South West Water Resources — Water Policy Overview
Department of Water April 2007
Level 4, 168 St Georges Terrace Perth Western Australia 6000
April 2007
South West Water Resources: Water Policy Overview
Contents
Purpose of this paper ...... 6
Draft State Water Policy Framework...... 7
Draft Water Planning Framework...... 7
Vision for Water Management in Western Australia...... 7
Draft objectives for water management in Western Australia...... 8
Plan and manage water resources sustainably...... 9
Sustainability and current and future generations ...... 10
Community involvement...... 10
Adaptive management ...... 13
Water resource management — State-wide ...... 14
Water planning...... 21
Interests of Indigenous communities...... 26
Fair and transparent processes ...... 29
Build knowledge and capacity through science and innovation ...... 31
Sound science ...... 32
Resource investigation and assessment...... 32
Water resource accounting ...... 33
Water resources information...... 35
Performance monitoring...... 37
3 South West Water Resources: Water Policy Overview
Innovation and research...... 38
Capacity building and public education...... 41
Protect water resources to conserve our environment ...... 45
Planning for the environment ...... 45
Ecological conservation ...... 49
Water quality...... 49
Water and environmental outcomes ...... 50
Water and the environment...... 51
Enhance the security and certainty of water resources ...... 53
Environmental and social water requirements ...... 54
Reservation of allocations...... 54
Water allocations and licensing...... 55
Speculation in water allocations...... 58
Water allocation and planning...... 58
Separation of water allocation from land...... 58
Water allocations in developed and undeveloped resources ...... 59
Risk assignment...... 59
Water markets and trading...... 59
Water transfers ...... 60
Cost recovery for resource management...... 60
Develop water resources to support a diverse and vibrant economy...... 61
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Water use efficiency...... 61
Sustainability assessment...... 65
Fit for purpose...... 66
Resource development ...... 66
Water sensitive design...... 70
Deliver services to build strong and healthy communities ...... 71
Water services for public health and communities ...... 72
Source protection and catchment management...... 75
Water service licensing ...... 78
Services to new developments ...... 78
Asset management and financial capacity...... 78
Funding for water services...... 79
Affordability ...... 79
Dispute resolution ...... 80
Abbreviations ...... 81
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Purpose of this paper
The initial work on this paper was done by the Department of Premier and Cabinet prior to June 2006. Responsibility for the development of the South West Water Plan was transferred to the Department of Water from June 2006. At the time this document was written the State Policy Objectives were in a draft format. They have since been finalised and released for public comment. Therefore some of the objectives in this document may differ from those that are now listed in the State Water Plan.
The purpose of this paper was to provide detailed information on water resources and services management in relation to the State Policy objectives as part of the development of the South West Water Plan. It should be read in conjunction with:
• The South West Water Plan – an invitation to participate
• South West Water Resources: A Regional Overview; and
• South West Water Resources: A Review of Future Trends.
There will be a number of opportunities for public and stakeholder input into the South West Water Plan at all stages of the development process. The Invitation to Participate paper provides details on how community members can register their interest in community workshops that will occur as a part of the development of the South West Water Plan
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Draft State Water Policy Framework
In January 2006, members of the State Water Forum were invited to a workshop to assist in developing the Draft Water Policy Framework, which was released for public comment and consultation in early April 2006.
Community input was received through eight workshops held in regional locations around the State. In addition, submissions were invited from the public and additional consultation was undertaken with Indigenous people. The public comment period closed on 16 June 2006.
The draft vision for water management in Western Australia was identified by delegates to the October 2002 Water Symposium held at Parliament House. Therefore, it represents a shared community and government vision to guide water resource management in Western Australia.
The findings of the Water Symposium resulted in the release of the State Water Strategy in February 2003. There were two parts to the Strategy – a series of initiatives and programs; and key themes to underpin a policy approach to water management.
The initiatives of the State Water Strategy are ongoing. They include Waterwise rebates, a focus on reuse and recycling, water use efficiency, the ‘security through diversity’ source development program and the Premier’s Water Foundation, which funds research into innovative ways to use water wisely.
The Draft Water Policy Framework builds on and embeds the policy themes of the Strategy. The following draft statements have been taken from that document:
Draft Water Planning Framework
The Water Planning Framework is being developed as a component of the State Water Plan and will be available for comment in October 2006. The planning framework will outline the scope of State and regional plans and how detailed planning for water allocation, source protection, drainage and floodplain management will support these strategic plans.
Vision for Water Management in Western Australia
“Our precious water resources are managed and developed in a sustainable manner to maintain and enhance our natural environment, our quality of life and the economic development of the State”.
7 South West Water Resources: Water Policy Overview
Draft objectives for water management in Western Australia
• Plan and manage water resources sustainably.
• Build knowledge and capacity through science and innovation.
• Protect water resources to conserve our environment.
• Enhance the security and certainty of water resources.
• Develop water resources to support a diverse and vibrant economy.
• Deliver services to build strong and healthy communities.
These objectives have been examined in the following sections to this discussion paper. They provide the basis to summarise the current state of water management in the South West region.
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Plan and manage water resources sustainably
Sustainability Our water resources and services are managed to maintain our natural environment, our quality of life, and
support economic development.
Current and future Water is managed to meet the needs of and create value generations for current and future generations.
Community Community involvement is essential to achieve the best involvement outcomes in the management of water resources.
Water cycle Water resource management recognises the interdependence of the natural and built elements of the water cycle, including the connectivity between surface and groundwater resources.
Adaptive Management approaches will be modified as knowledge management improves and circumstances change, including climatic and atmospheric variation.
Water resource All ground and surface water areas are managed through management – State- a risk-based approach and priority is given to high value wide water resources, particularly where there is competition for the resource.
Water planning Water plans are developed at State, regional, and local levels and progressively integrated with land planning and
other natural resource management activities.
Interests of The interests of Indigenous communities are specifically Indigenous considered in water resource management. communities
Fair and transparent Water governance processes are fair, transparent, and processes timely.
9 South West Water Resources: Water Policy Overview
Sustainability and current and future generations
The State Water Plan draft policy framework reinforces sustainability and intergenerational equity as key concepts for water management. These concepts are also embedded in other water legislation and policy including:
• The State Water Strategy for Western Australia (2003)
• The Western Australia State Sustainability Strategy (2003)
• National Strategy for Conservation of Australia’s Biological Diversity (1993)
• National Strategy for Ecologically Sustainable Development (1992).
The Rights in Water and Irrigation Act 1914 is the legislation that sets out many of the key aspects of managing water resources in Western Australia. The Act underscores the commitment to sustainable management. The objectives of the RiWI Act are to: “(a) to provide for the management of water resources, and in particular ⎯ (i) for their sustainable use and development to meet the needs of current and future users; and (ii) for the protection of their ecosystems and the environment in which water resources are situated, including by the regulation of activities detrimental to them; (b) to promote the orderly, equitable and efficient use of water resources; (c) to foster consultation with members of local communities in the local administration of this Part, and to enable them to participate in that administration; and (d) to assist the integration of the management of water resources with the management of other natural resources”.
Community involvement
Community involvement in regional water management ensures that water managers understand the needs of the community and increases community understanding of water resources and issues. Importantly, it promotes greater cooperation between government, water users, community organisations, and the public. All this is vital to achieve the best water outcomes.
In 2001, changes to the RiWI Act were passed which included the ability to create community-based Water Resources Management Committees (WRMC) to assist the government in decision-making. The legislative provisions were drafted broadly to allow a wide range of functions and powers to be delegated at the discretion of the Water and Rivers Commission.
10 South West Water Resources: Water Policy Overview
The Minister has the authority to establish a WRMC and determine its membership. The legislation provides for members (as far as is practicable) to be local residents, have certain types of experience (particularly in local government), and predominantly to represent the interests of water users. WRMCs operate subject to the direction and control of the Department of Water (the Department).
Appointments to these committees must be publicly notified in the Government Gazette. There are no requirements for public advertising or notification of committee vacancies, or to make public the minutes or decisions made within committees.
In the South West, two water management committees with community representation provide advice to the Department. These are the Whicher Water Resource Management Committee (Whicher Committee) and the Warren Water Advisory Committee (Warren Committee).
Irrigation cooperatives are also a means for increased community involvement in water management. While the main focus of a cooperative is to provide water services to shareholders, members of a cooperative can also become involved in water quality and local drainage matters, and in the provision of water to maintain environmental and social values in waterways. As a requirement of the licences held by the cooperatives, they must undertake compliance and governance functions – reporting to the Economic Regulation Authority (ERA) and the Department. They can also be held legally responsible for the actions of their shareholders.
Whicher Water Resources Management Committee
The Whicher Committee was established in September 2002. It is in the process of being formally promulgated under the RiWI Act as the first statutory WRMC in Western Australia in accordance with the legislative changes.
