment. The actions required to improve the system are well The EPA supports the Auditor General’s findings and known and documented in the WQIP but, since the recommends that actions identified in the WQIP development of the Dawesville Channel in 1994, are implemented, and that the impacts of existing little implementation has occurred on a meaningful and new urban development are reduced through scale, even with publication of the WQIP. drainage management and land use planning processes. The source of nutrients to the estuary can be generally grouped into three categories, each of Recommendation 8: that State Government take which requires different management responses: steps to implement key actions necessary to • legacy nutrients associated with past land use improve and maintain the health of the Swan- practices which are slowly leaching from the Canning River System. catchment via the extensive drainage systems; a. Improve the monitoring and public reporting on the health of the river system. b. Fully implement actions identified in the Swan Canning Water Quality Improvement Plan. Opposite: The Swan-Canning system is highly susceptible to c. Approve and implement the draft River algal blooms, which can lead to significant fish deaths. Protection Strategy. Photo: Courtesy of Parks and Wildlife, Rivers and Estuaries Division
49 Water
• impacts of current land use practices, primarily undertake rehabilitation and drainage intervention fertiliser use for broad acre stock grazing in the activities to improve the water quality in the catchment; Serpentine Catchment. The WAPC’s move to no • impacts of new and changed land uses in the longer support the urban development of the East catchment, such as intensive agriculture and Keralup site is consistent with EPA’s past strategic urban or industrial development. advice and is an important step forward in reducing future impacts on the Peel-Harvey Estuary. Legacy nutrients are the most difficult to manage, as they require retrofitting of the drainage system The EPA is of the view that there is no clear, to facilitate greater nutrient uptake within the contemporary Government policy statement catchment. The ability to do this is limited by cost, on protection of the Peel-Harvey system. The land availability, and the requirements of the Water current policy framework of the EPP and SPP was Corporation to ensure that land is not inundated. developed in the early 1990s, is out of date, and is There have been discussions over many years not considered to have been effective, particularly in about drainage governance, and whether the guiding future land use in the catchment. extensive rural drainage network can be modified or There is also no single lead agency responsible for retrofitted to address water quality issues. protecting the health of the system. Responsibility is Management of current land use practices can be shared across the WAPC (for land use planning) and achieved through implementing a range of actions a number of local governments (for development outlined in the WQIP. The success of these actions controls), and the Department of Water, which is limited by a lack of regulatory and extension has assumed responsibility for coordinating the programs to facilitate the changes required. implementation of the WQIP. The Water Corporation is responsible for management of the rural drainage Managing the impact of new developments and system, and the Department of Agriculture and changing land uses is best achieved through the Food provides advice on agricultural expansion in planning and development approval system. the catchment.
The draft Sub-regional Planning Frameworks for The EPA believes that a clear policy direction is the South-Metro Peel region identify a number important to ensure that the decision making and of large future Urban (Ravenswood and West plans of the various agencies involved are aligned Pinjarra) and Industrial (Nambeelup) areas. The sub- to achieve agreed objectives for protection of the catchments in which these are located are already estuary system. experiencing very high nutrient flows into the rivers and estuary. This is particularly significant for the Options for a new policy include a revised Nambeelup Brook sub-catchment, which has very Environmental Protection Policy or State Planning poor phosphorus retention and already discharges Policy, a Cabinet endorsed State Environmental high loads of phosphorus to the Serpentine River, Policy (SEP), akin to the Cockburn Sound SEP, or the lower reaches of which are under considerable formal State Government adoption of the WQIP. The ecological stress and experience regular algal choice of appropriate policy instruments should blooms and fish kills. depend on the specific outcomes to be achieved.
The EPA is very encouraged by the proposed The EPA also supports the appointment of a body Regional Open Space Investigation Area in East to coordinate the implementation of actions across Keralup. This would provide the opportunity to agencies and the community to address nutrient issues. The EPA is encouraged that the Peel-Harvey Estuary Management Committee has been formed The WAPC’s move to no by the State Government, in collaboration with local governments and the Peel-Harvey Catchment longer support the urban Council, to work through the strategic actions development of the needed to address the key issues facing the estuary. A key strategy to reduce nutrient input to East Keralup site is the system is to ensure that future land use developments are compatible with land capability. consistent with the EPA’s There has been a long history of inappropriate past strategic advice and is a land use planning and development approvals in the catchment which has seen the establishment considerable step forward in of high nutrient-generating land uses on the least reducing future impacts on nutrient-retentive soils of the catchment. Control of developments on a case-by-case basis the Peel-Harvey Estuary. through the environmental impact assessment 50 Interim strategic advice for the Perth and Peel regions process conducted by the EPA is not an efficient way the effectiveness of nutrient reduction strategies. to address incompatible land uses. A contemporary The Peel-Harvey Catchment Council completed an State Planning Policy could provide improved implementation review in 201372 that highlights a guidance on the placement of appropriate land need for improved coordination of existing activity uses in the catchment, and would provide local and targeted investment. governments with greater confidence to refuse incompatible development applications. Recommendation 10: that the State Government implement the recommendations of the Peel- Recommendation 9: that the State Government Harvey Water Quality Improvement Plan, establish a clear, contemporary whole-of including strategies to improve rural fertiliser government policy position on the protection management. of the Peel-Harvey Estuary system and develop specific strategies to deliver policy outcomes. Appropriate information and tools to a. Develop a new, Government-endorsed policy position on the protection of the Peel-Harvey manage water quality system, with the policy instrument chosen Both the Swan Canning and Peel-Harvey systems on the basis of the outcomes that are being have been the focus of considerable research over sought. many years. It is arguable that sufficient ‘pure’ b. Provide a planning mechanism to ensure land research has been undertaken to understand the use is compatible with land capabilities. main eutrophication pathways and processes. However, there is a lack of monitoring and decision c. Continue to coordinate agency, industry support tools to provide an adaptive management and community roles, responsibilities and approach and to guide decision-making about future improvement actions through a coordinating land uses. body such as the Peel-Harvey Estuary Management Committee. Consistent with the recommendations of the Peel- Harvey WQIP and the Auditor General’s report on the The most contemporary framework for addressing health of the Swan Canning system, comprehensive water quality matters is the Water Quality monitoring and/or reporting programs are Improvement Plan for the Rivers and Estuary of the Peel required to enable the success of programs to be Harvey System – Phosphorus Management (WQIP) determined and to guide the need for future actions. which was released in 2008. It aims to improve water Ongoing monitoring of the systems will also be a quality by reducing phosphorus discharges from key component in measuring the effectiveness of the catchment through changes to agricultural and existing and new conservation measures proposed urban practices and land use planning. It provides under the Strategic Conservation Plan. water quality objectives for phosphorus at a sub- catchment level, and recommends a comprehensive Monitoring information is also required to develop suite of management actions to improve water decision support systems such as estuary response quality. models, which can be used to determine the impacts of land use development scenarios and nutrient The issues, responses, and recommendations within management interventions in the catchment. the Peel-Harvey Water Quality Improvement Plan are still relevant and current. However, the plan has Transparent reporting to the community on the not been systematically implemented, in part as a health of the systems is also encouraged. result of funding constraints and lack of coordinated action. Recommendation 11: that the Department of Water and the Department of Parks and Wildlife In May 2010 the Department of Water formally improve the knowledge and understanding of accepted the responsibility of coordinating the the water quality of the Peel-Harvey and Swan- implementation of the WQIP with key stakeholders. Canning catchments to support decision-making. The Department has successfully compiled a number of drainage and water management plans a. Develop estuarine health indicators for the to address nutrient and drainage management. Swan-Canning and Peel Harvey systems. b. Set water quality objectives for all sub- Implementation of appropriate actions and catchments of the systems. recommendations of the WQIP would significantly contribute to addressing water quality issues. The c. Develop a monitoring and reporting program implementation of the WQIP would need to be for the Peel-Harvey system, and improve supported by dedicated implementation resources, reporting for the Swan-Canning system, and an updated monitoring, evaluation, and against the estuarine health indicators sub- reporting program that would guide investment catchment water quality objectives. Ideally and assist regular reporting to government on this should include an annual report card to the community. 51 Water
d. Develop/update estuarine ecosystem Priority areas are assigned to land within PDWSAs, response models to give a whole of system based on current zoning, current land uses, land perspective from which to assess potential tenure (ownership) and the strategic importance of impact of catchment based activities and the water supply. future development. Priority areas are: Protecting the water quality of the • Priority 1 (P1): objective is risk avoidance, i.e. no Gnangara Mound degradation and avoidance of risk to the quality The Gnangara and Jandakot Mounds supply a very of water supplies. Compatible land uses are significant proportion of the Perth and Peel regions’ primarily undeveloped Crown land. public drinking water supplies, as well as supporting • Priority 2 (P2): objective is risk minimisation, a variety of other uses. The long-term protection i.e. no increased risk of contamination through of the quality of these groundwater resources is a risk minimisation. Compatible land uses include high priority. Land uses including urbanisation and rural-type land uses. infrastructure have the potential to significantly • Priority 3 (P3): objective is risk management, impact on water quality, and ensuring appropriate i.e. to manage the risk of pollution through land uses over these areas is an important priority guided or regulated land use activity. Urban through the Strategic Assessment of the Perth and land use is compatible with this priority. Peel regions. Appropriate land uses and activities within each of Land use planning is the most important approach the priority areas are identified in the Department to protecting water quality, both through of Water’s Water Quality Protection Note No. 25 Land identifying appropriate land uses within public Use Compatibility in Public Drinking Water Sources drinking water source areas, and in implementing Areas.73,74 land use design and best management practices to address water quality contamination risks. Where Ideally, the Sub-regional Structure Plans should public drinking water source areas remain covered aim to protect the most important Priority 1 water with native vegetation and support little human supply areas from any land use development, as activity, the risk of contamination is low. well as ensuring that risks to drinking water in Priority 2 areas are not increased. However, the There are a variety of statutory and policy EPA notes that a number of the draft Sub-regional mechanisms in place to protect the water quality of Planning Frameworks contemplate development the mounds. The Department of Water influences of urban areas and major infrastructure within land use over public drinking water source areas Priority 1 areas, and developments in other priority through the land use planning system via three areas which are not consistent with the land use State Planning Policies (SPPs): compatibility guidance. These developments, • SPP 2.2 – Gnangara Groundwater Protection particularly those in the Priority 1 areas, need to • SPP 2.3 – Jandakot Groundwater Protection be carefully considered through a transparent risk • SPP 2.7 – Public Drinking Water Sources. assessment. Both short and long-term risks and consequences, including the costs of additional The main purpose of these State Planning Policies treatment that might be required to protect human is to prevent, control or manage development and health, must be considered. land use changes in the policy areas that are likely to cause detrimental effects to the groundwater While there is a comprehensive policy position in resources. place to guide development within public drinking water source areas, there does not appear to be a There is also an Environmental Protection Policy systematic approach to identifying the risks, costs – the Environmental Protection (Gnangara Mound and benefits of non-compatible development in Crown Land) Policy 1992 – which, in part, protects PDWSAs. the water quality of the Crown land area of the Gnangara Mound for drinking water supply The EPA notes that SPP 2.2 and SPP 2.3 are currently purposes. The EPP identifies specific water quality being revised by the WAPC. The EPA encourages criteria for groundwater which must be maintained that the review of these strengthens the level of to meet the objectives of the policy. guidance provided on compatible land uses, and outlines a risk assessment methodology to aid Proclaimed public drinking water source areas decision making where incompatible land uses (PDWSAs) in the Perth and Peel regions are are being contemplated. A full assessment of the recognised in the planning system via their risks, costs and benefits is important to ensure that identification as water catchments (P1) or rural impacts are fully understood before decisions are water protection (P2) zones in the Metropolitan made. Region Scheme. 52 Interim strategic advice for the Perth and Peel regions
Groundwater quality criteria to protect the quality of The EPA considers that having a modern legislative drinking water have been defined for the Gnangara framework that also addresses the management Mound through the EPP, but are not included in the of water quality issues, particularly diffuse source Department of Water’s public drinking water source contaminants, is important. The EPA strongly area protections plans. Such criteria have not been supports the development of contemporary developed for other areas including the Jandakot legislation that improves the regulatory capacity Mound. Groundwater criteria provide a benchmark of the Department of Water (and other agencies) against which the risks of developments can be in relation to water quality, as a second phase of assessed, and should be included in plans to provide reforms. a single source of information to guide appropriate land uses. Recommendation 13: that the State Government support the development of a contemporary Recommendation 12: that the WAPC and the legislative framework that addresses water quality Department of Water update and implement the and quantity management. current policy framework to protect the quality of groundwater used for drinking water supplies. a. Complete the review of the State Planning Policies to provide improved guidance on land use planning and development in public drinking water source areas. b. Develop processes to undertake a transparent risk/benefit analysis where incompatible land uses are proposed in Priority 1 areas. c. Embed water quality criteria into protection plans, against which the impacts of developments in drinking water source areas can be assessed.
Outdated legislative regime to manage water Through this chapter, the EPA has highlighted the many policies, plans and strategies which guide the management of water quality and quantity in the Perth and Peel regions. However, implementation of some of the policies and plans has not been effective, in part due to the poor legislative basis which underpins water resource management.
There are a number of acts of parliament which guide water resource management, many of them developed many decades ago. The Rights in Water and Irrigation Act dates back to 1914. It is arguable that none of the current water management legislation provides the tools to manage water resources under the current challenging conditions of growing demand, decreased supplies, and land use intensification.
The EPA understands that the Department of Water is progressing the development of new draft water resource management legislation. It is understood that the first phase of legislative reform will provide an improved legislative framework to manage the allocation of water resources and take into account water availability and environmental water requirements. The amendments are focused on water allocation and a water access entitlement framework.
53 Section X
54 Interim strategic advice for the Perth and Peel regions
Air
55 Air
The EPA’s aim for the air theme is to identify measures that will allow future generations to enjoy high standards of air quality, human health, and amenity.
Background Air pollution in cities remains a significant cause of death and illness, particularly affecting the health Air quality in the Perth and Peel regions is generally of sensitive individuals and groups.82 At least 3,000 of a high standard in comparison with other deaths each year in Australia can be attributed Australian and international cities.75,76 A recent to the long and short term effects of urban air survey found that “clean air, rather than smog and pollution.83 This is in addition to the many years fumes” is the top priority for Perth as a liveable of healthy life lost due to illness and early death city, with 94 per cent of respondents rating this attributable to urban air pollution. Significant as important or very important.77 However, on associations have been found between changes certain days of the year the Perth and Peel regions in Perth’s particle and ozone concentrations and experience periods of poor air quality, often due hospitalisations for asthma, chronic obstructive to unforeseen and often unmanageable adverse pulmonary disease, pneumonia, and respiratory events including smoke from bushfires and dust disease.84 storms.78 Strategies which minimise overall exposure Despite the setting of national and international of people to air pollutants will have the greatest standards for ambient air quality, it is well benefit to human health.79 recognised that there is no safe level of exposure Perth’s air quality is heavily influenced by several for most air pollutants, with particulates and factors including the weather and seasonal the secondary pollutant ozone of particular variations, population spread over a large area, concern.85,86,87 Substantial health benefits can be traffic and high per capita vehicle use, and the gained through minimising population exposure to location of commercial and industrial centres. air pollution. Temperature increases and extreme events This advice considers overall ambient air quality and associated with a changing climate will potentially does not consider individual point source emissions, have the largest influence on future air quality80, bushfires or the impacts of indoor air quality. The particularly levels of particles and ozone. impacts from individual point source emissions will With an increasing population there is likely to be continue to be considered on a project by project a corresponding increase in both direct and diffuse basis through environmental assessment processes. sources of air pollution, as well as an increased Currently, air quality is managed through a range of number of people exposed to air pollution. While legislation and policy mechanisms. The Department there are mechanisms in place to regulate and of Environment Regulation has the lead role in manage industrial emissions, the management of protecting and maintaining air quality, while a diffuse sources – such as transport emissions – is number of other agencies have responsibility for complex, especially in the context of a rapidly decision making which affects air quality. This is growing city. reflected in the membership of the Air Quality Air quality standards in Australia and around the Coordinating Committee which oversees the Perth world are largely based on protection of human Air Quality Management Plan. health. The impact of air pollution on natural Land use planning has a role in protecting human vegetation and ecosystems is comparatively health and amenity through the use of good design unknown.81 The focus of the EPA’s advice for air and location of land uses in order to improve quality is on reducing impacts to human health and air quality and reduce community exposure to liveability. 56 Interim strategic advice for the Perth and Peel regions
air pollutants. In the Perth and Peel regions this The key pollutants of concern in the Perth and will be particularly important with increasing Peel regions include particles (measured as PM10 housing density around transport corridors as well and PM2.5), ozone (O3), nitrogen dioxide (NO2), and as ensuring adequate separation distances are sulfur dioxide (SO2). Over the long-term, carbon established through buffers. monoxide, oxides of nitrogen, sulfur dioxide and lead have declined or remained generally stable in The EPA’s recommendations for air quality are urban areas.88,89 The long term trends for particles focused on strategies to address key knowledge (PM10) appear to be downward, but the changes in gaps, align land use and transport planning, and composition of particles and the trend for smaller use the existing air quality management framework 90 particles (PM2.5) are not well known. The long-term provided in the Perth Air Quality Management Plan. effects of smaller particles are a concern for human health with no safe limit identified, while large inert particles impact on visual amenity and environment Key issues and responses factors.91
Cumulative air emissions across the There has been an overall increase in average Perth and Peel regions ozone concentrations and this will increase with warmer summer temperatures.92 Ozone forms from There have been a number of previous large and the reaction of precursor gases such as oxides of detailed studies into Perth’s air quality including the nitrogen and volatile organic compounds in the Perth Photochemical Smog Study, the Perth Haze presence of heat and light. The principle sources Study, Perth Traffic Corridor Studies, and the Perth of ozone are motor vehicles, industrial combustion Vehicle Emissions Inventories. Each of these has processes and petrochemical and solvent-based contributed to Perth’s air quality knowledge. This in industries. Vegetation and soils are also sources turn can inform effective policy and management of volatile organic compounds, and contribute to measures. Updating the Perth Emissions Inventory higher background levels of ozone.93 will be key to understanding emissions sources across the region and could be used to inform There have been significant improvements in sulfur transport and land use decision making. dioxide levels around Kwinana since the 1970s, with the conversion to low sulfur fuels and installation of In order to meet the requirements under the control technologies. Ambient standards for sulfur National Environment Protection (Ambient dioxide in the Kwinana area are controlled under the Air) Measure, the Department of Environment provisions of the Environmental Protection (Kwinana) Regulation undertakes continuous air sampling for (Atmospheric Wastes) Policy 1999 (Kwinana EPP) and criteria air pollutants at a number of locations across Environmental Protection (Kwinana) (Atmospheric the greater Perth region (Figure 7). The locations Wastes) Regulations 1992. are chosen to be generally representative of the measured levels of air pollutants in the ambient air. The South Metropolitan Peel Sub-region “is Under the requirements, areas with a population expected to experience relatively strong population over 25,000 should have a monitoring station. It is growth through to 2050.”94 With an increasing important that monitoring locations are suitable population, the Peel region will experience greater for data collection and have long term stability. air quality issues. The Department of Planning Sites can be difficult to secure and will need to be has also identified future industrial development considered as the population grows. areas in the Peel region and a need for improved 57 Air
movement networks. With current and projected population numbers, it has been identified that there is a need for a permanent monitoring location in the Peel region. In addition, expansion of the Perth Air Quality Management Plan to include the Peel region, using existing actions, will promote good air quality outcomes across the Perth and Peel regions.
Similarly, there is a need for a permanent air quality monitoring location in the Perth CBD to ensure long-term collection of baseline data and tracking of air quality trends. Air quality in the central Perth area is heavily influenced by traffic emissions.
The EPA supports the Perth Air Quality Management Plan (2000) as a whole of government initiative to ensure that the people of the Perth and Peel regions have clean air.
Recommendation 14: that the State Government, through the Department of Environment Regulation, update and expand the Perth Air Quality Management Plan to cover the Peel region, and install permanent monitoring stations in the Perth CBD and Mandurah. a. Identify and implement a range of air impact mitigation strategies, including urban greening and controls for wood heaters. Figure 7: Air quality monitoring stations in the Perth Recommendation 15: that the Department of and Peel regions. Environment Regulation improve the knowledge of the current state of air quality, and current and Air quality monitoring sites (Data: Department of future major sources and types of air emissions for Environment Regulation the purpose of strategic land use planning. Existing urban areas (Data: Department of Planning) Future classes of action (Data: Department of Planning) a. The Department of Environment Regulation to update the Perth Emissions Inventory, including the Peel region. 2. Ensure environmental impacts from emissions b. Transport and planning agencies to use the are acceptable and meet the relevant information to inform future strategic land use regulations and health criteria at the individual and transport planning at the regional scale. industry site boundary and within the industrial estate or same land use zone. Industrial sources of emissions in the 3. Implement an agreed land use planning Perth-Peel region buffer to ensure that any residual emissions and unintended emissions are minimised or Industrial emissions come from a number of sources maintained at acceptable levels. and contribute to poor air quality in the Perth and Peel regions. The majority of emissions sources are In industrial zones or estates, there are multiple regulated through the EP Act. The EPA encourages, sources and types of emissions, making in the first instance, the avoidance and minimisation management of air pollution a complex task. of emissions through the use of best practice Consideration of cumulative impacts from industrial design, technology, and operations. With innovation estates and strategic industrial areas is important to and technological advances, best practice is ensure air quality standards are met. continually developing and – where practicable – continuous improvement in reduction of emissions There is a need to protect sensitive land uses from is encouraged. industrial emissions. A sensitive land use is a land use where people live or regularly spend time and The EPA’s established order of preference for which are therefore sensitive to emissions from managing air emissions95 are: industry. They include residences, hospitals and 1. Avoid or minimise the creation and discharge of nursing homes, short-stay accommodation, schools, emissions through design and operation of the child care facilities, shopping centres, playgrounds, facility. and some public buildings. Some commercial and 58 Interim strategic advice for the Perth and Peel regions institutional land uses which require high levels of difficult to determine an appropriate buffer. Setting amenity or are sensitive to particular emissions may an insufficient buffer will constrain future industrial also be considered sensitive land uses. development. The EPA advocates the inclusion of buffers in the Sub-regional Structure Plans, taking a The EPA’s separation distances guideline, which is precautionary approach in their determination. This currently under review, recommends separation will guide subsequent district and local structure distances between an individual point source of plans, as well as future statutory planning, to emissions and sensitive land uses, in order to avoid address and minimise future land use conflicts. adverse impacts to human health and amenity. The guideline distances may not be appropriate for use The EPA notes the recent Supreme Court where multiple premises contribute to cumulative judgement97 in which Martin J observed: impacts from multiple sources of emissions. Separation distances are an environmental Avoiding future land use conflicts must surely mechanism used to avoid adverse impacts on be a relevant planning consideration. I reject any human health and amenity, and are an important submission that it is unreasonable, let alone manifestly consideration in determining a land use planning unreasonable, for a planning authority such as WAPC buffer. Separation distances are an additional level to have in mind as a consideration future land use of mitigation where emissions cannot be contained, conflicts. To proceed otherwise on my assessment but do not replace the responsibility of industry would defy logic and common sense, indeed strike at operators to minimise emissions through best the very rationale for having a planning body assessing practice. proposed subdivisions at all. By its very nature, the statutory function of a ‘planning’ body must involve a There is growing pressure to balance industrial prospective consideration of matters that may arise in development and growth with urban development the future. and growth. Pressure for land development on both sides of the equation can erode buffers which Established buffers need to be supported by separate emission sources from sensitive land uses, government at the highest level. The EPA notes leading to negative impacts on the community and that the WAPC is currently reviewing State Planning the environment. Policy 4.1 State Industrial Buffer Policy. The EPA strongly supports enforcement measures to ensure The EPA strongly advocates that planning the policy is implemented. This approach should authorities ensure buffers are established through be accompanied by guidelines on appropriate the planning process. Consideration of future land complementary and non-sensitive land uses use conflict through planning can be facilitated surrounding industrial development zones. by planning appropriate buffers. Buffers are a planning tool used to protect sensitive land uses, Recommendation 16: that the State Government and consider a range of elements, including protect air quality, human health, and amenity separation distances, cumulative impacts, amenity through a whole of government approach to and visual impact, and future continuation or determination and enforcement of buffers around expansion of an industry.96 Consideration of buffers strategic industrial areas. at a strategic level facilitates the inclusion of buffers a. The WAPC/Department of Planning to develop through other planning instruments and assists in a whole of government agreed policy on the managing developer expectations for future land development and implementation of buffers development. through the review of the State Industrial Buffer Policy and adopt a precautionary For many years, the Kwinana EPP areas have approach where specific emissions sources are operated as de facto land use planning buffers not yet known. in the absence of a formal land use planning b. The WAPC to identify buffers around Strategic boundary. While modelling of emissions can provide Industrial Areas in the finalised Sub-regional a guide based on past monitoring and a series of Structure Plans and enforce them through assumptions, science alone cannot determine a land subsequent statutory planning. use planning boundary. Planning authorities need to make a judgement on an appropriate land use buffer, based on available science and current and future land uses, and using a precautionary mindset.
A number of industrial expansion and investigation areas have been identified by the WAPC in the draft Sub-regional Planning Frameworks, in addition ... science alone cannot to existing industrial zoned areas. At this level of planning the specific industry types and consequent determine a land use emissions have not been identified, making it planning boundary. 59 Air
Cumulative industrial emissions Traffic congestion has a major influence on air quality as it leads to more exhaust and evaporative The co-location of industrial premises within emissions. Vehicle emissions are increasingly industrial estates or zones gives rise to cumulative becoming an important element of traffic air emissions. The EPA expects proponents management decision making. Hotspots of poor to demonstrate that cumulative impacts on 98 air quality exist around major congested locations the environment are acceptable. However, including traffic lights and major roads, during peak determining cumulative impacts can be difficult hour commuter times, and even around school drop without access to emissions information from off and pick up times. Frequent stop-and-go traffic other premises, sometimes in competition. An situations create excessive delays, queue formation, assessment framework for determining cumulative speed variations, increased fuel consumption, and emissions will allow for better decision making for gaseous emissions.107 Drivers, pedestrians and future development proposals and ensure that the cyclists are exposed to very high levels of pollution emissions from all sources within an industrial estate at traffic lights108, with consequent impacts on or precinct do not significantly impact on air quality. health.
The EPA understands that the Department of The draft Sub-regional Planning Frameworks note Environment Regulation is investigating options to that congestion is a growing issue for the Perth and address cumulative impacts through its regulatory Peel regions, with the cost of congestion estimated assessment framework. to more than double to $2.1 billion by 2020.109 The Recommendation 17: that the Department of Australian Infrastructure Audit has projected that, Environment Regulation develop an assessment with Western Australia’s population and economic † framework for determining cumulative emissions growth, the cost of delay due to congestion from proposed industrial areas. (without additional capacity) in greater Perth will grow to $16 billion in 2031.110 This is the highest increase in congestion of all major cities, with 12 of Increased vehicle emissions from a city the top 30 congested roads in the Perth and Peel of 3.5 million regions. The Infrastructure Audit also noted that public transport in the Perth and Peel regions would Transport emissions are a significant source of reach “crush capacity” by 2031 without further air pollution in urban areas and are particularly 99 investment, which could further increase congestion difficult to regulate. Vehicles are the largest with an increase on road network demand.111 single source of smog precursors (volatile organic compounds and oxides of nitrogen) in Perth, as well Strategies which reduce congestion and improve as contributing significantly to emissions of particles network efficiency will have a major improvement and other pollutants.100 The Perth Airshed Emissions on vehicle emissions.112 Instantaneous traffic models Study found vehicle emissions contributed about used in other cities have shown a strong correlation 79 per cent of carbon monoxide emissions, 46 per between vehicle emissions and driver behaviour, cent of oxides of nitrogen, 43 per cent of volatile and strategies which promote free flowing traffic organic compounds and 17 per cent of particles at lower speeds and reduce the amount of braking, 101 as PM10. Particles as PM2.5 were not included in idling, and acceleration result in lower pollutant this study, however they are increasingly important emissions.113,114 due to the health impacts from fine and ultrafine particles. Private vehicles remain the most common Air quality in congested areas is exacerbated when method of travel to work across the Perth and Peel the surrounding built up area prevents dispersion regions.102,103 of pollutants from these hotspots.115 Built up areas which are highly congested are therefore likely Effective management of vehicle emissions is a key to not only have poor air quality but also a large issue to address while planning for an increased number of people exposed to poor air quality. population in the Perth and Peel regions.104 When This will need to be considered in the design and the population reaches 3.5 million there could be location of higher density and urban infill areas. an extra 1.2 million vehicles in the Perth and Peel regions.105 Increasing vehicle numbers, distance † The delay cost is a surrogate measure for network travelled (measured as vehicle kilometres), and efficiency and is measured as the difference between congestion all affect vehicle emissions. Past gains the time it takes to travel on a road link under congested in technology and fuel efficiency are likely to be conditions and the time it takes to travel the road link cancelled out by the future combined impact of under uncongested conditions. This approach recognises these elements.106 Strategies which tackle all of that, although congestion and delay are undesirable, these elements are likely to reduce the impact of drivers nevertheless use the road in question, knowing transport emissions on air quality. that there is likely to be a delay. In other words, even though there may not be an uncongested choice, drivers are making a choice to use the road. 60 Interim strategic advice for the Perth and Peel regions
The current strategic transport planning provides Recommendation 18: that the State Government a timely opportunity to address future air quality implement a long-term integrated transport issues. In planning for a city of 3.5 million, there is an plan for the Perth and Peel regions which aligns opportunity to align transport decision making with with the final Sub-regional Structure Plans and improved air quality outcomes through planning addresses air quality. for a better movement network. A movement a. Ensure transport and land use planning network which promotes low emissions transport strategies are complementary in identifying options such as public transport, cycling, and measures to reduce traffic congestion and walking will improve air quality. Increased density, improve air quality. if planned well, can support the public transport b. Use air quality knowledge to inform land use network through increased uptake. The concept of and transport decision-making. walkable neighbourhoods and the Green Network (as discussed under People) is also important in c. Provide government departments with improving the access to, and desirability of, both access to air quality data to inform transport active and public transport modes. decisions. d. Undertake air quality assessment for road The EPA is aware that both the Department of network planning of major roads and strategic Transport and the Department of Planning have transport routes. a number of policies that promote and recognise the benefits of active and public transport. The EPA Recommendation 19: that the State Government is supportive of the intent of these policies and encourage increased uptake of active travel and advocates they be effectively implemented across all public transport, including implementation of the levels of decision making. WA Bicycle Network Plan 2014–2031. a. Continue support and implementation of Strategic land use planning in collaboration with behavioural change and awareness programs long-term and strategic transport planning allows which encourage walking, cycling, and public for the necessary spaces for infrastructure to support transport. both active and public transport. This includes paths, shading, cycle ways and bike parking facilities, rail, light rail, bus stops, and the green network. The Transport emissions near major roads Western Australian Government’s focus on urban The health impacts from air pollution have been infill and activity centres can help deliver transport shown to extend between 300 and 500 metres modes which meet air quality outcomes. from the side of major roads.117 This is of particular concern for sensitive groups, including children and The EPA understands that the Department of the elderly, and there should be consideration of Transport is preparing a draft transport plan for air quality in the siting of facilities such as schools, the Perth and Peel regions. An integrated transport childcare centres, playgrounds, hospitals, and aged system which focuses on allowing active transport, care facilities. The United States Environmental using and maximising the public transport Protection Agency has produced a guideline for system, and efficient use of existing networks will the siting of schools, which considers road-related all promote good air quality outcomes. The EPA factors.118 A number of jurisdictions, including anticipates that the plan will consider transport California119, British Columbia120, Auckland121, and contributions to air emissions. This plan is still to be the Halton Region in Ontario122, have established released and, when finalised, should align with the setbacks for highly sensitive land uses from major WAPC’s final Sub-regional Structure Plans. or high traffic roads which could be considered for The EPA is encouraged by the recent release of adoption in Western Australia. 116 the WA Bicycle Network Plan which promotes Recommendation 20: that the WAPC, in uptake of cycling and will help to achieve the EPA’s consultation with the Department of Environment objectives for air quality. Regulation, provide guidance for local The EPA understands that programs such as government and decision makers to establish Travel Smart and Your Move have been successful setbacks for future highly sensitive land uses (such in changing travel behaviour and supports as hospitals, childcare centres, aged care facilities, the continuation of such initiatives. It may be and schools) from major roads and intersections. advantageous for these programs to consider focusing efforts on groups which are already open to use of active and public transport modes, such as recreational cyclists and split mode travellers (e.g. ‘park and ride’). This group of people are more likely to change their travel preferences to exclude private vehicle use.