The Committee’s role is essentially one to “advise and assist” the community and the Department to understand and manage local water resources. There are 15 positions on the committee and anyone is eligible to nominate. Vacancies are advertised and appointment is overseen by representatives from the Augusta- Margaret River, Busselton, Capel and Nannup Shires and the Department.
The Whicher Committee supports a number of strategic policy initiatives:
• Proclamation as the preferred means of managing surface water sources.
• Development of a common dams policy.
• Development of policy on environmental water provision.
• Development of water allocation plans for groundwater and surface water sources in their catchment area.
In 2005, the Whicher Committee convened a number of public meetings on these and other water resource matters. Information on meetings of the Whicher Committee and advice provided to the Department is not made public, although the
11 South West Water Resources: Water Policy Overview
Committee prepared a publication in December 2004 that summarises their role, membership and key policy recommendations.
There are two sub-committees of Whicher which have local representation and provide advice via a committee member. The Scott Water Users group was formed in 2004 and the Capel Water Advisory Committee in 2006.
Warren Water Management Area Advisory Committee
The Warren Committee was established originally in 1963 as the Warren-Lefroy Advisory Committee. The Committee is advisory and its sole focus is surface water management.
The Warren Committee has a mission to promote the responsible management of surface water to the Water and Rivers Commission Board and stakeholders within the Warren and Donnelly River Catchments. The committee’s objectives are to:
• Share/allocate surface water fairly, while ensuring long-term resource sustainability.
• Encourage sound dam construction techniques.
• Be responsible to stakeholders.
• Be representative of community interests.
• Advise on the environmental consequences of surface water allocations.
Members of the committee are self-supply users who represent the interests of all surface water users in the Warren region. Staff from the Department attend and chair these meetings. Historically the committee was concerned mainly with the issues of individual users, often working with the government agency responsible for water management and licensing to resolve disputes and advise on licensing matters as they arose.
The Warren Committee operates under a working agreement negotiated with the Department. It intends to become formally established as a WRMC. It has recently developed a five-year work plan and a Strategic Action Plan. The committee is now looking to include a greater component of water planning and policy development as part of its agenda, particularly in this current era of water reform and changing land use.
In addition to the ongoing operation of WRMCs, a number of community consultative processes have been active in the South West. These include:
• Application for allocation from the SW Yarragadee aquifer by Water Corporation.
• Application to change the use of Logue Brook Dam to facilitate trading with Harvey Water (a Catchment Dialogue was held on 22 July 2006).
• Source protection planning – Margaret River/Ten Mile Brook (2005).
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• Groundwater areas management plan – Busselton-Capel, Blackwood, and Bunbury.
• Water Policy Framework of the State Water Plan.
In addition, five community workshops were held in the South West in July and August 2006 to discuss proposed water reforms. These reforms will be the subject of a separate discussion paper to be released in late June 2006.
Adaptive management
Adaptive management is a form of management that builds flexibility and monitoring as an integral component.
Plan
Change Act response
Evaluate Monitor
Figure 1. Key elements of adaptive management
Adaptive management encourages an exploratory, experimental approach to management problems and emphasises the value of continuous monitoring and periodic adjustment of the management regime. While conventional management focuses on planning and then ‘doing’, adaptive management emphasises the ability to change management actions in response to changing circumstances while not compromising the original principles of the plan.
The monitoring component is designed to ensure that the objectives of the plan are being met by the management actions in the plan.
Adaptive management also explicitly recognises:
• the need for management decisions to examine economic, social, and environmental values in an integrated way;
• the presence of diverse stakeholders in environmental management issues; and
13 South West Water Resources: Water Policy Overview
• uncertainty inherent in environmental processes.
By recognising uncertainty, adaptive management encourages planners to build flexibility into their strategies allowing them to adapt when circumstances change unexpectedly or management actions result in outcomes different to those predicted.
Reviews of existing non-statutory water management plans are currently undertaken on a needs basis as and when funding is available and development pressures within a region increase.
Water resource management — State-wide
Proclamation and licensing
Traditionally, the State has actively managed only some water resources. This is because of the size of Western Australia, the relatively small portion of land with direct access to groundwater or surface water resources, low historical levels of water use and limited funding resources. This approach ensures that resources are concentrated in areas where water has significant values (environmental, economic or social) and where there is competition for use. Under the legislation, proclamation of an area denotes an intention to actively manage a water resource.
Generally, where areas are proclaimed, water use from a watercourse or groundwater aquifer must be licensed. Applications for water licences in the South West are made to the Department’s Bunbury, Busselton or Manjimup offices.
A licence does not guarantee that water is always available to be taken. Water use cannot exceed the sustainable limit of a resource (as defined in a relevant water allocation plan). In addition, during drought periods, restrictions are applied so that the available water is shared and adverse impacts to the environment, the resource and users are minimised. Conditions may be placed to define how and when water may be taken and the obligations of licence holders when using the water.
By-laws authorise taking water in proclaimed areas without a licence. In these cases, proclamation and by-laws means the Department can move into active licensing when it is apparent that the resource needs it, without waiting for the often lengthy proclamation process. As competition for water increases, by-laws may be repealed to provide increasing levels of management, including licensing of water use.
In surface water areas that are not proclaimed, water may be taken without a licence to the extent that the flow is not unduly diminished or the rights of downstream users adversely impacted. If conflicts between water users arise in unproclaimed areas, the Department can issue a direction defining the amount, the purpose, and the way in which water may be used. However, this may be difficult to enforce and civil action may be needed to remedy some disputes.
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Assigning management priority to high priority water resources
The Department determines priority for resource management through the level of allocation as a percentage of the allocation limit or sustainable yield. As the allocation category increases, the management response increases to encompass more rigorous resource investigation, assessment, and active management.
Increasing levels of resource knowledge and management response increase the reliability of the assessment of the allocation limit or sustainable yield. Most importantly, increased knowledge and active management of a resource improve long-term resource security – for the environment, the community and water users.
The exception to this is where systems are over-allocated or suffer significant reductions in estimations of sustainable yields through external factors such as climate and land use changes. Management intervention may then be needed to provide water for the environment or to reassess the environmental values to be protected and preserved. Table 1 summarises the categories used for allocation and management response.
Table 1. Categories of water allocation and management response
Allocation as a 0 – 30% 30 – 70% 70 – 100% > 100% percentage of sustainable yield Allocation category C1 C2 C3 C4
Management response R1 R2 R3 R4 category
The Department’s goal is to match allocation and use with the appropriate management response. That is, if a resource is assessed as being used to 50 per cent of its sustainable yield (C2) an equivalent management response (R2) should ensue. R1 to R4 is a range of increasing management responses across a number of key areas including:
• resource investigation;
• allocation planning;
• resource monitoring;
• establishing sustainable limits;
• trading;
• regulation of use;
• community involvement;
• water use monitoring; and
• water use efficiency.
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However, management response can lag behind resource use. In such instances, there is a need to prioritise management activities including resource investigation, licensing of use, compliance, monitoring and reporting.
Current status of management response for South West water resources
Areas can be proclaimed as ground water areas, rivers and tributaries, irrigation districts, entire catchments (Surface Water Management Areas) or sub-catchments (Surface Water Management Sub-areas). Table 2 lists the current status of water resource management, with the year denoting when management first commenced:
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Table 2. Management status of South West water resources
Area Water Year of Proclaimed Allocation Response Licensing Resource proclamation areas category category Status Bunbury Groundwater 1975 Groundwater C3 R3 Licensed area Busselton Groundwater 1984 Groundwater C3 R3 Licensed – Capel area Collie Groundwater 1977 Groundwater C4 R3 Licensed area Blackwood Groundwater 1989 Groundwater C3 R3 Licensed area Harvey Surface 1914 Irrigation Not applicable Licensed Water District Preston Surface 1970 Irrigation Not applicable Licensed Valley Water District Collie Surface 1931 Irrigation Not applicable Licensed Water District Waroona Surface 1931 Irrigation Not applicable Licensed Water District Harvey Surface Not Nil River water proclaimed Basin Collie Surface 1954 Brunswick Licensing River water River and started Basin tributaries Preston Surface 1946 Preston Licensing River water 1954 River and started Basin certain No assessment of tributaries surface water resources Ferguson has been finalised River and tributaries Busselton Surface 1946 Margaret Licensing Coast water 1969 River and started Basin tributaries Capel River tributaries and Catchment Donnelly Surface 1968 Donnelly Licensed River water River Basin tributaries and Catchment including Barlee Brook Catchment Warren Surface 1959 Warren Licensed River water River, Basin tributaries, and Catchment
Shannon Surface Unproclaimed Nil River Water Basin
17 South West Water Resources: Water Policy Overview
Licensing of all historical and current use is ongoing for all groundwater systems and irrigation districts. Licensing of all use is almost completed in the Donnelly and Warren River Basins. Licensing of some new and historical users has commenced in the other surface water systems.