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62 Interim strategic advice for the Perth and Peel regions
People
63 People
The EPA’s aim for the people theme is that the long term development of the Perth-Peel region takes into account the health, amenity, and heritage protection needs of the community.
Background and values improved health outcomes may be achieved.131,132 The role and importance of biodiversity in delivering The future development of the Perth and Peel health benefits should be considered as a key regions will have an influence on the overall health component in the design of quality green spaces.133 and amenity of the community. Incorporating nature in the city extends beyond Human health, heritage and amenity cover a minimising pollution and environmental harm. wide variety of issues, many of which are or Planning and designing cities to improve contact can be considered through land use planning with nature is important in order to attain the in “developing strategies and designing the various health, amenity, community connectedness, communities in which we live, work and play.” 123 The and quality of life benefits. EPA is focused on these issues only to the extent that they are directly related to the environment and Heritage values can be considered in a planning context. The EPA’s consideration of heritage values includes Land use planning and zoning has its origins in the those historical and cultural associations which are desire to ensure that industrial and commercial directly related to the natural environment. activities do not result in adverse public health outcomes.124 One of the most significant Natural heritage places can include landscapes, environmental determinants of health is the built natural features, waterways, and marine or bushland environment.125 This includes: the provision and ecosystems that have natural and/or cultural location of services, residential, commercial and heritage significance or scientific value and are industrial areas; access to transport options; noise generally rich in biodiversity.134 The discussion of and air pollution; and waste management. Land natural heritage is substantially covered under Land. use planning decisions have the potential to affect, protect, and promote population health through Aboriginal heritage is embedded in the natural environmental and social determinants of health.126 landscape and values are present in the land, air, waterways, animals, and plants.135 A physical place which has cultural significance to Aboriginal persons Connection between human health and may fall within the definition of environment the natural environment in the EP Act.136 Aboriginal heritage matters are considered to the extent that they may be affected The links between human health and the natural by the impacts of development on the physical or environment are well established. Direct contact biological surroundings.137 with plants, animals, natural landscapes, and wilderness throughout urban environments The Aboriginal Heritage Act 1972 is the key piece of improves both our physical and psychological legislation to oversee Aboriginal heritage. It is noted health.127,128 Experiencing nature in the city, that the extent of known sites and heritage surveys especially if close to our homes, can result in lower are limited in the Department of Aboriginal Affairs’ levels of stress and better health and wellbeing Aboriginal heritage database138 as these are generally outcomes.129,130 only realised in response to specific development proposals. When urban green spaces are designed reflecting the unique ecological characteristics of an area
64 Interim strategic advice for the Perth and Peel regions
Amenity values Key issues and responses Amenity and the design and form of space are Urban heat impacts on health and central in the consideration of urban design. The principles for creating good urban spaces include: amenity • character and sense of place; The urban heat island effect is a phenomenon in • permeability, connectivity and accessibility; and which the ambient air temperatures are higher in urban areas than surrounding rural areas. The • variety, interest and vitality.143 ambient temperatures in the urban environment Sense of place is described in the Capital City have been shown to be between 10 and 15 degrees Planning Framework as the clear identity and Celsius hotter during the day and 5–10 degrees 143 character of a place which makes it distinguishable hotter at night (Figure 8). This is because the built by both residents and visitors and includes a unique form of the urban environment, including buildings, combination of both physical features, such as roads, paving and car parks, absorbs and re-radiates landforms, wildlife and built features, and intangible heat. Urban environments also produce heat from elements such as culture, history and community.140 vehicles, air conditioners and other appliances and industrial processes. Roads are one of the largest Green infrastructure forms the very fabric of what contributors of heat and can comprise up to 30 per makes Perth unique in a world sense. 141 cent of land space in urban areas, while off-street parking can take up an additional 20 per cent of Our unique natural environment and interaction land space.144 with nature is intrinsically linked to Perth’s identity. In 2011–12, seven out of 10 people in Perth had The urban heat island effect is most perceptible participated in activities involving contact with during summer and will be further exacerbated nature in the last 12 months.142 by increasing temperatures caused by a changing climate. For south-western Australia, the CSIRO As the assessment of amenity is subjective it has projected that by 2030 the annually averaged cannot be defined in terms of impacts on particular warming will be about 0.5 to 1.2 degrees Celsius individuals. Rather, amenity acceptability levels above 1986–2005 levels.145 Extreme temperatures need to be defined on the basis of community will also increase, with a substantial projected expectations that are reasonable in particular increase in the temperature, frequency, and duration contexts. of very hot days. These issues will be exacerbated by Amenity can also be affected by factors such as poor increasing hard surfaces and loss of green space in air quality and degraded waterways. These issues urban infill areas and new development areas. are considered under Air and Water. The elderly, young, sick, and people from lower socio-economic areas are at most risk from new or exacerbated health issues and increased mortality Green infrastructure forms due to heat in addition to health risks from poor air the very fabric of what makes quality. An increase in heat related deaths is predicted Perth unique in a world to have a major impact in Australia as a result of sense. a changing climate.147 The cumulative impact of 65 People
a changing climate needs to be considered in mitigation actions which address the impacts from Heat-wave related deaths in heat. Perth are predicted to more The increased temperatures associated with the than double by 2050. urban heat island effect will affect the composition and interaction of air pollutants and increase the due to both evapotranspiration and shading.159 The formation of ground level ozone.148,149 Ground level increasing demand for space in accommodating an ozone, which is different to stratospheric ozone, increased population and associated services places is a secondary pollutant formed when oxides of pressure on green spaces. Heat stress and reduced nitrogen and volatile organic compounds react in water availability will impact on vegetation growth the presence of light and heat. Higher temperatures and ability to withstand disease. speed up the chemical reactions that lead to the creation of photochemical smog. A key consideration for mitigating the effects of heat will be increasing canopy cover across There are likely to be acute and long term health suburbs. The WAPC’s Urban Forest of Perth and impacts as a result of the increasing heat produced Peel Statistical Report analysed the percentage of from current and past urban development forms.150 tree canopy cover at the suburb and street level.160 Heat-wave related deaths in Perth are predicted to The report shows the reduced canopy cover in more than double by 2050.151 A Perth study found urban development areas across the Perth and that a 10 degrees Celsius increase in maximum Peel regions. Combined with a review of Liveable temperature above threshold was associated Neighbourhoods161 and the Residential design with a 9.8 per cent increase in daily mortality codes162, canopy cover targets could mitigate the and a 4.4 per cent increase in total emergency urban heat island effect, as well as improve visual department presentations.152 People are likely to be amenity. more vulnerable to air pollution under increased temperatures, resulting in health effects being The ‘Green Network’ was identified in Directions observed at lower levels of air pollution.153 In Perth, 2031 as one of the three structural elements that the suburbs currently most at risk from heat related form the basis for the spatial framework. The illness and death are concentrated in the middle Green Network incorporates the network of green suburbs (Figure 9).154 spaces, water systems, biodiversity corridors, and green streets that deliver multiple environmental, The overwhelming evidence indicates that the best economic, and social benefits. way of mitigating the urban heat island effect is to increase the proportion of trees and green spaces Development of a Green Network for the Perth in urban areas.156,157,158 Parks and vegetated areas and Peel regions is an important opportunity for typically have cooling effect in urban environments, an overall vision for Perth. This will meet a number
Figure 8: Variation of surface and atmospheric temperatures across a city146
66 Interim strategic advice for the Perth and Peel regions
cool paving materials. A ‘cool roads’ trial is currently underway in Sydney.167 Green roofs and green walls also have cooling properties and are a growing trend in high density areas and the Perth CBD.
Recommendation 21: that the WAPC and local governments take steps to counteract the air quality, human health and amenity implications from the urban heat island effect through a greening strategy for the Perth and Peel regions.
Mosquito impacts on human health and amenity Mosquitos and mosquito-borne disease impact considerably on amenity and public health in residential developments located in close proximity to natural mosquito breeding habitat. However, elimination of all mosquito risk is impracticable as some species can travel many kilometres from breeding sites. The application of chemical controls in sensitive ecosystems also has the potential for significant environmental impacts.
The ongoing management of mosquito problems remains the responsibility of local government, but Figure 9: Heat related vulnerability in the Perth planners and developers should endeavour to avoid metropolitan region demonstrated by number of heat- mosquito-prone risk areas in planning for future related ambulance call-outs155 residential development. Ambulance call-out data were provided by the Australian Ambulance Service for 2007 consecutive days A strategic approach to mosquito risk is needed (from 1/1/2006 to 30/6/2011). in a collaboration between the departments of Planning and Health and local government in order to avoid the worst affected mosquito areas. The of the EPA’s objectives through increased green consideration and allowance for appropriate buffers space in urban areas, increased connectivity, and around waterbodies (as discussed under Water) improving neighbourhood walkability, which through local schemes and structure plans is an promotes active and public transport. A Green important planning approach which can provide Network can provide shading, reflectivity, and better separation between where people live and evapotranspiration, as well as social and health mosquito impacts. benefits, connection to nature, and potential biodiversity benefits. Mosquitos are a known problem in the Peel region, as the Peel-Harvey estuary and surrounding low- A Green Network strategy covering the entire Perth lying wetlands and river systems provide ideal and Peel regions will help to guide development breeding sites. Mosquito risk is one of the many of local greening or urban forest strategies. The issues with urban development at the East Keralup strategy should aim to improve and retain large site. The EPA notes that East Keralup is no longer mature trees in planned green spaces as well identified for urban development in the draft Sub- as on streets and in gardens. A number of local regional Planning Frameworks which, among other governments have already published or are in the environmental benefits, will reduce the overall process of developing local urban forest strategies, exposure of people to health and amenity risks including Belmont163, Vincent164, Armadale165 and associated with mosquitos. Perth166. It will be important to address water availability in order to have water available to irrigate and support greening strategies. Health impact assessment Health impact assessment is a systematic process There is also an opportunity for technological which identifies the positive and negative innovation in mitigating the urban heat island effect health impacts of a new activity or plan and the through the use of reflective building materials distribution of those impacts within a population.168 which have high albedo†, for example cool roofs and This includes elements of the natural environment † The percentage of solar energy reflected by a surface. but extends across a number of disciplines. The best
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approach to health impact assessment is integration realistic separation distances from noise sensitive into existing assessment processes rather than as a development. standalone process. Planning for new noise-sensitive developments will The Department of Health has developed a health need to establish appropriate separation distances impact assessment framework for Western Australia, from industrial and commercial areas in order and a series of checklists and tools169 which outline to prevent land use conflicts. In addition, noise- the process. This has the potential for health impact attenuating design, construction, and installations assessment to be integrated into current planning should be incorporated into new developments to decision making. Health impact assessment will not prevent health and amenity impacts on people. be necessary for all proposals.
The future development patterns identified in Land use conflict the final Sub-regional Structure Plans will have an Emissions generated by industrial, commercial impact on social and environmental factors such as and rural activities, including noise, gases, dust air, water, and soil quality as well as the capacity and and odour have the potential to impact on human capabilities of health, transport, and communication health and amenity in residential areas and at other networks. sensitive land uses. For the most part, industrial The EPA notes that there may be some specific developments of this kind are regulated through the situations where a health impact assessment may pollution control provisions in the EP Act. be appropriate. Avoiding impacts on the health and amenity of people through the use of buffers is the best Noise impacts on human health and approach for separating sensitive land uses from amenity industrial, commercial and public utility land uses. This topic is further discussed under Air. Noise can impact on human health standards and acoustic amenity. Long-term high-level noise Waste generation with a growing exposure can lead to serious health, learning and population development problems.170 Noise impacts can include unwanted or unpleasant sound perceptible Waste management is a key issue to be addressed by humans as well as vibration and sound below or in the context of a growing population. It is above the audible frequency range. estimated that the total solid waste generation in the Perth and Peel regions in 2013–14 was Development can reduce the impact of noise by: approximately 6.7 million tonnes and, with a • using best practice noise management for all population of 3.5 million, waste generation could noise forms, to minimise impacts on human be approximately 9.7 million tonnes per year or health and amenity; more.172 The WA Waste Authority has estimated that between 34 ha and 273 ha of land would be • achieving compliance with the noise needed to accommodate waste facilities to meet the regulations or State Planning Policy 5.4 Road And landfill diversion targets in the WA Waste Strategy.173 Rail Transport Noise And Freight Considerations In However, more detailed modelling is still required Land Use Planning where applicable, and other and these figures should be used with caution. accepted standards; and • addressing their contribution to cumulative Landfills and other waste facilities have the potential noise emissions.171 to lead to land contamination and water and air pollution as well as raising health and amenity The major sources of noise to be considered concerns for surrounding communities.174 Closure of through strategic planning are: waste facilities also raises the issue of contamination • noise from industrial estates; clean-up, remediation, and rehabilitation. • transport noise from major roads, passenger The Government’s waste strategy supports a and freight rails; and significant increase in diversion of waste from • aircraft and airport noise. landfill. In 2013–14, about 39 per cent of resources were extracted from the waste stream across the The EPA expects that future development decisions State. The rest of the material, over four million should take account of cumulative noise emissions tonnes, was lost in landfill. The potential value of from all major sources so there are no adverse these resources each year – including avoided impacts on the human health and amenity of landfill costs and the final market value of materials the community. New and expanded industrial – runs into hundreds of millions of dollars. Increased estates will need to demonstrate that the number diversion rates would deliver significant economic and sound levels of expected industry types will and environmental benefits. not exceed standards, as well as providing for 68 Interim strategic advice for the Perth and Peel regions
While industrial zoned land is the most common the consideration of incorporating heritage areas location for waste facilities, there are a number of within open space and the development of joint existing waste facilities within the Perth and Peel management arrangements. regions in areas zoned Rural or Urban and areas reserved for State Forests, Parks and Recreation, or Public Purposes.175 Current WAPC policies Amenity and landscape values and strategies do not specifically address waste Landscapes and landforms are important for facilities but allow for certain waste facility types enhancing visual amenity, contributing to and to be considered within the definitions of Industry creating a sense of place, and connecting people 176,177 and Essential infrastructure. Planning for to the places in which they live. Landscapes, rivers appropriate waste and recycling facilities needs to and wetlands have cultural importance as well as identify suitable land with appropriate buffers from ecological value. residential areas. Regionally significant landscapes are areas of land As the population grows, the market opportunities considered to be of regional significance due to will also grow to make better use of resource their visual, cultural, and natural landscape qualities. recovery for recycling and composting. There needs These include: to be greater emphasis on avoidance and reuse to reduce the reliance on landfill in the Perth and Peel • a typical example of regional landscape regions. character contributing to sense of place; • a unique, rare, or threatened example of The EPA believes there are opportunities for waste- landscape character type; derived products to be used to replace basic • heritage values – cultural and geo-heritage raw materials (for example, as fill or construction including recognised and protected sites as well products). The EPA notes that the Department of as unprotected areas; Environment Regulation is developing an end-of- waste framework to encourage the use of waste- • scenic values – important views and derived materials (WDMs) in circumstances where experiential qualities; and their use reduces the demand for raw materials and • tourism and recreational values. fossil fuels, and does not cause an unacceptable risk to the environment or human health. These The EPA acknowledges that high priority regionally guidelines include: significant landscapes and landscape values are • Guidance statement: Regulating the use of waste- identified in the draft Sub-regional Planning derived materials (November 2014) Frameworks. • Submitting an application for the use of waste- The careful siting and design of development also derived materials (case-by-case determination) needs to be considered at more detailed stages of (July 2015) planning so as not to detract from landscape and • Material guideline: Construction products amenity values. There may also be opportunities (December 2014) to enhance amenity values through innovative • Material guideline: Clean fill (December 2014). urban design, selection of materials, and landscape rehabilitation. Impact on Aboriginal heritage from The development of a Green Network covering the future development entire Perth and Peel regions is central to identifying and protecting regional landscape values, Industrial and urban development is a major promoting connectivity and contributing to the pressure on Aboriginal heritage in the Perth regions’ sense of place. Access to high quality green and Peel regions.178 Natural features which have spaces provides multiple environmental, social, and Aboriginal cultural significance will need to be economic benefits. This includes improving amenity, considered in order to meet the EPA’s environmental human health and wellbeing, and mitigation of the objective for the heritage factor. urban heat island effect. The EPA notes that the State Government’s Aboriginal Heritage Due Diligence Guidelines promotes upfront consultation with the relevant Aboriginal people.179 In the Perth and Peel regions there are three traditional language groups which should be consulted to identify and resolve Aboriginal heritage requirements. A variety of strategies for avoiding or limiting disturbance to sites may be possible depending on the specific cultural values or associations, but may include
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Sea
71 Sea
The EPA’s aim for the sea theme is to ensure significant marine values are protected from the indirect impacts of future development.