The Collie and Brunswick Rivers are proclaimed for licensed use. Harvey Water uses the majority of the water extracted from the Collie River. The Collie and Brunswick Rivers are part of an irrigation district proclaimed under the RiWI Act, with the mouth of the Brunswick River also covered as a RiWI Act area. The majority of the licensed extraction from the proclaimed rivers occurs in the upper catchments. Water quality issues restrict extraction in the lower reaches of the catchment.
Proclamation of the Preston River and certain of its tributaries (including Ferguson River, Crooked Brook, Lyall Mills Stream, Thompson Brook, Charley Creek, and Joshua Creek) occurred in 1946. The main branch of the river on the Darling Scarp was proclaimed as the Preston Valley Irrigation District in 1970. The Preston Valley Irrigation District proclamation provided for the main stem of the river as a public irrigation scheme and for the equitable distribution of water. The taking of water on the Preston River through the Irrigation District is licensed to the Preston Valley Irrigation Cooperative (PVIC).
All proclaimed areas of the Preston River, including Ferguson River and Joshua Brook are licensed for the taking of water. Extraction is largely in tributaries in the upper reaches of the catchment, with most of the water used for the irrigation of fruit, vegetables and wine grapes. Lyall Mills Stream is used primarily as a public water supply source licensed to Water Corporation.
There are only two surface water rivers within the Busselton Coast Basin that are proclaimed. The Margaret River and its tributaries were proclaimed in 1946 for the equitable distribution of water and the regulation of the public water supply at 10-Mile Brook. The dam on 10-Mile Brook, a tributary of the Margaret River is also protected under the CAWS Act, with a public drinking water supply area and source protection plan associated with the dam area and the main river. Proclamation of the Margaret River and its tributaries was enacted under the RiWI Act in 1947 for the equitable distribution of water.
Most licensed entitlements are for dams on stream of tributaries of the Margaret River, with some pumps, usually in the main pools of the Margaret River. There are restrictions on pumping from the pools in the Margaret River in summer – regulated by conditions on licences. This is to maintain summer flows in the main branch in the lower reaches of the catchment, where it occurs naturally. All licensed extraction from the Margaret River and its tributaries occur within the Busselton-Capel Groundwater Area.
The Capel River System was proclaimed in 1969 to allow access to regulate, preserve from pollution, remove obstructions, clean and deepen the channels, and for equitable distribution of water. The proclamation covers the main river and the
18 South West Water Resources: Water Policy Overview
catchment area. Proclamation in 1997 of the catchment area of Mullalyup Brook was for the regulation of water for the public water supply dam, supplying the townsites of Kirup and Mullalyup. This area is protected under the CAWS Act, with a public drinking water supply area and source protection plan associated with the dam site. The remaining surface water areas within the Busselton Coast Basin are unproclaimed.
The Capel River System has remained largely unlicensed over the last 30 years. The construction of dams for irrigation and pumps in the main streams of the Capel River began in the 1950s – initiating the need for proclamation. Following proclamation, most extraction infrastructure was constructed and implemented from the 1970s until the 1990s.
Few surface water licences have been issued over the 30-year period since proclamation. Active licensing was deemed unnecessary in comparison to other areas, as the area was considered stable, with few stream disputes and low pressure for large extractions. Surface water licences that were issued were usually in conjunction with a groundwater licence, or where a large allocation from the resource was requested (>500 ML/yr) with a need for security over their supply.
The majority of licensed entitlements are in the upper reaches of the Capel River and are predominantly for dams on stream. Pumping from the main channel of the Capel River occurs mainly on the flats in the Swan Coastal Plain area.
The Capel River system has many licences currently in draft status, as licensing on this river has changed recently with a water use survey conducted in 2004. The survey was undertaken because of a large application submitted to construct a dam on a tributary of the Capel River. Before a licence could be issued a survey was needed to identify the current use and the viability of the proposal against existing use. The survey was initiated in early March 2004 to quantify the domestic and commercial usage of water from surface water resources in the Capel River catchment. It also aimed to create a better understanding within the agency on community views regarding water resource management at an economic, social and environmental level. Unlicensed water users and new applications on the Capel River are now being actively licensed.
The Blackwood River remains proclaimed for equitable distribution of water. However, there are six small sections, which were all proclaimed in 1997 for the purpose of water regulation for town water supply. They are the minor tributaries of Millstream, Dumpling Gully, Hester, Moultons Gully, Balingup Brook, Mullyalup, and Tanjannerup Brook supplying the towns of Balingup, Bridgetown, Hester, Boyup Brook and Nannup. There are no other licences on the Blackwood River and all are dams on stream. Private extraction from surface water resources on the Blackwood Plateau is generally for riparian use.
19 South West Water Resources: Water Policy Overview
The Whicher Committee and the Department’s South West regional office have recommended the proclamation of the following areas in order to manage current and future water use.
Table 3. Recommended Priorities for Proclamation
Surface Water Surface Water Management Surface Water Management Sub- Management Area to Sub-areas to be proclaimed areas to be subject to by-laws be proclaimed Busselton Coast Busselton Coast Basin Naturaliste Creeks Turner Brook Dunsborough Coast Boodijidup Brook Vasse River Upper Margaret River Wonnerup Middle Margaret River Calgardup Brook Middle Margaret River Ellen Brook Ten Mile Brook Margaret Town Lower Margaret River Bramley Brook Cowaramup River Biljedup Brook Wilyabrup Brook Quininup Brook Gunyulgup Brook Carbunup River Naturaliste Creeks Dunsborough Coast Vasse River Wonnerup Calgardup Brook Ellen Brook Blackwood River Basin Lower Blackwood River West Bay Creek Upper Chapman Brook Twinems Bend Chapman Brook Nillup Creek Rosa Brook Glen Warner St John Brook Glen Warner North West Bay Creek McLeod Creek Twinems Bend Rushy Creek Nillup Creek Glenarty Creek Glen Warner Turnwood Creek Glen Warner North Scott River McLeod Creek Adelaide Brook Rushy Creek Careys/Peenebup Brook Glenarty Creek Judy Brook Turnwood Creek Milyeannup Creek Scott River Red Gully Adelaide Brook McAtee Brook Careys/Peenebup Brook Jalbarragup Creek Judy Brook Carlotta Creek Milyeannup Creek Ellis Brook Red Gully McAtee Brook Jalbarragup Creek Carlotta Creek Ellis Brook Note: Barlee Brook, Tanjannerup Brook and Capel River catchments are already proclaimed.
20 South West Water Resources: Water Policy Overview
Water planning
The State Water Plan currently being developed will provide the overarching strategic context for water management in Western Australia.
The draft Water Policy Framework is the first stage in the development of the Plan and has been released for public comment. The draft vision for water resource management, objectives, and outcomes has been taken from this document, as the basis for the development of the South West Plan. When finalised, the State Water Plan will inform the development of regional water plans for all areas in Western Australia.
The next stage in the State Water Plan will be a draft Water Planning Framework. In addition to a State Water Plan and regional water plans, the Framework will outline the development of four key water planning tools:
• Water management plans
• Arterial drainage plans
• Flood plain management plans
• Source protection plans.
The Department is responsible for the development of these plans. Note also, that all land use decisions can have a significant impact on these plans and the plans can have a significant impact on land use decisions..
These plans and linkages to land planning processes are discussed in this section.
The South West Water Plan may include recommendations that any of the above- mentioned water planning tools be developed in specific areas. These planning tools should also have reference to priority issues, any community values, or environmental values identified as significant in the South West Water Plan.
Water management plans
The National Water Initiative (NWI) highlights the importance of statutory water management plans in water resource management. Schedule E to the NWI provides the characteristics and components to guide the preparation of statutory management plans and includes:
• Water sources covered by the plan;
• Current health and condition of the water system(s);
• Assessment of connectivity between surface and groundwater systems;
• Risks that could affect size of the resource and allocations;
• Overall objectives of water allocation policies;
• Knowledge base to support decision-making and how it will be improved;
21 South West Water Resources: Water Policy Overview
• Use and users of the system(s) including cultural, Indigenous and social uses;
• Environment and other public benefit outcomes and how they will be met;
• Estimated reliability of the water access entitlement;
• Rules on the distribution of the consumptive pool;
• Rates, times, circumstances and quantity of taking water for the system(s);
• Compliance conditions (including measurement, monitoring, reporting, minimizing impacts on environment and third parties and site specific requirements);
• Pathway to address any over-allocation or over-use;
• Plan duration consistent with level of knowledge and development;
• Consultation with stakeholders;
• Review process; and
• Consideration of NRM plans, impacts on downstream systems, water interception.
The intent of making water management plans statutory is to provide certainty and security for the environmental, economic, and social uses of water. In addition, statutory water management plans include conditions for the monitoring and management of the resource. Statutory water management plans increase the security and certainty associated with a water resource for all users.
Ideally, the duration of a statutory water management plan reflects the level of knowledge of a resource. That is, where the level of knowledge of a resource is high, the plan’s length can be extended. Alternatively, where the level of knowledge is low, the plan’s length will be reduced. The level of knowledge of a resource generally increases with use.
Table 4 summarises the status of water allocation planning for the South West:
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Table 4. Summary of water allocation planning for the South West
Area Water Type of plan Status Completed/ Resource Due Bunbury Groundwater Non-statutory Completed 1994 Statutory Under 2008-09 development Busselton - Capel Groundwater Non-statutory Completed 1995 Statutory Under 2008-09 development Blackwood Groundwater Statutory Under 2008-09 development Collie River Basin Groundwater & Statutory In development 2009-10 Surface Water Harvey River Basin Surface water Non-statutory Complete 1999 Collie River Basin Surface water Non-statutory In development 2008-09 Preston River Basin Surface water Busselton Coast Basin Surface water Donnelly River Basin Surface water Not scheduled at this time Blackwood River Basin Surface water Warren River Basin Surface water Shannon River Basin Surface Water
Arterial drainage plans
The Department has responsibility for drainage governance and planning reform. This includes urban, coastal, and inland drainage. The current principal providers of drainage services are local government (60% of all drainage services) and Water Corporation.
The Department is developing a framework to ensure that drainage services are provided in a coordinated and efficient manner. The Department’s role is to undertake water planning at State and regional levels as well as to facilitate coordination and integration across the drainage sector. The Department will pursue a total water management cycle approach.
The Department is currently developing a program that will cover urban, coastal, and inland drainage matters. However, no arterial drainage planning has yet been completed for the region.
Flood Plain Management Planning
The Department provides advice to other land planning statutory bodies regarding flood plain management. The Department also provides flood plain mapping and flood forecasting and warning systems.
Floodplain Management Plans are the recommended means of assessing and managing the flood risks associated with various uses of the floodplain. They represent the views of the local community, local government and State agencies on how best to manage flood prone land and provide a long-term plan for future community development. FPM plans include integrated risk management for
23 South West Water Resources: Water Policy Overview
existing, future and residual flood risks, as well as flood warning/forecasting and emergency response planning.
Floodplain mapping and associated floodplain development strategies have been carried out for a number of areas in the South West, but no formal FPM plans have yet been developed. FPM plans are usually undertaken when stakeholders, local government and government agencies agree there is a need for more detailed planning than is contained in floodplain development strategies. In the South West, floodplain mapping and associated floodplain development strategies have been produced for the following rivers:
• Preston River (Bunbury)
• Leschenault Estuary
• Five Mile Brook (Bunbury)
• Collie River (Leschenault Estuary to Australind Bypass, Collie)
• Brunswick River (Collie River to Australind Bypass)
• Busselton Regional Flood Study (Busselton)
• Blackwood River (Boyup Brook, Bridgetown, Nannup, Augusta to Warner Glen Bridge)
• Toby Inlet (Quindalup).
Local governments are encouraged to incorporate floodplain mapping and associated strategies into their Town Planning Schemes and policy statements. In this way the recommendations of floodplain development strategies are implemented through land use planning and development controls.
Telemetered flood warning/forecasting networks are present for the following rivers:
• Preston River
• Collie River
• Blackwood River
• Vasse River Diversion (Busselton).
Flood mitigations works exist for the following areas:
• Preston River levee banks (Bunbury) – Water Corporation
• Vasse River Diversion levee banks (Busselton) – Water Corporation
• Busselton Detention Basin Network (Busselton) – Water Corporation.
Water source protection plans
The status of these plans is specifically discussed under the objective “Deliver Services to Build Strong and Healthy Communities”.
24 South West Water Resources: Water Policy Overview
Integration of land and water planning and management
Water management, drainage and source protection plans relate directly to land use.
There is currently no statutory requirement for land planning to have regard to these plans, and the Department is not a clearing authority for land development or zoning purposes. Existing land use plans and policies are listed below.
Table 5. Land Use Plans and Policies relevant to South West
Land Planning Statutory? Number Name Date Framework Element Statements of Yes SPP 2.1 Peel Harvey Coastal Plain 1992 Planning Policy Catchment Policy SPP 2.5 Agriculture and Rural Land Use 2002 Planning SPP 2.6 State Coastal Planning Policy 2003
SPP 2.7 Public Drinking Water Source 2003 Policy SPP 2.9 Water Resources - draft 2004
SPP6.1 Leeuwin Naturaliste Ridge Policy 2003
Regional No Leeuwin-Naturaliste Region Plan 1988 Strategies – Stage 1 Leeuwin-Naturaliste Region Plan 1988 – Stage 2 – draft Bunbury – Wellington Regional 1995 Plan Coastal and Lakelands Planning 1999 Strategy Dawseville-Binningup Warren – Blackwood Regional 2000 Planning Strategy Warren – Blackwood Rural 2004 Strategy Regional and Sub No Dunsborough Structure Plan 1990 Regional Structure Plans Greater Bunbury Structure Plan 1995
Collie Basin Structure Plan 1995
Planning No Busselton-Wetlands 2005 Strategies Conservation Strategy Industry 2030 – Greater Bunbury 2000 industrial land and port access planning
It is intended that, progressively, land planning processes (both strategic and statutory), should have regard to these water plans. One of the projects in
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development under the Water Reform program is a review of the integration of land use management and planning and water resource management and planning. While this project is predominantly concerned with the reservation of priority agricultural land, it also examines mechanisms for closer integration of land and water management and planning processes.
A major land use conflict in the South West concerns recreational use in dams that have been listed for future drinking water supply. Logue Brook Dam is the subject of controversy because of the proposal by Harvey Water and Water Corporation to trade the current allocation from Harvey Water to Water Corporation for public water supply, subject to regulatory and other conditions. If this happens, Logue Brook Dam would have to be closed to recreation to preserve the integrity of the water supply for public drinking water. The issue of conflicting potential uses for Logue Brook is subject to regulatory oversight by the Department of Health and the Department. However, the Minister for Water Resources will make the final decision on whether or not to use the dam.
The increase in private plantation forestry is an example of a land use change with potential implications for water availability in the region. Plantations can affect local groundwater levels and the amount of run-off that would normally go into wetlands and waterways. At the moment, there are no mechanisms to consider the impacts of changing land uses on the availability of water resources.
Interests of Indigenous communities
Native Title and Water
Under Australian law, Native Title recognises that some Indigenous people continue to hold rights to their land and waters arising from traditional laws and customs. Native Title can exist where:
• The rights and interests under traditional laws is acknowledged and those customs are currently observed by Indigenous peoples;
• The Indigenous people have a ‘connection’ with the land or water in question;
• The rights and interests are recognised under Australian common law.
Native Title can be extinguished if the government grants certain rights or allows others to do things in an area that may be inconsistent with Native Title. Native Title exists alongside other rights granted to people, it does not remove any other existing rights that might exist.
Certain areas cannot have native title claims made over them and these are:
• Residential freehold;
• Freehold farms;
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• Pastoral/agricultural leases granted exclusive possession;
• Residential, commercial or community property leases; and
• Public works, eg schools, roads, hospitals.
Native Title rights are a set of rights that may include:
• The right to live on an area;
• Access to the area for traditional purposes and ceremonies;
• The right to visit and protect important places and sites;
• The right to hunt, fish, and gather food and traditional resources like water, wood and ochre; and
• Access to teach law and custom.
Native Title rights over water are subject to regulation. They do not give holders of Native Title rights any veto over future development. However, the rights of Native Title holders must be taken into account during decision-making.
Involvement in Water Management
There are currently no explicit formal mechanisms within the Department of Water for Indigenous involvement in or consultation on water management. The RiWi Act provides that persons who ”have knowledge and experience relating to the water needs and practices of local communities, including Aboriginal communities” may be appointed to water resource management committees. The Department has not been successful in attracting Indigenous representation on the Whicher or Warren committees.
However, studies on Indigenous values in water and consultation with Indigenous peoples have previously been commissioned by the Department for different projects. Studies specifically commissioned on Indigenous water values in the South West are detailed below.
Other organisations also consider Indigenous values in water. The South West Catchments Council has an Aboriginal NRM Coordinator to assist it with Indigenous involvement.
Indigenous Water Values
Two studies have been commissioned to assess the cultural values of the South West and to determine the social water requirements for Aboriginal culture. Goode & Associates completed these for the Water and Rivers Commission in 2003 and 2006 respectively.