Background and significant marine points to reduce marine impacts to water quality, values in the Perth and Peel regions benthic primary producer habitat, and marine fauna. Development of urban and industrial areas will Future development is likely to have both direct require effective stormwater management (as and indirect impacts on the coastal and marine outlined under Water). This is effectively achieved environments. As the population grows there through the implementation of the WAPC’s Better will be increased recreational use of the coastal Urban Water Management framework. Stormwater environment, including fishing, boating, beach- discharge to the marine environment causes going, and swimming. These are all recreational uses impacts to marine environmental quality. Ensuring that the people of the Perth and Peel regions enjoy that planning mechanisms are in place to manage and – for some – part of the reason they choose to stormwater will reduce any cumulative marine live where they do. It will be important to ensure impacts from stormwater discharge. that the ecological and social values of the marine Agricultural and horticultural activities can use environment are able to be maintained as the large amounts of water, fertilisers, and pesticides. population of the regions increases. If not managed appropriately, agricultural Activities that occur on the land have consequential chemicals – particularly nutrients – can leach into impacts on the marine environment. Many of the groundwater and eventually make their way the issues identified in the other factor themes, if to estuarine and marine waters, with consequent addressed, will reduce the marine environmental impacts related to nutrient enrichment (e.g. algal impacts. These include solid waste and stormwater blooms, toxic algae, de-oxygenation events and, in management, minimising vegetation clearing, and extreme cases, fish kills). catchment management of nutrient impacts to Perth has one of the highest boat ownerships per waterways and estuaries. head compared to other Australian cities. This With an increased population there will be an creates a need for appropriate boat-launching increase in the amount of solid and liquid waste facilities and coastal marinas. With the high demand produced. Poor waste management can affect the for coastal living, there is likely to be an increasing marine environment either from direct discharge demand for coastal developments of mixed use, of treated wastewater, or from nutrients and other such as marinas with urban and commercial contaminants leaching through the sandy soils that development incorporated in their design. As seen exist in the Perth and Peel regions. in past EPA assessments of the Mangles Bay and Point Grey marinas, these kinds of developments As water availability decreases and there is an have a high degree of community interest and increased uptake of alternative water sources, complex environmental issues to resolve. It will be treated wastewater will become a valuable important to lay the foundations of a framework resource. Increasing the amount of wastewater that will ensure future environmental assessments that is recycled could reduce the extent of further have the necessary baseline information to assist wastewater outfalls that would otherwise be decision making. required for a city of 3.5 million people. This will lessen the future impact on the marine environment The WAPC and the Department of Planning have from wastewater discharge. It is likely, however, that an established policy and guidance framework for further wastewater discharge will be necessary and managing impacts to the coastal environment. it will be important to plan the location of discharge State Planning Policy 1.8 Canal Estates and Artificial
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Waterway Developments (SPP 1.8) is the key planning that identify environmental quality objectives and policy for the assessment and management of other environmental outcomes that should guide canal estates and artificial waterways180 and State acceptable development. Planning Policy 2.6 State Coastal Planning (SPP 2.6) is the key planning policy for managing issues in Marine protected areas (Marine Park 181 the coastal environment . SPP 2.6 addresses land areas) use planning and development issues specifically as they relate to the protection and management Nearby development should be consistent with the of the coast. The existing framework can be used objectives set out in the management plans for the to ensure that development is sited in the most Shoalwater Islands Marine Park, Marmion Marine appropriate locations to avoid impacts such as Park, and the Swan Estuary Marine Park. coastal erosion and sea level rise. The scope of this strategic advice does not include Cockburn Sound point source discharges. As with the air point source emissions, proposals that involve point Cockburn Sound supports a variety of marine source discharges to the marine environment will values and industrial uses. The Cockburn Sound State be dealt with on a project by project basis through Environment Policy provides the policy framework the normal assessment and approval processes. for the environmental management of Cockburn Similarly, the assessment of port infrastructure, Sound and its catchment. fisheries, and aquaculture activities is also beyond the scope of this advice and will not be considered High areas of human use as part of the Strategic Assessment of the Perth and Peel regions. There are key areas where people access and use the marine and coastal environments, such as boat The part of the marine environment that will be launching facilities, public beaches, and recreational covered by this advice is State waters, but only for and commercial fisheries. Impacts should be land-based development with indirect impacts on managed to ensure marine environmental quality is marine waters. Rottnest Island is not part of the maintained to support these uses in those areas. Metropolitan and Peel Region Schemes so is not included. The type of proposed development that is the subject of the Strategic Assessment of the Perth Fish habitat protection areas and Peel regions is predominantly land-based and Fish habitat protection areas are important for will have limited direct impact on the sea factors. ensuring the continued diversity and viability of This advice, in relation to the sea factors, will be fish. Often these areas are important for recruitment largely based on indirect impacts. such as fish nurseries. Areas with significant marine values that need to be considered in the final Sub-regional Structure Wildlife usage and breeding areas Plans and the Strategic Conservation Plan are outlined below. Future planning of development Areas important for the feeding and resting of and infrastructure should consider avoidance and marine fauna include Penguin Island, Seal Island, minimisation of impacts to these areas. There are Garden Island, Cockburn Sound and the Swan River. existing management plans and policy frameworks
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Breeding areas are vital to the reproductive success management and reinforcement of the waste of marine fauna and future development should avoidance hierarchy will minimise pollution to the avoid these areas. Examples in the Perth and marine environment. Increasing the avoidance and Peel regions include the Little Penguin colony recycling of wastes will reduce the need to expand on Penguin Island and Cockburn Sound for Pink the capacity of existing landfill in locations that Snapper. are close to the coast. Shifting to waste-to-energy plants will also reduce the need for new landfills to meet the increased demand for waste removal while Benthic primary producer habitat producing an alternative source of energy. Benthic Primary Producer Habitats are the basis of most marine food chains and provide a benthic Future infrastructure development structure that supports a wide range of marine species. They are of fundamental ecological and siting of marine and coastal importance and the potential consequence of their developments loss for marine ecological integrity is significant. Future development that may directly impact the Marine development proposals may result in some EPA’s sea factor includes outfalls, boat-launching and loss of these important habitats. Demonstration marina facilities, coastal access, recreational boating of effective avoidance and mitigation of impacts and fishing, solid waste disposal, and expansion of are essential to meeting the EPA’s environmental port facilities. These types of development are not objectives for this factor. within the scope of the Strategic Assessment of the Perth and Peel regions, but can result in significant Key issues and responses environmental impacts on marine waters and can also be managed through an environmental quality Groundwater impacts to coastal waters monitoring and management framework. The Perth and Peel regions are underlain by a Coastal infrastructure (e.g. brine outfalls for shallow surficial groundwater layer that is recharged desalination) should be properly designed and by rainfall and that generally flows toward the sited to avoid and minimise impacts on the coastline, but may locally discharge to wetlands, environmental values which represent current and rivers, and estuaries before discharging to the future uses of the marine environment. Similarly, ocean. Groundwater quality is affected by land use potential locations for wastewater treatment activity and, in extreme circumstances, significant plant discharges should also be sited to avoid and contamination of groundwater can occur (e.g. spills, minimise impacts on the established environmental uncontrolled industrial discharges, and intensive values. Guidance for how the environmental values land uses). Contaminated groundwater plumes may can be protected has been provided in the EPA’s indirectly reach marine waters after interception recently developed Environmental Assessment by rivers, wetlands or estuaries, or may discharge Guideline for Protecting the Quality of Western directly to the marine environment. Although there Australia’s Marine Environment (EAG 15).182 are a significant number of known contaminated groundwater plumes, there is very limited Proposed developments such as marinas and understanding of the processes involved in the boat-launching facilities should be located so subsequent exchange of groundwater contaminants as to avoid and/or minimise impacts to benthic with the marine environment. primary producer habitats, to marine fauna such as penguins, cetaceans and the Australian Sea The impact of developments on groundwater Lion, and to important breeding areas (e.g. for Pink quality and quantity, and the subsequent down- Snapper and Blue Manna Crab). stream effects on freshwater, estuarine and eventually marine environments, should be taken into consideration by proponents and regulators. Dealing with uncertainty For example, nutrients are a common contaminant The EPA is aware that the relationships between of groundwater under some agricultural, land use activities and potential downstream effects horticultural and urban developments. Groundwater in the marine environment are not fully understood, plumes in coastal regions with elevated levels and encourages the use of the precautionary of nutrients are thought to be a significant principle where there is insufficient information nutrient source to near-shore marine waters, with or understanding to determine the consequences consequent flow-on effects to the benthic algal and of development proposals to downstream seagrass communities they support. environments.
A landfill facility located close to the ocean can Where there is significant uncertainty over likely also have a significant impact on groundwater and, environmental outcomes, proponents would subsequently, the marine environment. Appropriate be expected to provide most likely best and 74 Interim strategic advice for the Perth and Peel regions most likely worst-case scenarios to identify the recognising current and projected future societal range of potential impacts. Proponents would uses. The framework is based on the principles then be expected to develop an environmental and guidelines of the National Water Quality quality monitoring and management plan that Management Strategy, with particular regard to the will account for all scenarios and ensure that any Australian and New Zealand Guidelines for Fresh and impacts are managed to acceptable levels. The EPA’s Marine Water Quality.183 environmental quality management framework outlined in EAG 15 accounts for predictive Environmental values that are important for a uncertainty by establishing environmental quality healthy ecosystem or for public benefit, welfare, objectives for the affected area up-front and safety or health, and which require protection then taking a risk-based approach, establishing from the effects of pollution, waste discharges environmental quality guidelines that provide early and deposits, form the basis of the framework. warning of an objective not being achieved. If the The approach relies on spatially mapping where guideline is exceeded, a more focused assessment environmental values and objectives – agreed of environmental quality is triggered, to determine through community and stakeholder input – should whether the objective will be met or whether an be met. It also entails a risk-based approach to unacceptable impact is likely. monitoring and management that addresses the cumulative impacts of both direct and indirect Where impacts on marine environmental quality are pressures on environmental quality. Through this likely, there should be sufficient baseline monitoring approach, impacts can be monitored and managed data to seasonally characterise background quality in a coordinated manner that aims to achieve so that suitable environmental quality criteria can agreed values and objectives for the regions that be established and changes and trends can be include a healthy and resilient marine environment. determined. The EPA recognises that its working document A well designed environmental quality monitoring Perth’s Coastal Waters: Environmental Values and and management program will identify any Objectives184 should be updated in accordance with unexpected environmental impacts resulting from the environmental quality management framework individual development proposals, or from the outlined in the EAG 15 and extended to cover the cumulative effects of upstream activities, so that Peel component of the Perth and Peel regions. management strategies can be developed and implemented to rectify the problem(s). Recommendation 22: that the State Government request the EPA update and extend the The environmental quality management framework environmental quality management framework outlined in the EAG 15 would provide the policy outlined in the EPA’s document Perth’s Coastal mechanism necessary to assess and manage Waters: Environmental Values and Objectives to future impacts (both direct and indirect) in the include all marine waters of the Perth and Peel coastal waters of the Perth and Peel regions, regions so that cumulative impacts in the marine with the objective of maintaining the integrity environment of an increasing population can be and biodiversity of the marine ecosystems, while managed appropriately.
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76 Interim strategic advice for the Perth and Peel regions
Activities impacting on the environment (Classes of Action)
The State component of the Strategic Assessment of the Perth and Peel regions is assessing the likely impacts on the environment resulting from certain development activities (known in Commonwealth terms as classes of action): • Urban, industrial and rural residential development; • Basic raw material extraction; and • Infrastructure development. These activities cut across multiple environmental factors and have the potential to create very significant cumulative impacts. This chapter addresses each of the activities separately to advise and recommend on further avoidance, mitigation and offsetting of the likely impacts. 77 Classes of action: Urban, industrial and rural residential development
Urban, industrial and rural residential development – future considerations
Background Key issues and opportunities
The draft Sub-regional Planning Frameworks The greatest opportunity to streamline assessment identify the need for a more consolidated urban and approvals processes, while ensuring form, with 47 per cent of growth facilitated via infill environmental outcomes, lies with the urban, and the remaining 53 per cent from greenfield industrial and rural residential classes of action. development. This move from business-as-usual to Although not always visible to the public, as some a constrained development approach not only has approvals occur at the scheme level, development economic and social benefits, such as integrated may require environmental assessment under the transport solutions and more efficient construction, EP Act (Part IV or Part V) and the EPBC Act, as well as but allows for a more strategic environmental planning approval under the P&D Act. This sequence outcome to be achieved. The EPA is highly of approvals can be quite inefficient and result supportive of the more compact (connected) city in a sub-optimal outcome for the environment, that the draft Sub-regional Planning Frameworks especially where environmental approvals occur late propose. in the process (i.e. at subdivision stage).