For Nyoongar people, water sources (including groundwater) are central to their spiritual beliefs and the health of the environment. The importance of water and the environment is both spiritual and practical (providing resources for life). The
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Aboriginal people have a strong belief that they are connected to the environment and are tasked with its maintenance. The change of the landscape since European colonisation has diminished the integrity of the environment. This has led to a loss of cultural connection for the Aboriginal community and problems in maintaining their traditional associations.
Aboriginal people who participated in the studies wished to see that an ethic of “taking only what you need” from the environment is adopted rather than “taking too much” that they currently see happening.
Local Aboriginal representatives confirmed the importance of all waterways and water bodies as part of the dreaming paths of the Aboriginal people. They are of high spiritual significance. Waterways are also important boundaries between tribal groups and provide travel routes and food sources.
In the community consultation process, Aboriginal representatives raised a number of concerns regarding water use in the study area. These included broad concerns about the impacts of groundwater abstraction on regional flora and fauna as well as specific issues, such as the sustainability of fishing and marronning and impacts of acid sulphate soils.
The Blackwood River was identified as a significant and sacred site during community consultations. This river has since been listed on the permanent register of Aboriginal Heritage sites following assessment by the Aboriginal Cultural Materials Committee of the Department of Indigenous Affairs under the Aboriginal Heritage Act 1972 (WA). It is reported to be a site of mythological significance in association with the Waugle. The Blackwood River tributaries are also believed to be associated with the Waugle that lives in the Blackwood River.
According to the study undertaken by Goode & Associates, because the Yarragadee aquifer ‘recharges’ the Blackwood River through base flow discharge, the groundwater in the Yarragadee aquifer is considered as the ‘same spiritual energy as the Blackwood River’, and therefore the aquifer could be associated with the Waugle.
The Margaret River and Lake Jasper are both believed to have, or to have had mythological significance to Aboriginal people.
In dealing with Aboriginal cultural values, the Department must comply with Western Australia’s Aboriginal Heritage Act 1972 and the Commonwealth’s Native Title Act 1993. The listing of any river or aquifer under the Aboriginal Heritage Act 1972 has implications for any works undertaken for the extraction of water that may affect the specific values of those sites. This may include clearing or drilling for bores for investigative or consumptive purposes.
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Fair and transparent processes
Fair and transparent water resource management processes are generally supported by:
• Clearly defined policy
• Clearly defined planning framework
• Community involvement and consultation
• Accessibility to public information on water availability, use and quality
• Rights of appeal or review.
Community involvement and consultation
Every effort is being made to engage with the community on the development of the Regional Water Plan. The creation of the South West Water Forum has been an important part of this process, together with opportunities for public submissions and community workshops.
The development of statutory water allocation plans is an extremely important tool for the sustainable management of water resources in the region. Under current legislation, there are two requirements for community involvement in the development of these plans.
Firstly, the Government must consult with any existing relevant water resource management committee in preparing a plan. Secondly, the agency must allow a two- month public review period for any draft water resource management plan before finalising it.
The Department has not commenced any statutory planning processes at this time.
Accessibility of information on water availability, use and quality
This issue is addressed in more detail under the “Build knowledge and capacity through science and innovation” objective.
Rights of appeal or review
All licensing decisions of the Department are subject to appeal to the State Administrative Tribunal. There are no appeal provisions in the legislation with respect to statutory planning decisions.
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Build knowledge and capacity through science and innovation
Sound science Water resource management is underpinned by sound science and development of a knowledge base, which includes the physical, biological, economic and social sciences.
Resource investigation The State is responsible for coordinating resource and assessment investigation and assessment in partnership with water users.
Water resource All surface and groundwater resources are accounted accounting for, with priority given to high value resources.
Water resources Information on water resources is accurate, Information maintained, publicly available and accessible.
Performance monitoring Performance indicators are developed and monitored for water resource management and service provision.
Innovation and research Research and development is coordinated to develop our knowledge base and investigate innovative ways to manage our water resources.
Capacity building and Water expertise and understanding is developed in Public education partnerships across the public and private sectors and the community.
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Sound science
Sound knowledge of the biological, physical and socio-economic knowledge base of any water resource is required to manage it comprehensively for a sustainable future. It is important to recognise that local and Indigenous knowledge are also useful sources of information to support any technical investigations of an area.
The Government is committed to ensuring investigation of potential resources occurs in a timely and cost-efficient manner, that the water needs of environmental assets are understood and managed and that water availability and use is properly accounted for under good management. Particular issues that require sound science to support decision-making are land use and water availability, impacts of climate change on water resources, and baseline information on water needs for environmental assets.
Research and investigations are ongoing in many areas including:
• Resource investigation and assessment;
• Water resource impacts from land use changes; and
• Climate change and impacts on water resources.
Accessibility to sound scientific research and resource monitoring, as well as public involvement in research, are fundamental to this objective.
Resource investigation and assessment
The Department has an on-going program of investigation for ground and surface water systems. It is outlined in the publication Groundwater investigation program in WA (2005 to 2020) published in 2005. Investigation programs prioritised in the South West include:
• Leederville aquifer - Cowaramup (2006)
• Leseur Sandstone aquifer – Blackwood (2014)
• Yarragadee South aquifer – Blackwood (2014)
• Yarragadee aquifer – Bunbury and Busselton-Capel (2016)
• Superficial aquifer – South West coastal (2016)
• Leederville aquifer – South West coastal (2019).
The objectives of the groundwater investigation and monitoring program are to define the size and extent of aquifers, determine the magnitude of the groundwater resource in order to manage impacts and consumptive use, as well as monitor water levels and groundwater quality on an ongoing basis. Investigation priorities are determined based on future needs for new sources or because of greater information required to manage existing sources effectively. In March 2006, the Department
32 South West Water Resources: Water Policy Overview
commenced a drilling program in Cowaramup to further investigate the Leederville aquifer to improve current local knowledge. This work has been given priority because of increasing residential and other development around Margaret River and the Cowaramup townsite.
Where increased pressure for abstraction is placed on a new or relatively undeveloped resource, proponents may be required to undertake investigations to contribute to knowledge of a resource and to determine the impacts of proposed abstraction. For example, in the South West Yarragadee system, Water Corporation undertook an intensive groundwater investigations program to improve knowledge of the aquifer. From this knowledge base, a groundwater model was built jointly with the Department.
Similarly, Harvey Water has commissioned studies into the impacts on environmental flows and social impacts potentially arising from its current program of piping its distribution network.
Water resource accounting
The Department is responsible for water resource accounting. This includes monitoring of the state of surface and groundwater resources along with accounting for use. Efficient accounting of available water ensures a high level of knowledge in allocating water for the environment and users.
Knowledge of water use helps promote trade; supports water efficiency measures in farms, homes and industry; and ensures responsible use of limited water resources. Under the NWI, it is important also to account for the water use of major activities such as plantations that can potentially impact upon water availability. No framework currently exists in Western Australia that permits the measurement and inclusion of interception activities in management or licensing plans.
Water Resource Monitoring
There are nine bore networks in the South West region monitoring groundwater resources.
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Table 6. Monitoring Lines in South West
Area Groundwater Aquifer Monitoring Line Superficial Leederville Yarragadee Swan Coastal Bunbury Shallow (BS) 9 9 9 Plain Busselton Shallow (BN) 9 9 9 Picton (PL) 9 9 Boyanup (BL) 9 9 9 Quindalup (QL) 9 9 Blackwood Cowaramup (CL) 9 9 Karridale (KL) 9 9 Blackwood Plateau (BP) 9 9 Scott Coastal Scott Coastal (SC) 9 9 9 Plain
Water Metering
Metering is the measurement of use by water users. For groundwater licences, all water licences greater than 500 megalitres a year are required to be metered.
Currently there are 228 groundwater licences in the South West that include metering as a condition. This accounts for 7.6 per cent of all users. Of the 560 licensed surface water users in the South West, approximately 10 per cent have metering conditions. Because widespread compliance checking has not occurred, the Department is not able to report on how many meters are installed and how accurate they are.
Table 7. Surface Water Metering
Allocation quantity No. of licences No. of licences % of licences Total allocation inc with meter with meter reserve (ML/ yr) conditions conditions (ML/ yr) 0-5 24 1 4.17 51.9 5-20 123 7 5.69 1,581.8 20-50 128 8 6.25 4,418.5 50-250 223 10 4.48 24,818.4 250-500 35 3 8.57 12,244.0 >500 27 27 100.00 254,058.0 TOTALS 560 56 10.0 297,172.6
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Table 8. Groundwater Metering
Allocation quantity No. of licences No. of licences % of licences Total allocation with meter with meter inc reserve (ML/ yr) conditions conditions (ML/ yr) 0-5 2291 16 0.70 3,411.1 5-20 285 26 9.12 3,289.9 20-50 173 38 21.97 5,675.2 50-250 154 72 46.75 16,870.7 250-500 35 23 65.71 13,143.5 >500 53 53 100.00 156,677.0 TOTALS 2991 228 7.62 199,067.4
Water resources information
The Department maintains various databases of information relating to water resources.
Water Resources Licensing (WRL)
Licensing data, including size and location of water entitlements, is maintained in the Department’s WRL database. Information on allocation limits and boundaries of ground and surface water resources is maintained on a separate database. Neither of these is publicly available.
WRL is used primarily to administer the granting of licences to take water and update details of any changes to these.
Water Information Systems (WIN)
The Water Information System (WIN) has been developed to bring together water information data from various departmental databases. It contains groundwater and surface water information for the State. The database has been compiled from field measurements taken in waterways and wetlands, State or private bores, field specimens and laboratory measurements as well as map interpretation.
The database is an internal departmental database and not available to the public. It is used to provide information on various aspects of water sources including water quality and water level monitoring data. It is updated continually. The majority of information from the South West region is on the more highly studied groundwater sources rather than surface water sources
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Hydrogeological Atlas
This is a publicly available, online atlas (currently being re-developed) that shows the distribution of aquifers used for groundwater management, with a text description of each, a hydrogeological map of the State, originally produced at 1 : 2,500,000 scale, and various maps of groundwater salinity. It provides general information to the public and planners.
River level information
The Department provides a live Internet link that allows the public to access water level information from various waterways across the State. The pages on river monitoring stations provide summary and graphical presentations of river levels and some additional parameters, including rainfall from selected telemetered sites throughout Western Australia.
Telemetered sites have satellite, GSM, CDMA or modem equipment that allows downloading of the latest data from the site to a central location. Usually each site is downloaded once a day, but more frequently during times of flooding. This is of particular use to those members of the public in flood prone areas.
The site includes information from the South West on the Blackwood River, Preston River, Vasse Diversion Drain, Ferguson River, Thompson Brook, Collie River, Wellesley River and Brunswick River.
Water Resources Information Catalogue
The Water Resources Information Catalogue is an index of water resources data available from various Departmental databases. The data are collected from a variety of surface water and groundwater monitoring sites throughout the State and include water quality, rainfall, flows and water levels.
Monitoring sites within the State can be searched for using a map interface or criteria such as site number, river name and drainage basin. A summary of water resources data available for those sites is provided. Once the sites and data required have been identified, a request for the data can be sent to the Department’s Resource Information Branch.
The information is of interest to the public and students.
State-wide assessment of river water quality
The State-wide River Water Quality Assessment 2004 uses recent water quality information to determine the status and trends of nine key water quality parameters for all waterways in the State, where consistent data is available. The project was undertaken initially in 2000 and was subsequently updated to include water quality information up to the end of 2003.
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A total of 231 waterways were included in the assessment. The data is a snapshot of the most recent three-year period for status, and five-year period for trend calculations collected for each site. This website will be updated with the latest water quality classifications and trends every five years.
Community members and regional bodies are encouraged to access this site to learn about the quality of the water in their area. The website is intended to provide an indication of the quality of the water in a stream or river, for those who do not require the actual dataset.
Performance monitoring
Department of Water
In the 2005 Annual Report of the Water and Rivers Commission, a number of key performance indicators are reported. These include:
• number of water resources with licensed allocation exceeding assessed sustainable yields;
• number of contamination occurrences exceeding drinking water standards in public drinking water source areas;
• average cost per water resource assessment;
• average cost per gigalitre of water licensed;
• average cost per protection plan developed;
• processing costs as a percentage of total grants;
• number of exceedances of resource condition targets in designated catchments;
• number of nuisance algal blooms recorded annually;
• average cost per km of river managed in designated catchments; 2 • average cost per km of designated catchments where salinity management measures are implemented; and
• average cost of provision of advice.
Water service providers and cooperatives
As public service providers, Aqwest, Busselton Water, and Water Corporation are required to report on key performance indicators specified in their operating licences, issued and regulated by the ERA. This information is subject to independent third party audit as a condition of their licences.
All cooperatives are also subject to key performance indicator reporting as specified in their operating licences.
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Innovation and research
With increasing demands for water and the need to manage within sustainable limits, innovation and research are crucial to the future management of water resources.
A number of key organisations are undertaking important water-related research in the South West region that will help build a sustainable water future.
Premier’s Water Foundation
The Premier’s Water Foundation was established in 2004 and funded by the State Government. The Foundation supports research and development projects that challenge boundaries and investigate innovative new ways of conserving water and maximising reuse of wastewater.
In 2005, $3 million of funding was provided for grants as part of the foundation. A second round of funding for an additional $3 million is currently underway.
No programs have currently been funded that are directly based in the South West, but some of them may have indirect benefits to the region. These include:
• CSIRO Land and Water – Investigation techniques to better manage Western Australia’s non potable water resources.
• Environmental Technology Centre, Murdoch University – Demonstration of decentralised wastewater recycling in urban villages.
• WA Vegetable Growers’ Association – A web-based expert system for efficient vegetable irrigation on sands.
South West Catchments Council (SWCC)
The SWCC, as the peak regional natural resource management organisation in the region, has a substantial investment program for research and investigations relating to water and the environment. Current projects being funded by the SWCC include:
• Environmental Water Provisions in Water Allocation.
• Best Management Practice Storm Water Management in Cape, Busselton and Augusta-Margaret River Shires.
• Monitoring and Evaluation Framework for Water – Establishing Condition, Developing Targets and Measuring Progress.
• Nutrient, water and sediment catchment models to support investment decision-making.
• Supporting decisions that link land use and management with water quality outcomes.
• Fish migration patterns in the Blackwood River – Decision support for EWR studies in the SW of WA.
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• Wetland mapping classification and evaluation program for priority areas, South West WA.
• Design and Operation of Coastal Drainage Systems.
• Adapting existing modelling processes to set receiving and land use water quality targets for intensive industries.
The South West Catchments Council has recently submitted its 2006-08 Investment Plan to the Australian and Western Australian governments. The plan will see approximately $40 million spent on the region's assets in the coming two years. Water is a significant focus of this investment, and the intent of many of the above projects will be continued. Water-related initiatives within the SWCC's 2006-08 Investment Plan will predominantly be related to water quality, due to the significant level of funding provided under the National Action Plan for Salinity and Water Quality, by the Australian and Western Australian Governments.
Australian Government Water Fund
The Commonwealth Government funds three programs under the Australian Water Fund. They are the Water Smart Australia Program, the National Water Standards Program, and the Community Water Grants Program.
The Water Smart Australia Program was established to accelerate the development and uptake of smart technologies and practices in water use across Australia. The Raising National Water Standards Program aims to assist the development of the necessary tools for good water management in Australia. It is managed by the National Water Commission and targets investment in Australia’s national capacity to measure, monitor, and manage its water resources.
The Community Water Grants Program promotes community engagement, awareness, and investment in saving and conserving water. It encourages best practice measures and the demonstration of water wise solutions adapted to local needs and problems.
The Community Water Grants program addresses three theme areas of:
• water use, efficiency and conservation;
• water reuse and recycling; and
• improving surface and groundwater health.
In the first round of funding announced in March 2006, 151 community groups (including schools) in WA received funding for diverse projects including collection and use of rainwater, grey-water reuse, installation of water-efficient toilets, wetland revegetation, and installation of water-efficient devices. Projects financed in the South West include:
• school water efficiency – Yallingup Steiner School and Vasse Primary School;
• saving water by using a weather station for irrigation – City of Bunbury; and
39 South West Water Resources: Water Policy Overview
• restoring water quality – Leschenault Catchment Council.
No Water Smart Australia projects have yet been funded in WA. The Water Smart Australia program is currently calling for applications for funding.
CSIRO
The CSIRO Water for a Health Country flagship program has identified south- western Australia as a key research area. It is investing in research to support the sustainable supply of water for the South West.
The South West as defined by CSIRO includes the entire South West land division that extends from Geraldton to Augusta. While a number of projects are located outside the boundaries of this plan, it is acknowledged that South West water futures are linked with water use and availability options outside of the plan area (particularly in Perth) and water quality being impacted by catchment and salinity management in adjacent river systems.
Water for a Healthy Country Flagship is tackling these challenges by carrying out research to help:
• increase water use efficiency and water reuse on farms and in urban areas;
• understand whole water systems and their interdependencies;
• use this whole-systems approach as a basis for investment and management;
• identify and utilise excessive saline groundwater as a supplementary resource;
• plan and develop new water sources;
• incorporate social and economic issues into water management to enhance sustainability and facilitate adoption; and
• improve the management of current water resources in a drying climate.
The research projects in south-west Western Australia are divided into two themes:
Urban Futures theme
• Perth Water Systems: Improving management of Perth's water systems.
• Water Reuse Technologies: Finding acceptable ways to reuse water.
• Swan Futures: Understanding how movement of water and nutrients through the Swan catchment, including urban areas, affects the health of Perth's rivers.