The areas of expansion have been determined Currently, all schemes and scheme amendments, through a whole of government process, taking regardless of whether they are likely to have an into account a variety of factors in determining environmental impact, must be referred to the suitability, including the avoidance of significant EPA to determine whether or not to assess the environmental values on a regional scale. scheme or scheme amendment. The Department of Planning and the Office of the Environmental As part of implementation of the subsequent Protection Authority have been developing approval process of the Strategic Assessment of the amendments to the P&D Act and EP Act. These Perth and Peel regions, the environmental impacts amendments are being drafted to the Acts to allow may be further refined on a local scale, generally for regulations to provide referral exemptions for through the subdivision approval processes. certain types of schemes and scheme amendments. The matters to be dealt with at this scale may not be significant environmental issues, but still While the initial scope of the works is limited to require sensible planning to produce sustainable schemes and scheme amendments that are of no outcomes. For example, in developing a district environmental consequence, this mechanism could structure plan, avoiding any resource enhancement be extended to provide an exemption from referral wetlands and incorporating these into the design for those schemes and scheme amendments which of the development provides water management conform to the Strategic Assessment of the Perth solutions and amenity value, while also producing and Peel regions for the urban, industrial and rural environmental benefits for biodiversity. residential classes of action.
To support this approach, and to provide surety for local environmental outcomes: • the WAPC and the state’s environmental agencies should work together to develop guidelines to help planners achieve sustainable outcomes at the structure planning and subdivision design stage; and 78 Interim strategic advice for the Perth and Peel regions
• the WAPC’s policy suite should be reviewed This is not a problem unique to the Strategic and updated to ensure it is clear, robust and Assessment of the Perth and Peel regions, nor consistent with the Strategic Assessment of the is it specific to Western Australia. Some local Perth and Peel regions. governments in Perth have already faced this issue and it has also been contemplated in other states. This will empower decision-making processes This should be investigated further to determine through the P&D Act, as well as provide clear the potential for a single mechanism to apply to direction to developers and local government as provide certainty to the process. Western Australia to the expectations of the WAPC. Importantly, this already has the developer contribution levy which will give the EPA confidence that good planning applies to infrastructure and a similar model may be decisions will produce the dual benefit of positive appropriate for environmental matters. environmental outcomes. Recommendation 24: that the WAPC should Recommendation 23: that local environmental consider policy and regulatory options to address outcomes on urban, industrial and rural residential the delivery of environmental and development land are implemented through structure plan and outcomes on land parcels with fragmented subdivision design, supported by contemporary ownership. policies and guidelines.
Fragmented land ownership A key planning issue associated with consolidating the outward growth of Perth will be an increase in structure planning across land parcels with fragmented ownership. That is, district and local structure plans will increasingly be prepared that result in inequitable distribution of developable and non-developable land. For example, if a district structure plan covers lots owned by ten different owners, and one lot is identified as an area to be retained for conservation, then one owner may disproportionately bear the cost of environmental protection.
It is recommended that Government considers how to manage this issue, as it has the potential to undermine the goals of the Strategic Assessment. If unmanaged, it is likely that development (environmental impacts) will occur, and the environmental actions (benefits) may not be implemented.
79 Classes of action: Basic raw material extraction
Basic raw material extraction – future considerations
Background extractive industry licenses‡. These extraction areas outside of SGS nodes may or may not The WAPC’s State Planning Policy No. 2.4 Basic Raw occur on regionally significant basic raw Materials185 defines basic raw materials as sand material areas. (including silica sand), clay, hard rock, limestone • Regionally significant basic raw material areas. (including metallurgical limestone), and gravel, and other construction and road building materials. Each of these groups can be further classified by These materials are produced relatively cheaply, different basic raw material commodity types; sand, with the major cost being the transport to the limestone and lime sand, clay, and rock aggregate. construction site. Basic raw materials extraction sites are therefore required close to established and Key issues and opportunities developing parts of the metropolitan area, to keep down the costs of land development and contribute The EPA considers the three priority issues for to affordable housing. consideration of basic raw material extraction to supply development for the Perth and Peel The availability of basic raw materials close to population at 3.5 million are: metropolitan areas is declining as these areas • the need for consistent and improved expand. Many sites which would otherwise be regulation across tenement types to facilitate suitable occur in locations where the area has data collection and better inform demand and either been zoned for urban/industrial or already supply forecasting; developed, commonly referred to as ‘sterilised basic • basic raw material extraction footprints to be raw materials’. Basic raw materials also occur in supported by demand management policy areas with significant environmental values, these responses, including the use of waste-derived mainly being remnant vegetation, fauna habitat, products as an alternative where possible; and and wetlands. Many of these areas are already recognised as a Bush Forever site, or reserved as • high biodiversity values which have been Parks and Recreation, Regional Open Space or State avoided are to be provided secure protection. Forest in the planning schemes. These planning The planning and consideration of basic raw and environmental impacts preclude or severely material resource allocation for a population of constrain extraction, presenting Government with a 3.5 million in the Perth and Peel regions presents challenging issue over the past decade. complex challenges, but also great opportunities The Department of Mines and Petroleum has for strategic outcomes. The current approach identified three different groupings of basic raw to residential, industrial and infrastructure materials within the Perth and Peel regions: developments and construction practices in the Perth and Peel regions is dependent on use of • Strategic Geological Supply (SGS) Nodes, which basic raw materials in high volumes. This is due to are strategic groupings of regionally significant basic raw materials that have been identified as † the highest priority areas for extraction due to Mining leases and exploration tenements are granted on their collective volume. crown land and administered by the Department of Mines and Petroleum through the Mining Act 1978. • Existing basic raw material extraction areas ‡Extractive industry licenses are granted on freehold outside SGS nodes that have active or pending land by Local Governments under delegations from the † mine leases and exploration tenements or Western Australian Planning Commission. 80 Interim strategic advice for the Perth and Peel regions
a number of factors including industry preference, Key considerations relevant to basic raw materials local government regulation and consumer are the implications for housing affordability and expectations. Large volumes of sand are used to fill public infrastructure costs. As basic raw materials are low lying areas to create groundwater separation. bulk commodities, the cost of transport from quarry Urban development techniques typically are a site to where the basic raw materials are required is ‘clear and fill’ style, with ‘benching’ of limestone a significant cost factor for development. Access to blocks for retaining and up to two metres of sand low cost basic raw materials is therefore dependent for fill. The dominant housing style of detached on minimising distances from the resource to the dwellings typically consists of a sand pad, concrete development site. This consideration is central to foundation, double brick and sometimes a clay the rationale for having basic raw materials as close or concrete tile roof. Infrastructure development as possible to the development areas. is also very basic raw material intensive requiring sand fill for overpass and ramp construction, rock The Perth and Peel regions need a change of or limestone base material, and basic raw material approach to development if basic raw material use construction materials. is to be reduced.
The EPA considers basic raw materials should The EPA recognises that there will be some be used efficiently and for the most important unavoidable impacts to significant environmental uses, recognising supplies are not inexhaustible. values as a result of basic raw material extraction. In coming years, changed practices may reduce However, the Strategic Assessment of the Perth and demand and alternative products may come on the Peel regions presents the opportunity to make trade- market. offs, and can achieve overall positive environmental outcomes compared to what could be achieved Initial projections of the future supply and demand through a project by project approach. A balance is for basic raw material resources in the Perth and needed between significant environmental values Peel regions by the Department of Mines and and basic raw material areas. The EPA recommends Petroleum indicate that local basic raw material the environmental impact assessment of the resources will become scarce as the Perth and Peel Perth and Peel regions focus on strategic supply regions expand to 3.5 million. This is particularly areas (SGS nodes) and prioritise resolving land use relevant for limestone and sand supplies in the constraints in these areas. This will maximise basic southern corridor. raw material supply and provide the opportunity for strategic environmental solutions, as well as focusing Basic raw material supply constraints in Perth and impact in a few areas rather than multiple impacts Peel have been significantly exacerbated by a over the Perth and Peel regions. lack of sequential land use planning (e.g. zoning and developing land before basic raw material The WAPC’s State Planning Policy 2.8 Bushland Policy extraction has occurred). A significant portion of for the Perth Metropolitan Region186 also provides for potential basic raw material supplies are currently resource extraction proposals to seek a reasonable ‘sterilised’ due to existing urban and industrial balance between conservation and development or developments and encroachment, the majority resource extraction through a negotiated outcome, of which occurred in the 1990s in the north-west having regard for the specific conservation values corridor. involved. The Strategic Assessment of the Perth and Peel regions provides the opportunity to implement reasonable balances outcomes. 81 Classes of action: Basic raw material extraction
Environmental issues Currently, basic raw material developments will need to continue to be assessed under Part V - Basic raw material resources and significant Division 2 (permits for clearing of native vegetation) environmental values have a high degree of overlap, of the EP Act. However, amendments to the Mining given they largely occur within the same areas. Act 1978 (and consequential amendments to the This makes reconciliation between environmental EP Act) currently before Parliament would allow outcomes and meeting the demand for basic raw for the clearing of vegetation to be regulated materials challenging. under the Mining Act. This would provide for basic Key environmental values that occur within basic raw material developments on Crown land to be raw material extraction areas include: assessed under the Mining Act, without the need for further environmental impact assessment • vegetation complexes of low representation; where clearing is the only significant environmental • threatened ecological communities; impact. This would allow for part of the basic raw • rare and threatened flora species; materials ‘class of action’ to be streamlined without • rare and threatened fauna species habitat; compromising the environmental outcome. • Bush Forever sites; and In this case, the avoidance areas have already • Conservation Category Wetlands. been master planned, and the onsite minimisation actions, rehabilitation and offset requirements Impacts to these values as a result of basic raw could be placed on proponents via the Mining Act material extraction would be considered significant approval or, for private land, via Part V Division 2 of by the EPA. Additional consideration should be the EP Act. given to the impact of basic raw material extraction on surrounding sensitive land uses and amenity. The Department of Environment Regulation and the Department of Mines and Petroleum will need To continue with the current construction ‘basic to work together to ensure that rehabilitation raw material intensive’ approach would require a standards and offsets are applied consistently across large amount of clearing of native vegetation which the two assessment and approval processes. A supports significant environmental values. The EPA key aspect to these processes will be the need for considers that, while most mined areas in the Perth compliance activities to ensure that the expected and Peel regions can be rehabilitated with native rehabilitation works result in the re-creation of species, there are enduring impacts on habitat and environmental values. There should be close links biodiversity, soils, water, and recreation values. between the rehabilitation of these sites and the rehabilitation offsets that will occur as part Recommendation 25: that the State Government, of the whole Strategic Assessment. There will be in finalising activity footprints for the extraction valuable lessons learned and experience gained of basic raw materials, should preference from the major rehabilitation offsets that should existing cleared land to avoid clearing high value be passed onto proponents to provide the greatest vegetation. opportunity for successful rehabilitation in the Perth The EPA also considers that the best way to conserve and Peel regions. key environmental values is in situ. Rehabilitation is a mitigation measure to manage impacts., and Planning for basic raw material extraction areas with key environmental values need to be avoided in the first instance. Offsets should only be A master planning exercise was carried out between used as a last resort, and only be considered after the Department of the Premier and Cabinet, the the mitigation hierarchy has been applied. The EPA Department of Planning, the Department of Mines adopts a mitigation hierarchy consistent with the and Petroleum, the Office of the EPA and the WA Environmental Offset Guidelines187 for application Department of Parks and Wildlife, to determine in the environmental impact assessment process. areas within which basic raw material extraction Avoidance, minimisation and rehabilitation efforts may occur under the Strategic Assessment of must be applied before offsets are considered for a the Perth and Peel regions. This master planning proposal. focused on basic raw materials in the SGS nodes. It aimed to balance the avoidance of matters of Some conservation reserves that have been national environmental significance and other established in the past in the Perth and Peel regions significant State environmental matters against local (especially in the North West Sub-region) conflict basic raw material supply needs. with proposed basic raw material extraction areas. However, these have already been set aside to The EPA notes that some outcomes of the master compensate for previous urban and industrial planning for basic raw materials have not been development, and basic raw material extraction reflected in the draft Sub-regional Planning should not compromise these conservation areas. Frameworks.
82 Interim strategic advice for the Perth and Peel regions
Recommendation 26: that the WAPC should ensure the Sub-regional Structure Plans or other If the urban development appropriate planning instruments are consistent with and reflect interagency master planning originally proposed ... at undertaken for basic raw materials. East Keralup was to be Key outcomes from the urban and industrial master planning meant that strategic planning resulted realised, it would require in the reduction of expansion areas that required excessive basic raw materials. Significant efforts 25 million cubic metres (or were made through the master planning process to approximately 2.5 million avoid development in low lying areas and maximise the extraction of remaining strategic basic raw truck loads) of fill sand... materials within the Perth and Peel regions.
For example, the Gnangara area has the potential For extraction within private land, the P&D Act to supply most of the Perth and Peel regions’ gives the WAPC the ability to delegate its powers projected sand demand for well beyond 20 years, to local governments under a notice of delegation. predominantly from within the pine plantations. This notice effectively gives local governments However, this resource would need to be the power to determine planning applications for transported to the high demand areas in the South resource extraction. There is generally no specific Metropolitan area due to a lack of sufficient sand time duration for these applications, however resources south of Perth. If the urban development they are usually granted for up to five years or on originally proposed by the Department of Housing a yearly basis. Clearing within private land also at East Keralup was to be realised it would require requires a clearing permit from the Department of 25 million cubic metres (or approximately 2.5 million Environment Regulation in accordance with the truck loads) of fill sand due to winter surface provisions of the EP Act. Significant proposals are saturation. This represented 20 per cent of all future referred to the EPA for assessment under Part IV of fill sand required to support the expansion of the the EP Act. Perth and Peel region to 3.5 million people. The EPA also understands that the capturing of data The development of East Keralup had been on basic raw materials extraction is not consistent identified as one of the single largest future sources across public and private land, with only the of residual environmental impacts across the Perth Department of Mines and Petroleum capturing data and Peel regions. Based on these implications it has for extraction occurring on Crown land. Improved been proposed that the Department of Housing not data capture across all extraction areas would proceed with the development of East Keralup. The greatly improve knowledge on the availability of EPA supports the proposal to not proceed with the basic raw material resources in the Perth and Peel development of East Keralup, and would support regions. the development of land closer to existing basic raw materials which would not require clearing of native There is a large contrast between basic raw vegetation. material extraction regulations for Crown and private land. Environmental values are generally Policy initiatives not considered up-front before the application for a mining tenement or extractive industry licence Extraction on Crown land is administered through but considered during subsequent environmental the Department of Mines and Petroleum’s mine assessment and approval processes. tenement system, and proponent tenements are provided for 22 years with conditions. Clearing of In order to manage basic raw material demand, the vegetation for extraction is also administered by EPA considers that major reform initiatives could the Department of Mines and Petroleum under include: delegation from the Department of Environment • regulatory reform to promote the use of Regulation in accordance with the provisions alternative materials, including waste-derived of the EP Act and the Environmental Protection material (construction and demolition (Clearing of Native Vegetation) Regulations 2004. waste and mine residues), and alternative A memorandum of understanding currently exists development practices to reduce reliance between the Office of the EPA and the Department on basic raw material resources. These could of Mines and Petroleum, which requires the include pole housing instead of cement slab, Department to forward proposals that are located prefabricated housing, and development that in specific environmentally sensitive locations for is sympathetic to the surrounding landscape assessment under Part IV of the EP Act. rather than fill and bench techniques;
83 Classes of action: Basic raw material extraction
• avoiding Metropolitan and Peel Region Scheme of the Perth and Peel regions. Sequential land use (MRS/PRS) rezoning of land for urban or and establishment of sufficient buffers to sensitive industrial development where it has excessive land uses from basic raw material extraction areas draw upon remaining basic raw material will be a key aspect of this. The EPA expects that the resources; outcomes of the Strategic Assessment of the Perth • reviewing local government and Department and Peel regions will be incorporated in the revised of Water regulations and policy to rationalise State Planning Policy 2.4, and that the review will fill requirements for new land developments reduce uncertainty and conflicts for basic raw (e.g. for flood mitigation); material extraction operators. • greater sequential land use of basic raw material State Planning Policy 2.8 identified the need for extraction areas where applicable through State ‘negotiated solutions’ for basic raw materials and Planning Policy and the MRS/PRS; the outcomes that will be achieved through the • the collection and monitoring of basic raw Strategic Assessment of the Perth and Peel regions material production data to allow Government and Strategic Conservation Plan will represent these to more accurately forecast and react to future negotiated solutions. The SPP will then need to be demand and supply requirements; and updated to reflect these outcomes. • the establishment of defined land use planning Recommendation 28: that the State Government buffers for new sensitive land uses within close develop a contemporary Government policy and proximity to strategically important basic raw regulatory regime for basic raw materials. material areas to ensure they are not sterilised. a. The Department of Mines and Petroleum to The EPA supports the Department of Environment investigate policy options to capture data on Regulation’s material guidelines on construction the availability, demand and supply of basic products and clean fill that provides guidance as to raw material resources on private as well as when it will regard road base, drainage rock, and public land. clean fill generated from waste as fit for alternative b. The WAPC to review and update State use. The EPA also understands that a material Planning Policy 2.4 Basic Raw Materials to guideline for manufactured fill is being prepared implement negotiated solutions for basic raw and will establish specifications, authorised uses materials extraction sites, including managing (following testing), and recordkeeping requirements urban encroachment. for waste-derived fill that does not meet the clean c. The State Government, in consultation with fill material guideline. the WA Local Government Association, to The EPA is aware that the Department of Housing investigate policy, regulatory, and behavioural and Land Corp are already proposing or trialling barriers to sequential land use and implement innovative building techniques that will reduce the identified solutions. use of basic raw materials. The establishment of ‘demonstration sites’ would be desirable to show Rehabilitation and closure what can be achieved. The EPA strongly supports corporate commitments Recommendation 27: that the State Government to undertake rehabilitation after mining or support the development of demand quarrying activities have been completed. It is management policy responses to ensure that the expectation of the EPA that basic raw material basic raw materials are used sustainably. extraction sites without an agreed sequential a. Promote novel development approaches in land use will be rehabilitated to an approved the urban and industrial areas to efficiently standard commensurate with the final land use and use basic raw materials and minimise demand. supported by a contemporary policy and regulatory b. Promote the use of waste-derived products framework. (such as mining and industrial by-products and construction and demolition waste) as a replacement source of raw materials and to modify or recreate landforms for approved land uses.