• Potable Water Quality: Determining the effectiveness of biofiltration and other treatment options for preventing the deterioration of water quality between the treatment plant and the customer.
40 South West Water Resources: Water Policy Overview
Rural Futures theme
• Rural Town Water Management: Tackling urban salinity and waterlogging.
• Wheatbelt Drainage Evaluation: Evaluating the impact of on-farm and arterial drainage systems.
• Farm Water Futures: Helping people to manage water flows on farms and the broader landscape.
• South West Water: Improving irrigation systems for increased productivity, profitability and social wellbeing while minimising downstream impacts.
• Avon River Basin 2050: Exploring alternative future landscapes for the Wheatbelt of Western Australia.
Other — Centre of Excellence for Sustainable Mine Lakes (CSML)
Mine lakes develop when open cut mines intercept the watertable, a common result of mining operations in many countries. Water quality in a mine lake can vary across time and is dependent on a host of factors including the oxygen status of the lake, pH, the hydrogeologic flow system, composition of wall rock, evapo-concentration, biological activity and hydrothermal inputs.
CSML research is designed to enhance understanding of the formation, management and use of mine lakes. Their research will help develop new models for mine pit closure that will be applied to national and international situations.
CSML research programs focus on three main themes:
• Prediction of water quality in mine lakes with and without remediation;
• Remediation of mine lake water with an emphasis on low pH problems; and
• Beneficial end uses of mine lakes and mine lake water supplies.
Capacity building and public education
Capacity building for water management refers to a range of activities by which individuals, groups and organisations improve their capacity to achieve sustainable water management. Capacity in this context includes awareness, skills, knowledge, motivation, commitment and confidence. Capacity building can be an issue for diverse groups such as landcare groups, Indigenous communities, industry sectors, local government and State/Territory and Commonwealth Government agencies.
Capacity building goes beyond the traditional top down approach of enhancing skills and knowledge through training and the provision of technical advice. It focuses on enhancing genuine community engagement in all aspects of water management from planning to on-ground actions. Therefore, in addition to the transfer of
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technology and technical capability, capacity building should foster social cohesion within communities, and build both human and social capital.
Below are some of the organisations and groups engaged in education and capacity building activities to increase their understanding and involvement in various aspects of water management.
Ribbons of Blue
The Ribbons of Blue/Waterwatch WA is an environmental education network aimed at increasing community awareness and understanding about local water quality, and taking action for a better environment.
Ribbons of Blue programs involve school students and community groups in monitoring water quality. Data collected from the sampling provides valuable information for identifying environmental problems and preparing management plans. Based on the outcomes of their monitoring, participating groups may develop action strategies to help manage any problems identified. Ribbons of Blue encourages a team-oriented approach and fosters partnerships with local management authorities.
In the South West, the Ribbons of Blue Program is 95 per cent funded by SWCC with some in-kind contributions from the Department and the Department of Environment and private companies. The 2005-06 program has almost $350,000 in funding. The South West Catchments Council is continuing to support the Ribbons of Blue Program in its 2006-08 Investment Plan.
ICLEI Water Campaign
Four local governments in the South West region are members of the International Council for Local Environmental Initiatives (ICLEI) Water Campaign. The Water Campaign is an international freshwater management program, designed to build local government capacity to reduce water consumption and improve local water quality.
The WA Government has funded the ICLEI WA Water Campaign since November 2003 and recently committed to additional funding of $600,000 dollars for another three years. The SWCC also contributes to ICLEI and will continue to do so through its 2006-08 Investment Plan.
The campaign focuses on the two separate issues of water quality and water conservation at “corporate” (within council operations) and community levels. A framework to address water management at catchment levels is currently being developed.
The campaign begins with a public commitment from signatory local governments and then focuses on the achievement of key milestones.
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Milestone 1: Complete an inventory and gap analysis of water consumption and water quality practices. Milestone 2: Set goals to improve water management. Milestone 3: Develop a local action plan. Milestone 4: Implement the local action plan. Milestone 5: Complete a second inventory and report on progress.
These five milestones each have established requirements to ensure that the work completed is of a high standard that allows ICLEI to aggregate the data at State and national levels. This aggregated data is released annually in the form of inventory reports. Table 9 summarises the progress of signatory local governments in the region:
Table 9. ICLEI Water Campaign participation in the South West
Commitment Milestone Milestones One Two – Five City of Bunbury 9 9
Shire of Harvey 9 9
Shire of Capel 9 9
Shire of Augusta- 9 9 Margaret River
Waterwise schools
In Western Australia, over 260 schools have become Waterwise schools. This program of Water Corporation supports the education of students, families and communities about the need to value, protect, and conserve our precious water resources. In addition to an educative role, the program promotes behavioural change at the individual and school levels to support water conservation and responsible use of resources.
Table 10 shows the schools that have joined the program in the South West. A number of other schools in the region are working towards recognition.
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Table 10. Waterwise schools in the South West
Allanson Primary School Picton Primary School Busselton Primary School Pinjarra Primary School Bunbury Primary School Riverside Education Support Centre Capel Primary School Riverside Primary School Cornerstone Christian Community School St Brigid's School (Bridgetown) Donnybrook DHS Primary School St Bernard's School (Kojonup) Dwellingup Primary School St Mary’s Catholic Primary School (Bunbury) Foundation Christian College Unity Christian School Glencoe Primary School Vasse Primary School Greenfields Primary School Picton Primary School
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Protect water resources to conserve our environment
Planning for the Water resource planning at State, regional and local levels environment will identify direct and indirect ecosystem benefits that underpin the health and viability of our river systems, groundwater basins, wetlands and quality of life.
Ecological High value, water-dependent ecosystems are a priority for conservation protection.
Water quality Government, water users, and the community share a responsibility to protect water quality and biodiversity in natural systems and where possible, restore them.
Water and Environmental outcomes will be determined through a environmental transparent process that specifically considers climatic outcomes variability and social and economic interests.
Water and the Water allocated to the environment will be determined on environment the best available scientific knowledge to achieve agreed environmental outcomes.
Maintaining the health of waterways ensures continuous good quality water for the environment and society.
Maintaining environmental values is of particular importance in the South West with its abundance of beautiful natural ecosystems that are important to both locals and visitors. Healthy waterways support various dependent industries including recreational and commercial fisheries, tourism, and recreation. Wetlands also play a role in nutrient and sediment removal, flood mitigation, and erosion control.
This section provides an overview of work in the South West to identify, protect, and manage the water resources in the region.
Planning for the environment
The Draft Water Policy Framework emphasises the importance of planning for water. This is consistent with the NWI that emphasises statutory water management planning in particular, to identify water outcomes for the environment and other uses.
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The RiWI Act identifies the protection of ecosystems as a key objective for water management in Western Australia. Planning is vital to protecting ecosystem assets. In planning to provide environmental water, the Department of Water is guided by the State-wide Policy no: 5, Environmental Water Provisions Policy for WA (2000). This document describes principles and processes to be applied by the Department when allocating water for the environment.
The Department has a two-stage process for deciding how much water is needed to maintain environmental systems for water management planning. In the first stage, the Ecological Water Requirements (EWR) are determined.
These are the water regimes needed to maintain ecological values of water- dependent ecosystems at a low level of risk. EWRs are determined on the basis of the best scientific information available and are the primary consideration in the determination of Environmental Water Provisions.
Environmental Water Provisions (EWP) are the water regimes that are provided as a result of the water allocation decision-making process taking into account ecological, social and economic impacts. They may meet in part or in full the ecological water requirements. The requirements for EWPs can be included in management plans or operating strategies.
The process as described in State-wide Policy no 5 is described below. It is intended to be is carried out with active public consultation and involve the following steps: 1. Identification of ecological values supported by the water system and determination of vital or important components of the ecosystem and ecosystem processes which support these values and which are sensitive to changes in the water regime. 2. Determination of water requirements (EWRs) for sensitive components of the ecosystem that preserve the ecological values. 3. Modelling the water resource system to estimate water available for consumptive use with EWRs applied. 4. Formulation of management objectives for the water resource system, including social water requirements. 5. Proposing EWPs using existing information on EWRs and taking into consideration vital consumptive and social uses. 6. Determination of proposed quantities of water available for consumptive uses (the sustainable yields), after first allowing for EWPs. 7. For environmentally significant proposals: (a) review of the proposed EWPs and associated estimates of the water available for consumptive use, by the EPA under the provisions of the Environmental Protection Act 1986;
46 South West Water Resources: Water Policy Overview
(b) specification, by the Minister for the Environment, of key ecological values which must be protected and any requirements for further investigations necessary to refine the EWR/EWP regime in the future. 8. Finalisation and approval, by the Minister for Water Resources, of the water allocation plan which ensures EWPs protect the ecological values set by the Minister for the Environment and provides allocation guidelines for consumptive uses. 9. Adoption, by the Water and Rivers Commission, of a compatible water allocation licensing policy for managing the consumptive water use in the management area. 10. Review of EWRs/EWPs as information becomes available from monitoring and further research.