The EPA also understands that the Department of Planning intends to undertake a review of State Planning Policy 2.4 Basic Raw Materials. An outcome for the review will be to establish land use controls to prevent the sterilisation of basic raw material areas identified through the Strategic Assessment
84 Interim strategic advice for the Perth and Peel regions
An example of sand-fill for urban development in low-lying areas.
Photo: Office of the EPA 85 Infrastructure
Infrastructure – future considerations
Background conservation that has been an issue for decades. The Strategic Assessment of the Perth and Peel regions As noted in the draft Sub-regional Planning provides a unique opportunity for this to be realised. Frameworks, the achievement of a more compact It will provide an overall better environmental urban form will have many benefits including outcome than could be achieved on a project by more efficient use of urban land and infrastructure, project basis. and improved access to public transport and The advice given here considers both the draft Sub- facilities. It will also support the uptake of active regional Planning Frameworks and the parallel work modes of transport. These benefits will support by agencies in mapping infrastructure for a city of the achievement of air quality, human health and 3.5 million. amenity objectives. The efficient use of land and infrastructure is also a significant opportunity to avoid impacts to biodiversity and meet conservation Key issues and opportunities objectives. Cumulative environmental impacts In addition to a more compact urban form, the draft Sub-regional Planning Frameworks also have the Early analysis of the infrastructure footprint as a part objective of providing an efficient and effective of the Strategic Assessment of the Perth and Peel regional movement network that is integrated regions has indicated environmental impacts from with land use, while also seeking to encourage the footprint on regionally significant natural areas, the shared use of infrastructure corridors. The EPA conservation and resource enhancement category supports these overarching objectives. wetlands, and poorly represented vegetation complexes. It is understood that some of the corridors shown in the draft Sub-regional Planning Frameworks may There are a number of infrastructure proposals be subject to further review before the Frameworks that have conflicts with Bush Forever sites (and are finalised as structure plans. In addition, the EPA Conservation Category Wetlands) with the following understands the role of the Sub-regional Structure individual proposals being the most potentially Plans will be to provide strategic level guidance on significant: infrastructure investment and delivery and, as such, • the proposed East Wanneroo Rail alignment; there will be a degree of flexibility as to the final • the Whiteman to Yanchep Highway alignment location of corridors. (shown in the draft Sub-regional Planning Parallel to the development of the draft Sub- Frameworks as the East Wanneroo Bypass); regional Planning Frameworks, the EPA notes the • extension of the Joondalup rail alignment to work undertaken by Main Roads Western Australia, Yanchep; the Public Transport Authority, Western Power and • the Fremantle-Rockingham Controlled Access the Water Corporation at the request of the State Highway; Government, to map all regional road, rail, water, • the proposed Light Rail Depot, corner of Reid and energy infrastructure for a city of 3.5 million. Highway and Mirrabooka Avenue; and A strategic approach to infrastructure planning • the regional road between Sydney Road and will help reconcile the competing values of the proposed Whiteman to Yanchep Highway in infrastructure provision and environment Gnangara. 86 Interim strategic advice for the Perth and Peel regions
These six infrastructure proposals alone impact that alignment in any detail. The EPA expects that 17 Bush Forever sites. This is in addition to impacts the refinement of that alignment for inclusion in the from the extension of Rowley Road to the proposed Sub-regional Structure Plans will avoid and minimise Fremantle Outer Harbour Development and environmental impacts. the Perth-Darwin National Highway alignment, which conflict with one and nine Bush Forever The EPA is encouraged that the most critical of the sites respectively. The Perth-Darwin Highway individual conflicts between water, wastewater alignment is being assessed by the EPA in parallel and power infrastructure proposals with regionally with an assessment by the Commonwealth under significant natural areas, conservation and the EPBC Act. The Fremantle Outer Harbour resource enhancement category wetlands, and Development is being assessed by the EPA under poorly represented vegetation complexes have the assessment bilateral agreement between been addressed. This has occurred through the Western Australia and the Commonwealth. identification of alternative alignments or through appropriate justification in terms of co-location with The EPA is concerned about the alignment of the existing assets or siting in existing cleared areas. East Wanneroo Rail through Bush Forever sites 398 The EPA is also encouraged that the Department (Chitty Road Bushland) and 382 (Lake Pinjar). The of Planning is reviewing some of the ‘blue road’ EPA is supportive of the alignment of the Whiteman alignments shown in the draft Sub-regional to Yanchep Highway in the draft Sub-regional Planning Frameworks and looks forward to the Planning Frameworks as it follows the alignment outcomes that this review may achieve in further of Old Yanchep Road and consequently avoids the avoiding impacts to significant environmental fragmentation of those Bush Forever sites. values.
At its western end, the East Wanneroo Rail alignment The EPA understands that much of the infrastructure intersects Bush Forever site 384 (Neerabup Lake) footprint is indicative and will be subject to detailed and site 383 (Neerabup National Park). The EPA planning and design which will determine the final assessed Metropolitan Scheme Amendment 992/33 location and design of the individual infrastructure Clarkson-Butler in March 2000 (EPA Bulletin 971) proposals. The EPA identifies this as an opportunity which comprised a number of amendments for for impacts to be further avoided and mitigated rezoning and reservation including a road reserve before consideration is given to offsets. for the Neerabup Road East-West linkage. While the EPA of the time supported the road reserve, it stated Recommendation 29: that, in the finalisation of that any further proposals for crossing Neerabup the Sub-regional Structure Plans, the WAPC, in National Park would not be acceptable. The EPA consultation with relevant infrastructure agencies, recommends further consideration be given to the further considers and refines key infrastructure rail alignment to avoid crossing Neerabup National corridors to avoid and minimise environmental Park, including the potential to co-locate the rail impacts. with Hester Avenue. Recommendation 30: that, at the detailed The potential Perth-Bunbury Passenger Rail shown planning and design stages of individual in the draft Sub-region Planning Frameworks was infrastructure proposals, infrastructure agencies not presented in the spatial layer of infrastructure demonstrate further avoidance and mitigation for a city of 3.5 million at the time of compiling this before offsets are applied. advice and therefore the EPA has not considered 87 Infrastructure
Public drinking water sources the assignment of an appropriate value to the environment. In an address to the Environment Infrastructure needs to be compatible with public Business Australia Forum in 2010 on The Value of drinking water source areas noting the priorities the Environment, Treasury Secretary Dr Ken Henry‡ applied to these areas, the risk posed by the noted that a lack of accepted measures for valuing particular infrastructure, and any advice given to the environment: infrastructure agencies by the Department of Water on this matter. creates the risk that government policies and project approval processes will fail to get the balance right. Multi-use infrastructure corridors The assignment of an appropriate weighting to the environment in infrastructure planning is supported Co-location of infrastructure in shared corridors, by another key finding of the Infrastructure Australia where possible, will assist in minimising impacts Audit that: to the environment. The Strategic Assessment of the Perth and Peel regions is an opportunity to environmental considerations should form a elevate shared corridors as the preferred planning fundamental aspect of infrastructure project selection § approach. and planning processes.
The EPA is aware that there is a significant amount Other findings and observations made in the of work to be undertaken to better support and Infrastructure Australia Audit that are noteworthy facilitate co-location of infrastructure. The issue including the following in relation to the is complex because there are differing legal and consideration of the environment in infrastructure administrative arrangements for reserving, acquiring planning and assessment*: and funding corridors, and different timing needs, as More rigorous and transparent strategic planning well as safety and technical considerations. offers the potential to minimise project level disputes about the environmental merits and impacts of specific The EPA understands that none of the infrastructure projects… agencies directly involved in the Strategic A cohesive, transparent structure for managing Assessment of the Perth and Peel regions has a environmental issues transforms environmental formalised policy regarding the pursuit of shared assessments from a regulatory impost to a valuable corridor opportunities. forum for discussion of the environmental impacts of Recommendation 31: that the State Government projects as part of the planning and scoping process. further develop and implement its policy Western Australia, and particularly the Perth and framework to promote multi-use infrastructure Peel regions, requires an evaluation framework for corridors. critical infrastructure that ensures environmental assets are given an appropriate and consistent Innovation value in whole of Government decision making. As well as pursuing co-location, the EPA believes The WAPC’s Infrastructure Coordinating Committee there is a need for continued innovation in exploring may be the appropriate body to coordinate the and implementing best practice technologies and development of such a framework. design as part of avoiding and minimising impacts on biodiversity values and promoting sustainable Recommendation 32: that the State Government outcomes. The EPA encourages investigation ensure infrastructure corridor and siting options into how other jurisdictions in Australia and are evaluated through a transparent, whole of internationally deal with the challenges of government endorsed methodology that places infrastructure planning and provision in highly appropriate value on the environment. constrained urban environments. † Infrastructure Australia 2015, Infrastructure Australia Audit Rigorous and transparent planning - Our Infrastructure Challenges - Report– Volume 1 - April The EPA notes the key finding of the Infrastructure 2015, Infrastructure Australia 2015, p.7 Australia Audit with reference to governance and ‡ Henry, K 2010, ‘The Value of the Environment’, address to policy reform that: the Environment Business Australia Forum, 4 March 2010, accessed on 1 July 2015 at improvements in long-term infrastructure planning, http://archive.treasury.gov.au/documents/1747/PDF/ project appraisal and project selection, (including Ken_Henry_speech_to_the_Environment_Business_ the consistent use and transparent reporting of Australia_Forum.pdf. cost−benefit analyses) are necessary if Australian’s expectations are to be realised .† § Infrastructure Australia 2015, Infrastructure Australia Audit - Our Infrastructure Challenges - Report– Volume 1 - April The EPA supports the consistent use and transparent 2015, Infrastructure Australia 2015, p.8 reporting of cost-benefit analyses, including * ibid, p.8 and p.47 88 Interim strategic advice for the Perth and Peel regions
Traffic congestion in Perth Photo: Department of Transport 89 Section X
90 Interim strategic advice for the Perth and Peel regions
Implementation
91 Implementation
... there is an opportunity to avoid further environmental impact assessment of any proposals or schemes that conform to the strategic outcome, delivering a high level of land use planning certainty.
It is widely recognised in the practice of objectives are being achieved and that there are environmental impact assessment that strategic or processes and accountabilities for each of the ‘big picture’ approaches, rather than case by case implementation actions. assessments, can lead to more efficient planning and better environmental outcomes. The EPA Implementation of EPA considers that, should the overall environmental recommendations outcome of the Strategic Assessment of the Perth and Peel regions meet its objectives, there is an A number of the EPA’s recommendations can be opportunity to avoid further environmental impact implemented through existing assessment and assessment of any proposals or schemes that approval processes, supported by contemporary conform to the strategic outcome, delivering a policy and guidelines. high level of land use planning certainty. In order to allow this to occur, the EPA, and the public, While a broad scale avoidance exercise has need confidence that this strategic advice will be already taken place to avoid impacts to important implemented. environmental values, further mitigation will be applied at the approval stage consistent with best Ideally, the State’s implementation should follow practice and the goals of the strategic assessment. a similar path to the Commonwealth’s strategic This will further reduce impacts and deliver local assessment process under the EPBC Act, where there environmental benefits. This may include avoiding is no further environmental impact assessment for impacts to conservation category wetlands through individual projects, as long as they conform to the structure planning, minimising fresh water use endorsed outcomes of the Strategic Assessment by using grey water for irrigation in new urban of the Perth and Peel regions.† To conform to these developments, and requiring basic raw material outcomes, a project, including schemes and scheme sites to be rehabilitated to an approved standard amendments, would need to: commensurate with the final land use and • be consistent with the classes of action defined supported by a contemporary policy and regulatory in the Strategic Conservation Plan, including the framework if there is no sequential land use option. spatial footprint for the class of action; • be approved under another statutory approval Offsets process that can ensure the mitigation hierarchy For some activities, environmental offsets may be is applied at the appropriate stage (where necessary to address any significant residual impacts necessary); and after avoidance and mitigation options have been • be consistent with any commitments exhausted. or outcomes outlined in the Strategic Conservation Plan and the EPA’s strategic Principle 6 of the State Government’s WA advice. Environmental Offsets Policy recognises the need There are a number of mechanisms already in for offsets to be focused on longer term strategic existence that could be used or enhanced to achieve outcomes. Principle 3 recognises the need for offsets this, without compromising the environmental to be cost effective. outcomes. These are outlined below. In addition, † an assurance framework will be important to the It should be noted that premises may still require works long-term success of the Strategic Assessment, so approvals and licences to operate under Part V of the that there is confidence that the environmental Environmental Protection Act 1986. 92 Interim strategic advice for the Perth and Peel regions
Given the scale of the strategic assessment, the EPA foraging habitat has been approved to be cleared considers that, while the requirement for an offset under the EP Act and the Commonwealth’s EPBC Act may be imposed on a project by project basis, the within the Perth and Peel regions.. implementation of offsets could be on a pooled basis, such as through a transparent, strategic To offset this: investment fund. This would allow large-scale • approximately 6,535 hectares of land has been offsets to be undertaken to: (or will be) acquired and protected; • gain economies of scale; • approximately 150 hectares of habitat will be • be well-planned and coordinated; created, rehabilitated or revegetated to provide new foraging habitat; and • concurrently address the EPA’s broader conservation recommendations; • $0.5m has been invested in research and monitoring. • align with and enhance the offsets required for the impacts to MNES; and In summary, less than two per cent of the total • take account of, and contribute towards, area of offsets has been for habitat creation, broader State government conservation rehabilitation or revegetation. The EPA does not objectives. consider this to be a sustainable long term strategy for any species. The EPA’s preference is for offsets that address multiple values rather than for single species. It This point was made by Briggs in the National also prefers larger sites that are better able to be Environmental Law Review: managed in the long term. … a net loss of biodiversity will occur if offsets seek Offsets should focus on providing the best outcome only to protect existing, high quality ecological assets, for the environmental value being impacted, while rather than restoring degraded ecosystems and supporting broader environmental values. functions (unless the status quo baseline is adopted). The effect is that part of the capital base is traded While acquisition of bushland as a trade-off for to protect the remaining base which is inconsistent vegetation clearing offers immediate value and with the principles of sustainable development. To certainty, it does not achieve a net environmental ensure that the goal of ‘improving or maintaining’ gain in the long term. Re-creation or improvement is met, offsets that provide a measurable benefit to of habitat and environmental values provides the impacted biodiversity value, that is greater than the opportunity to achieve a net benefit for the or equal to the loss, by restoring or creating new environment. While there is risk that improvement ecosystems, should be preferred over those that only actions will not always be successful, it allows for involve the protection of existing ecological assets.188 the development of knowledge and techniques in rehabilitation and restoration. The EPA notes that ‘business as usual’ practice for The EPA’s preference is for metropolitan development is to offset through the acquisition of native vegetation outside the offsets that address multiple metropolitan area. In fact, between October 2012 and May 2015, approximately 1,230 hectares of values rather than for single native vegetation supporting Carnaby’s Cockatoo species. 93 Implementation
The EPA is concerned that the Carnaby’s The EPA recognises implementation needs to Cockatoo (Calyptorhynchus latirostris) Recovery be dynamic and adaptive. It also recognises that Plan (Department of Parks and Wildlife and conservation and environmental commitments will Commonwealth Government, 2013) strongly require coordinated, funded, cross-government preferences bushland acquisition above other action to be effective. approaches that would achieve additions or improvements to habitat in the long term. Monitoring and evaluation Recommendation 33: that the State Government A dual benefit of having a dynamic implementation develop an offset policy framework for future and assurance plan guided by monitoring and development in the Perth and Peel regions that evaluation is the opportunity for continuous places greater emphasis on rehabilitation and improvement. For example, given the likely scale of revegetation of degraded areas to achieve a net rehabilitation offsets, the key learnings from these improvement in habitat and other environmental should be available for the proponents who need values. to undertake onsite rehabilitation, so that the best outcomes are achieved. Other implementation mechanisms The Strategic Conservation Plan will set in place the The major challenge of the Strategic Assessment maximum amount of development that can occur of the Perth and Peel regions will be ensuring under this assessment. This does not mean that the that environmental and conservation actions are full extent of impacts needs to occur. In particular, implemented, particularly where these are not assumptions are made that infrastructure corridors directly linked to an approvals process or are not will not be fully cleared, and that basic raw material the responsibility of a single government agency. extraction sites without an agreed sequential While the assurance framework (discussed below) land use will be rehabilitated to an approved will be critical to monitoring the implementation standard commensurate with the final land use and of the Strategic Assessment of the Perth and Peel supported by a contemporary policy and regulatory regions, using and enhancing existing processes framework. Improvements to technology and best and frameworks, such as Bush Forever, will help to practice will also occur over the next twenty years ensure timely delivery of the actions. and these should be employed in developments where they can reduce environmental impacts. The Metropolitan Region Improvement Fund has played an important role in acquiring Bush Forever Monitoring and evaluation efforts for the strategic and other sites of strategic importance in the Perth assessment outcomes will need to be beyond metropolitan area. However, the absence of a similar the existing regulatory compliance functions. mechanism in the Peel region has hampered efforts New mechanisms may be needed to evaluate the to undertake long-term strategic land use planning effectiveness of the commitments and whether the and secure important conservation areas. EPA’s objectives are being met.
Recommendation 34: that the State Government develop an appropriate funding mechanism, akin Reporting to the Metropolitan Region Improvement Fund, Evaluation, public reporting, and adaptive for the acquisition of strategic conservation areas management are critical to achieving outcomes. in the Peel region. Periodic reporting on both development and implementation of environmental and conservation Assurance - a dynamic assurance plan commitments will be important to both the EPA and the wider public. Effective reporting processes The EPA’s final strategic advice, likely to be published will be required to ensure that implementation is in 2016, will be based on the predicted impacts of transparent and accountable. full implementation of the Strategic Assessment of the Perth and Peel regions over the next twenty One feature of this reporting will be the need years. for more visible and accessible information on environmental impacts and outcomes. At the Given the lifespan of this development, an moment, the WAPC reports annually on acquisition assurance plan will be critical to ensuring that for Parks and Recreation Reservation and Bush the environmental objectives continue to be met. Forever. This could be expanded as part of the Underpinning this will be the need for ongoing Strategic Assessment of the Perth and Peel regions monitoring and evaluation of both the impacts and to help determine the success of protecting and the delivery of conservation and environmental managing biodiversity assets. For example, annual actions. scorecards for the area of each vegetation complex cleared, area of vegetation complex approved
94 Interim strategic advice for the Perth and Peel regions for development, and the area in conservation reservation.
The State Government’s online WA Environmental Offsets Register is a model for transparent tracking of offset conditions and implementation. This register provides a quick glance of impacts and offsets in WA, both spatially and in text, and provides information on the implementation of offset activities. The State Government may wish to consider a similar model for tracking strategic assessment implementation.
Recommendation 35: that the State Government implement an assurance framework that demonstrates that the ecological footprint is being responsibly managed (e.g. a periodic report on the extent of vegetation clearing across the Perth and Peel regions).
Recommendation 36: that the State Government maintain public confidence in the delivery of commitments in the Strategic Conservation Plan (a product of the Strategic Assessment of the Perth and Peel regions) through a periodic public report.
95 Conclusion
Photo: Perth from Mt Eliza, 1862? Courtesy of the State Library of Western Australia 6923B/129
Photo: Perth from Kings Park, 2015 iStock © BWA_IMAGES
96 Interim strategic advice for the Perth and Peel regions
Conclusion The strategic environmental assessment of the Perth and Peel regions is a complex, difficult and ambitious project.
It calls into question past practices, challenges ‘business as usual’ prescriptions and invites our community to consider how we want our city to grow and develop and with what quality of life for our population.
Few governments would be prepared to take on an assessment over such a vast geographic area which rests within one of the world’s biodiversity hotspots. But that is precisely why it must be done.
Individual case by case assessments of proposals and schemes is increasingly inefficient and ineffective in a highly constrained environment which faces significant population growth in coming decades.
If we are to ensure a representation of our biodiversity is protected, maintain and improve the quality of our air and water, and ensure the amenity of streets and suburbs are preserved, then long term, integrated strategic land use planning, supported by contemporary policy and regulation, is vital.
The WAPC’s plan for a more compact (connected) city is a major step forward in ensuring we live within our ecological means. Urban infill is an essential ingredient of this plan – but if it is to win community support it has to be undertaken in a smart and sensitive way that protects the amenity of our neighbourhoods.
The EPA must play its part by explaining to the community the environmental cost of the alternative – inexorable urban sprawl that will cause further losses of our biodiversity, adversely affect air and water quality and diminish our wellbeing and connection to the environment.
The environment is a central part of the Western Australian way of life.
It is an enormous challenge to develop our city to accommodate 3.5 million people.
It will require political vision, creative solutions, the employment of new technology, and a concerted and coordinated effort by all arms of Government to deliver a city that maintains the environmental values our community expects.
The EPA hopes its interim advice will assist in planning for this future.
97 Section X
98 Interim strategic advice for the Perth and Peel regions
Appendices
99 Appendices
Appendices
Appendix A: The EPA’s factors and objectives Appendix B: Notes
Appendix C: Remnant vegetation of the Perth and Peel regions for the Swan Coastal Plain and Jarrah Forest IBRA regions
100 Interim strategic advice for the Perth and Peel regions
Appendix A: The EPA’s environmental factors and objectives
Theme Factor Objective Sea Benthic Communities To maintain the structure, function, diversity, distribution and and Habitat viability of benthic communities and habitats at local and regional scales. Coastal Processes To maintain the morphology of the subtidal, intertidal and supratidal zones and the local geophysical processes that shape them. Marine Environmental To maintain the quality of water, sediment and biota so that the Quality environmental values, both ecological and social, are protected. Marine Fauna To maintain the diversity, geographic distribution and viability of fauna at the species and population levels. Land Flora and Vegetation To maintain representation, diversity, viability and ecological function at the species, population and community level. Landforms To maintain the variety, integrity, ecological functions and environmental values of landforms. Subterranean Fauna To maintain representation, diversity, viability and ecological function at the species, population and assemblage level. Terrestrial To maintain the quality of land and soils so that the environment Environmental Quality values, both ecological and social, are protected. Terrestrial Fauna To maintain representation, diversity, viability and ecological function at the species, population and assemblage level. Water Hydrological Processes To maintain the hydrological regimes of groundwater and surface water so that existing and potential uses, including ecosystem maintenance, are protected. Inland Waters To maintain the quality of groundwater and surface water, Environmental Quality sediment and biota so that the environmental values, both ecological and social, are protected. Air Air Quality and To maintain air quality for the protection of the environment Atmospheric Gases and human health and amenity, and to minimise the emission of greenhouse and other atmospheric gases through the application of best practice. People Amenity To ensure that impacts to amenity are reduced as low as reasonably practicable. Heritage To ensure that historical and cultural associations, and natural heritage, are not adversely affected. Human Health To ensure that human health is not adversely affected. Integrating Offsets To counterbalance any significant residual environmental Factors impacts or uncertainty through the application of offsets. Rehabilitation and To ensure that premises are decommissioned and rehabilitated decommissioning in an ecologically sustainable manner.
101 Appendix B: Notes
Appendix B: Notes
Please note: Any website URLs referenced were current as at July 2015.
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23 Markey A 1997, A Floristic Survey of the Northern Darling Scarp. Unpublished report to CALM, DEP and Conservation Council of Western Australia (Inc.) for the Australian Heritage Commission, Canberra
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103 Appendix B: Notes
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35 Department of Conservation and Environment 1983, Conservation reserves for Western Australia. The Darling System – System 6. Parts 1 and 2, Report 13, Department of Conservation and Environment, Perth
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38 Dell J and Hyder B 2009, Summary of vertebrate fauna values of the area between Dawesville and Binningup, Southern Swan Coastal Plain, Department of Environment and Conservation, Perth.
39 Government of Western Australia 1995, Urban Bushland Strategy, Ministry for Planning, Perth.
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65 Department of Water 2008, Byford townsite drainage and water management plan, Department of Water, Perth, Western Australia.
66 Department of Water 2010, Jandakot drainage and water management plan: Peel main drain catchment, Department of Water, Perth, Western Australia.
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145 CSIRO 2007-2015, Climate Change in Australia Projections for Australia’s NRM Regions http://www. climatechangeinaustralia.gov.au/en/climate-projections/future-climate/regional-climate-change-explorer/ sub-clusters/?current=SSWSW&popup=true&tooltip=true.
146 United Stated Environmental Protection Agency 2008, Reducing Urban Heat Islands: Compendium of Strategies, US EPA, Washington DC, USA. http://www.epa.gov/heatisland/resources/compendium.htm
147 Hennessy K, Fitzharris B, Bates BC, Harvey N, Howden SM, Hughes L, Salinger J and Warrick R 2007, Australia and New Zealand Climate Change Impacts, Adaptation and Vulnerability. in Parry ML, Canziani OF, Palutikof JP, van der Linden PJ & Hanson CE (Eds.) 2007 Contribution of Working Group II to the Fourth Assessment Report of the Intergovernmental Panel on Climate Change. Cambridge University Press, Cambridge, UK, pp. 507-540.
148 Wilby R 2008, Constructing climate change scenarios of urban heat island intensity and air quality, Environment and Planning B, 35:902-919.
149 National Environment Protection Council 2011, National Environment Protection (Ambient Air Quality) Measure Review: Review Report. National Environment Protection Council Service Corporation, Adelaide, South Australia.
150 Brown H, Katscherian D, Carter M and Jeff Spickett J 2014, Cool communities: Urban trees, climate and health, Curtin University, Perth, Western Australia, http://ehia.curtin.edu.au/local/docs/CoolCommunities.pdf.
151 Department of Infrastructure and Transport 2013, State of Australian Cities 2013, Commonwealth of Australia, Canberra, Australian Capital Territory.
152 Williams S, Nitschke M, Weinstein P, Pisianielle DL, Parton KA and Bi P 2012, The impact of summer temperatures and heatwaves on mortality and morbidity in Perth, Australia 1994-2008, Environment International 40:33-38.
153 National Environment Protection Council 2011, National Environment Protection (Ambient Air Quality) Measure Review: Review Report. National Environment Protection Council Service Corporation, Adelaide, South Australia.
154 Loughnan ME, Tapper NJ, Phan T, Lynch K and McInnes JA 2013, A spatial vulnerability analysis of urban populations during extreme heat events in Australian capital cities, National Climate Change Adaptation Research Facility, Gold Coast, Queensland.
109 Appendix B: Notes
155 Loughnan ME, Tapper NJ, Phan T, Lynch K and McInnes JA 2013, A spatial vulnerability analysis of urban populations during extreme heat events in Australian capital cities, National Climate Change Adaptation Research Facility, Gold Coast, Queensland.
156 Brown H, Katscherian D, Carter M and Jeff Spickett J 2014, Cool communities: Urban trees, climate and health, Curtin University, Perth, Western Australia, http://ehia.curtin.edu.au/local/docs/CoolCommunities.pdf.
157 Ely M and Pitman S 2013, Green Infrastructure: Life support for human habitats. The compelling evidence for incorporating nature into urban environments, Prepared for the Green Infrastructure Project, Botanic Gardens of Adelaide, Department of Environment Water and Natural Resources, Adelaide, South Australia.
158 Norton BA, Coutts AM, Livesley SJ, Harris RJ, Hunter AM and Williams NSG 2015, Planning for cooler cities: A framework to prioritise green infrastructure to mitigate high temperatures in urban landscapes, Landscape and Urban Planning 134:127-138.
159 Brown H, Katscherian D, Carter M and Jeff Spickett J 2014, Cool communities: Urban trees, climate and health, Curtin University, Perth, Western Australia, http://ehia.curtin.edu.au/local/docs/CoolCommunities.pdf
160 Western Australian Planning Commission 2014, The urban forest of Perth and Peel, Department of Planning, Perth, Western Australia.
161 Western Australian Planning Commission and Department of Planning and Infrastructure 2009, Liveable Neighbourhoods: a Western Australian Government sustainable cities initiative, Update 02, January 2009, State of Western Australia, Perth, Western Australia.
162 Western Australian Planning Commission 2013, State Planning Policy 3.1 Residential Design Codes, State of Western Australia, Perth Western Australia.
163 City of Belmont 2014, Urban forest strategy, http://www.belmont.wa.gov.au/Services/Publications/ CorporateDocuments/Documents/City of Belmont Urban Forest Strategy.pdf
164 City of Vincent 2014, Vincent Greening Plan, viewed 8 June 2015. http://www.vincent.wa.gov.au/Services/ Environment_Sustainability/Green_Initiatives/Vincent_Greening_Plan
165 City of Armadale 2014, Urban forest strategy. http://www.armadale.wa.gov.au/sites/default/files/assets/ documents/publications/Urban_Forest_Strategy_-_June_2014_0.pdf
166 City of Perth 2014, Urban forests for the future, 30 October 2014. http://www.perth.wa.gov.au/newsroom/ featured-news/urban-forests-future
167 City of Sydney 2014, Urban Heat Island – pale pavement trial, viewed 17 June 2015. http://www. cityofsydney.nsw.gov.au/vision/towards-2030/sustainability/carbon-reduction/urban-heat-island
168 Department of Health 2007, Health Impact Assessment in WA Discussion Paper, Perth, Western Australia.
169 Department of Health, http://www.public.health.wa.gov.au/3/1442/2/publications.pm
170 Western Australian Planning Commission 2009, State Planning Policy 5.4 Road and Rail Transport noise and freight considerations in land use planning, State of Western Australia, Perth, Western Australia.
171 Environmental Protection Authority 2014, Environmental Assessment Guideline for Consideration of environmental impacts from noise (EAG 13), Environmental Protection Authority, Perth, Western Australia.
172 Environmental Protection Authority 2013, Environmental and health performance of waste to energy technologies (EPA Report 1468), Environmental Protection Authority, Perth, Western Australia.
173 Waste Authority of Western Australia 2013, Facilities and Sites Background Paper, Strategic Waste Infrastructure Planning Working Group, Perth, Western Australia. http://www.wasteauthority.wa.gov.au/ media/files/documents/Facilities_and_Sites_July2013.pdf
174 Environmental Protection Authority 2007, State of the Environment Report: Western Australia 2007, Department of Environment and Conservation, Perth, Western Australia.
175 Waste Authority of Western Australia 2013, Waste Facilities and the Western Australian Planning System, Perth, Western Australia. http://www.wasteauthority.wa.gov.au/media/files/documents/Planning_and_ Approvals_July2013.pdf
110 Interim strategic advice for the Perth and Peel regions
176 Western Australian Planning Commission 1997, Statement of Planning Policy No.4.1 – State Industrial Buffer Policy, State of Western Australia, Perth, Western Australia.
177 Western Australian Planning Commission 2012, Economic and Employment Lands Strategy: non-heavy industrial, Department of Planning, Perth, Western Australia.
178 Environmental Protection Authority 2007, State of the Environment Report: Western Australia 2007, Department of Environment and Conservation, Perth, Western Australia.
179 Department of Indigenous Affairs and Department of the Premier and Cabinet 2013, Aboriginal Heritage Due Diligence Guidelines, Version 3.0, Perth, Western Australia.
Sea 180 Western Australian Planning Commission 2012, State Planning Policy 1.8 Canal Estates and Artificial Waterway Developments, Western Australian Planning Commission, Perth, Western Australia.
181 Western Australian Planning Commission 2013, State Planning Policy 2.6 State Coastal Planning Policy, Western Australian Planning Commission, Perth, Western Australia.
182 Environmental Protection Authority 2015, Environmental Assessment Guideline for Protecting the Quality of Western Australia’s Marine Environment (EAG 15), Environmental Protection Authority, Perth, Western Australia.
183 ANZECC and ARMCANZ 2000, Australian and New Zealand Guidelines for Fresh and Marine Water Quality. National Water Quality Management Strategy Paper No. 4, Australian and New Zealand Environment and Conservation Council and Agriculture and Resource Management Council of Australia and New Zealand, Canberra, ACT.
184 Environmental Protection Authority 2000, Perth’s Coastal Waters: Environmental Values and Objectives: the position of the EPA - a working document. Environmental Protection Authority, Perth, Western Australia.
Basic raw material extraction 185 Western Australian Planning Commission 2000, State Planning Policy 2.4 Basic Raw Materials, Perth, Western Australia.
186 Western Australian Planning Commission 2010, State Planning Policy 2.8 Bushland Policy for the Perth Metropolitan Region, Perth, Western Australia.
187 Government of Western Australia 2014, WA Environmental Offsets Guidelines, Perth, Western Australia.
Implementation 188 Briggs S 2013, Offsetting for biodiversity compensation - exploring the implications, National Environmental Law Review, Issue 2013:2 pp 41-49, Victoria, Australia.
111 Appendix C: Remnant vegetation
Appendix C: Remnant vegetation of the Perth and Peel regions for the Swan Coastal Plain and Jarrah Forest IBRA regions
Key: Vegetation complex Name allocated to the vegetation complex by Heddle et al (1980) and Havel & Mattiske (2000). Only those complexes that occur within the Perth and Peel regions (PPR) (wholely or partly) are listed here. IBRA Pre-European Pre-clearing extent of the vegetation complex, derived using Heddle et al (1980) and Havel and extent (ha) Mattiske (2000) (Joined by the Perth Biodiversity Project 2011 and updated by OEPA 2015). 2015 extent (ha) Current extent of the vegetation complex in 2015, derived using Heddle et al (1980) and Havel and Mattiske(2000) intersected with 2015 vegetation extent mapping (DPaW and OEPA 2015). % remaining 2015 The remaining area of the complex in 2015 as a percentage of its pre-clearing extent. PPR Pre-European Pre-clearing extent of the vegetation complex within the PPR. extent (ha) PPR 2015 extent (ha) Current extent of the vegetation complex within the PPR in 2015. PPR % remaining The remaining area of the complex within the PPR in 2015 as a percentage of its pre-clearing 2015 extent. PPR Reserved in Current extent of the vegetation complex within the PPR in region scheme reservation in 2015. Region Schemes P&R Combines the equivalent reserves for the PMR (Parks and Recreation) and PRS (Regional Open or ROS (ha) Space). PPR Reserved in The remaining area of the complex within the PPR in region scheme reservation in 2015 as a Region Schemes P&R percentage of its pre-clearing extent. or ROS (%) PPR Secure for The remaining area of each complex within the PPR with some form of conservation purpose in conservation (ha) 2015. Secure tenure = National Parks, Nature Reserves, Conservation Parks and other reserves with Conservation included in purpose of vesting (OEPA 2015 GIS Secure A). PPR Secure for The remaining area of the complex within the PPR insecure protection in 2015 as a percentage conservation (%) of its pre-clearing extent.
Vegetation complexes with less than 10% of pre-European extent remaining within the PPR. Vegetation complexes with less than 30% of pre-European extent remaining within the PPR.
References: Department of Parks and Wildlife and Office of the EPA (2015) Remnant vegetation mapping, based on DAFWA 2014 remnant vegetation and Land Monitor 2015. Havel & Mattiske (2000) Vegetation Mapping of the South West Forest Regions of Western Australia and Western Australia. Heddle, Loneragan & Havel (1980) Vegetation of the Darling System. In: Atlas of Natural Resources, Darling System, Western Australia. OEPA (2015) Combined vegetation complex mapping of the SCP and JF IBRA regions, based on Havel & Mattiske (2000) and Heddle et al (1980) “Perth Biodiversity Project (2011) Local Biodiversity Program 2010 Vegetation complex dataset for Perth and Peel.”
Abbreviations: JF = Jarrah Forest IBRA region PMR = Perth Metropolitan Region PRS = Peel Region Scheme SCP = Swan Coastal Plain IBRA region
112 Interim strategic advice for the Perth and Peel regions 0 0 1 0 2 1.2 1.5 5.9 4.3 1.2 0.2 0.5 2.1 2.2 (%) conservation conservation Secure for for Secure PP R 0 0 0 22 32 21 733 629 884 247 125 274 139 197 (ha) conservation conservation Secure for for Secure PP R 7 0 6.8 7.2 5.4 4.9 1.7 0.9 0.1 2.8 2.2 2.8 2.2 98.2 (%) PP R Schemes R eserved in R egion S P& R or RO 5 0 46 21 607 312 492 219 549 187 425 2807 1094 4,422 (ha) PP R Schemes R eserved in R egion S S P& R or RO Perth Peel R egion Peel Perth 8.2 5.4 8.5 6.6 98.4 21.3 16.8 12.4 13.4 11.9 10.3 14.7 23.3 36.4 2015 PP R % remaining remaining 6 608 777 366 444 382 347 1967 6,936 1,872 1,194 1,050 3,183 13,486 PP R 2015 extent (ha) extent 40 618 954 5,776 4,303 6,707 1,639 63,451 41,192 15,104 10,038 12,870 59,403 19,170 uropean uropean PP R Pre- E extent (ha) extent 12 5.3 6.6 6.6 98.4 26.1 18.4 16.5 13.5 10.2 11.5 45.5 33.4 36.2 % 2015 remaining remaining 630 444 2,144 1,987 4,312 2,232 2,028 4,936 2,448 2,855 3,035 3,922 22,846 10,533 (ha) 2015 extent 2015 extent I B RA region 2,178 9,504 6,707 6,272 9,081 87,416 57,163 16,591 26,176 16,501 19,855 92,340 21,210 10,846 uropean uropean I B RA Pre- E extent (ha) extent unes / Pinjarra Plain unes / Pinjarra ill Shelf) unes idge H Bassendean Complex Central And South - Transition Transition South And - Central Bassendean Complex Complex Vegetation Bassendean D Bassendean Complex Central And South And Central Bassendean Complex Southern River Complex Combinations of Bassendean D Combinations Cannington Complex Cannington Yanga Complex Yanga Swan Complex Swan Serpentine River Complex Guildford Complex Guildford Dardanup Complex Dardanup Pinjarra Plain Pinjarra Beermullah Complex Forrestfield Complex Forrestfield Foothills ( R Foothills Coonambidgee Complex Coonambidgee Gingin Scarp Reagan Complex Swan Coastal Plain Coastal Swan Plateau D andaragan South Mogumber Complex Vegetation Complex (Grouped by I B RA and by region (Grouped Complex Vegetation major landform)
113 Appendix C: Remnant vegetation 0 4.6 0.1 1.8 9.5 27.4 21.2 15.4 13.2 18.1 11.4 47.9 10.2 25.7 (%) conservation conservation Secure for for Secure PP R 3 0 224 696 499 3,119 1,555 4,335 1,096 3,241 4,182 2,477 2,200 9,092 (ha) conservation conservation Secure for for Secure PP R 8 7.1 36.1 29.5 22.5 24.6 27.5 76.4 28.6 19.5 23.4 33.5 10.2 28.2 (%) PP R Schemes R eserved in R egion S P& R or RO 851 503 4120 2158 6,341 1,202 2,285 1,789 3,069 5,109 8,570 5,085 1,537 9,966 (ha) PP R Schemes R eserved in R egion S S P& R or RO Perth Peel R egion Peel Perth 30 53.3 38.9 50.2 33.9 78.1 34.5 16.8 76.4 33.3 52.9 76.2 92.5 67.4 2015 PP R % remaining remaining 6,076 2,852 1,467 2,821 1,829 4,113 6,461 3,498 4,541 14,145 13,672 14,621 11,503 23,859 PP R 2015 extent (ha) extent 7,325 4,893 8,309 2,342 4,594 4,911 11,401 28,190 11,919 38,436 17,889 43,894 21,764 35,389 uropean uropean PP R Pre- E extent (ha) extent 55 30 23 83 38.1 35.9 33.9 88.8 37.3 69.3 33.6 41.3 91.1 71.8 % 2015 remaining remaining 4,753 1,467 2,821 4,673 9,517 10,270 21,620 11,518 14,832 15,180 14,649 16,069 30,538 53,218 (ha) 2015 extent 2015 extent I B RA region 4,893 8,309 5,259 26,990 13,226 39,336 25,515 50,080 21,418 45,226 35,512 17,644 36,779 74,131 uropean uropean I B RA Pre- E extent (ha) extent agoonal) D eposits unes unes stuarine and L arine ( E Yoongarillup Complex Yoongarillup M Complex Vasse Quindalup D Quindalup Complex Pinjar Complex Pinjar Wetlands Complex Herdsman Karrakatta Complex North - Transition Vegetation Vegetation Transition Karrakatta North Complex - Complex Karrakatta North Complex Karrakatta Complex Central And South And Karrakatta Central Complex Cottesloe Complex North Complex Cottesloe Cottesloe Complex Central And South And Central Complex Cottesloe Spearwood D Darling Scarp Complex Bassendean Complex North - Transition Vegetation Vegetation Transition NorthBassendean Complex - Complex Jarrah Forest Jarrah - Uplands Plateau D arling - Ce Cooke Vegetation Complex (Grouped by I B RA and by region (Grouped Complex Vegetation major landform) Bassendean Complex NorthBassendean Complex
114 Interim strategic advice for the Perth and Peel regions 0 1.6 1.4 8.5 4.1 0.7 3.7 0.9 9.6 5.3 15.9 16.4 28.3 17.8 13.4 16.2 (%) conservation conservation Secure for for Secure PP R 0 8 83 35 345 103 421 522 3438 5247 6240 4211 1,795 1,936 3,962 10,397 (ha) conservation conservation Secure for for Secure PP R 1.1 0.6 1.1 4.1 2.8 9.4 0.9 8.5 11.5 17.1 31.2 49.7 34.4 14.5 39.7 21.8 (%) PP R Schemes R eserved in R egion S P& R or RO 8 57 10 272 102 132 4,641 1,082 5,666 7,393 3,471 2,906 1,545 6,301 11,858 14,018 (ha) PP R Schemes R eserved in R egion S S P& R or RO Perth Peel R egion Peel Perth 64 92.7 95.3 93.5 76.4 42.6 50.7 58.8 71.6 83.5 80.2 73.1 74.9 68.2 78.2 85.5 2015 PP R % remaining remaining 598 4,945 1,414 1,063 2,429 6,738 7,372 2,655 22,961 30,900 23,691 31,781 11,937 15,040 50,321 63,408 PP R 2015 extent (ha) extent 934 5,335 1,483 2,495 4,786 3,895 24,546 40,419 11,467 33,079 38,062 14,886 10,085 20,069 64,371 74,140 uropean uropean PP R Pre- E extent (ha) extent 76.1 79.6 91.9 81.3 46.9 66.5 77.2 71.3 76.6 79.5 75.7 39.7 87.4 74.7 82.7 86.5 % 2015 remaining remaining 7,015 40,835 21,859 46,200 65,173 93,351 84,191 38,545 52,620 12,993 12,032 67,126 71,243 129,103 115,685 180,352 (ha) 2015 extent 2015 extent I B RA region 9,386 53,658 27,467 50,259 80,202 54,031 68,695 16,342 15,890 86,129 199,021 126,607 167,150 168,940 132,416 208,515 uropean uropean I B RA Pre- E extent (ha) extent Swamp - S Swamp epressions and Swamps on uplands and Swamps - D epressions Plateau D arling Goonaping - G Yarragil 2 - Yg2 2 - Yarragil Yarragil 1 - Yg1 1 - Yarragil Yalanbee - Y6 Yalanbee Yalanbee - Y5 Yalanbee Pindalup - Pn Pindalup Murray 2 - My2Murray Murray 1 - My1Murray Helena 2 - He2 Helena 1 - He1 arling Plateau - Valleys - Plateau D arling Coolakin - Ck Dwellingup - D4 Dwellingup - D3 Dwellingup - D2 Vegetation Complex (Grouped by I B RA and by region (Grouped Complex Vegetation major landform) Dwellingup - D1
115 116 Images on pp 4-5 and 90-91 are © David Rennie.
Unless otherwise credited, all other photographs were provided by the Peel-Harvey Catchment Council and the Office of the EPA Section X
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