Implicit in this approach is that EWPs cannot be tradeable. Only water that is in excess of EWPs (by definition) may become available for consumptive uses.
To date, however, existing non-statutory local water allocation plans have not detailed environmental assets to be protected nor established requirements to maintain these assets. Additionally, no statutory water allocation plans have been developed that include environmental water provisions.
However, environmental water provisions have been established for most of the major dams located in the South West Water Plan area. These are included in individual operating strategies rather than water management plans.
The most significant public water supply and irrigation dams with environmental flow provisions in force include:
• Harvey River Basin; and
• Collie River Basin.
The Harvey system is monitored by Water Corporation under licence conditions established under the RiWI Act. Water Corporation under provision of the Environmental Protection Act also monitors the Collie System. For both systems, Water Corporation reports to the Department.
Apart from the Harvey and Collie systems, EWPs have not been set for most of the surface water systems in the South West. Work has been completed to determine environmental water requirements and provisions on some systems and they are shown in the table below.
47 South West Water Resources: Water Policy Overview
Table 11. Status of environmental water planning for South West surface systems
Groundwater management area EWR EWP Studies being conducted Harvey River Basin • Harvey River 9 9
Collie River Basin • Collie River to Wellington Dam 9 9 • Harris River 9 9 • Wellington – Leschenault Estuary 9 9 • Tributaries of Wellington, Collie and Harris 9 Rivers 9 • Upper Brunswick River
• Brunswick surface water management area 9
Preston River Basin • Upper and middle Preston River 9 Busselton Coast Basin • Capel River 9 • Wilyabrup Creek 9 • Cowaramup River surface water 9 management area 9 • Margaret River Donnelly River Basin Shannon River Basin Blackwood River Basin • Chapman Brook 9 Warren River Basin • Lefroy Brook 9
Planning for water-dependent ecosystems is also carried out by non-government organisations such as the SWCC. The projects undertaken by the SWCC are generally concerned with broader natural resource management issues, in particular water quality and ecosystem health. Some of the current planning activities of the SWCC include:
• Blackwood River Water Quality Recovery Plan (Salinity); and
• Plans For The Restoration Of Priority Waterways In The Geographe, Capes, Leschenault And Warren Catchment and River Action Planning – West Bay Creek.
SWCC will continue its investment in planning for water-dependent ecosystems and on-ground action within its 2006-08 Investment Plan, including investment in water quality in the Scott River and Hardy Inlet, Leschenault Estuary System (including associated rivers) and the Vasse-Wonerup System. Protection and restoration of regionally significant waterway assets through the establishment and implementation of river action plans across the region will also benefit the environment of the South West.
48 South West Water Resources: Water Policy Overview
Ecological conservation
The SWCC has comprehensively reviewed and categorised high value water- dependent ecosystems in the South West. These are listed earlier in this report.
These water-dependent systems include important estuaries such as the Vasse- Wonerup system and waterways such as the Blackwood River. Other regionally important water-dependent ecosystems are valued for both their naturalness and the recreational pursuits they provide such as swimming, fishing, canoeing, and camping. These systems include:
• Blackwood River
• Lake Jasper
• Donnelly River
• Warren River
• Doggerup Creek
• Lake Maringup
• Shannon River
• Lake Muir and
• Byenup Lagoon.
Water quality
The Collie and Warren Rivers were identified as current or potential future water sources for the South West region that were expected to deteriorate beyond recovery without active management.
The average salinity of the Wellington Reservoir on the Collie River in 1995 was 885 ml/L. This is considered of marginal quality for drinking water purposes. Ideally, water for drinking should contain salts of less than 500 ml/L.
The 1996 Salinity Action Plan designated the upper parts of these catchments as Water Resource Recovery Catchments. These two catchments have been a major part of the State’s water resource salinity management strategies since they were established as clearing-controlled catchments in the late 1970s.
The objectives of this salinity recovery program are to:
• Maintain or reduce the stream salinity concentrations to potable (drinkable) levels of 500 ml/L by 2015 (Collie River) and 2030 (Warren River).
49 South West Water Resources: Water Policy Overview
• To adopt an effective partnership approach with other State Government agencies, NRM groups, local government, industry, research institutions, local community groups and catchment landholders to achieve the goals.
Stage One of the Collie Recovery Plan has commenced. This involves the diversion of highly saline water from the Collie East River into former coal mine voids. Diversion of this water is predicted to result in a salinity reduction of 50 ml/L a litre in Wellington Reservoir.
Further stages involve more diversion of saline water from tributaries, along with changing farming systems and increasing plantations in targeted catchments. These stages have not yet commenced. A total of $30 million dollars over two years has been committed to the Collie catchment with equal contributions from the State and Commonwealth governments.
The Warren River is located 300km south-east of Perth and discharges into the Southern Ocean south-west of Pemberton. Clearing in upper catchments has resulted in rising salinity. The Warren River catchment is one of the largest potential water sources in the South West and currently has an average salinity of 895 ml/L. A recovery plan has not been published for the Warren. Potential options include diversion of saline flows or pumping saline groundwater from the Tone or Perup sub- catchments, or increasing plantations in the catchment.
Water quality issues are also of concern on the Scott and Swan Coastal Plains where there is high to moderate risk from shallow acid sulphate soils. Acid leaching from these soils because of soil disturbance or a lowered water table can adversely affect drinking water quality, irrigation and domestic bores, the ecology of local waterways, and the productivity of soils.
Water and environmental outcomes
State-wide Policy No: 5 states that the process of developing environmental water needs will be done in conjunction with a public consultation program involving the general community and water management committees. The process outlined indicates that social and economic values need to be identified and considered.
Climate variability is not mentioned explicitly in the policy, other than to state than there will be regular reviews under the allocation planning process to consider the implications of changes in climate and improved knowledge.
50 South West Water Resources: Water Policy Overview
Water and the environment
The Department has undertaken work to determine water-dependent ecosystems in the South West and their groundwater needs. This work has been completed primarily over the past three years to establish the minimum groundwater levels needed to maintain these ecosystems as a part of ongoing planning for the South West Groundwater Areas Plan, currently in development.
No equivalent work has been completed for surface water areas, other than with regard to the Salinity Action Plan recovery areas.
51 South West Water Resources: Water Policy Overview
52 South West Water Resources: Water Policy Overview
Enhance the security and certainty of water resources
Environmental and Water required to meet agreed environmental and social social water values has equivalent security as allocations for requirements consumptive use.
Reservation of The Government may set aside allocations for public allocations water supply and other high value uses, recognising its scarcity.
Water allocations, Significant consumptive water use is licensed. licences
Speculation in water Prior to a resource becoming fully allocated, water allocations allocation licences are supported by planning for productive economic use to discourage speculation.
Water allocation and Water allocations are consistent with water plans and planning conditions to preserve the values of the water resource.
Separation of water Water allocations are separated from access to land or allocation from land title.
Water allocations, Entitlement to a water allocation is granted as a fixed undeveloped amount for a period that matches its expected efficient resource productive use, where a resource is relatively undeveloped.
Water allocations, Entitlement to a water allocation is granted as a share of a developed resource consumptive pool on a rolling long-term basis, where a resource is substantially developed.
Risk assignment Changes to the consumptive pool arising from climatic variation are equitably shared by all water uses and the environment.
53 South West Water Resources: Water Policy Overview
Water markets and Market rules for an efficient water trading market will be trading developed to promote a healthy economy and reduce the risk of over-allocation.
Water transfers After consideration of local needs and impacts, water may be transferred within or between surface and ground water systems.
Cost recovery for The basis for any cost recovery mechanism for water resource resource management is transparent and will consider the management contribution of water users to resource investigation and assessment.
Environmental and social water requirements
The objectives of the RiWi Act provide that the Department must protect water resources and dependent ecosystems. There are no legal provisions guaranteeing environmental water with the same certainty as other consumptive uses. Under the Act, water plans are required to define environmental values in regional management plans and allocate water to the environment in sub-regional plans. There is no guarantee relative to the security of these or other allocations.
The Department has a policy on environmental water provision for planning that includes consideration of water for social needs. These EWPs have not been applied in statutory plans for the South West. EWPs are included in operating strategies for mines and dams and licence conditions provide some measure of environmental protection.
Reservation of allocations
The Department has the ability to reserve water in the licensing system to ensure adequate water is available for specified future uses. To date these reserves have been used for public water supply and mining operations. Establishing a reserve is triggered by an administrative application. It currently requires the agreement of the Water and Rivers Commission Board.
There are eight reserves for water set aside in the South West. They include two mining reserves and six for future town water supplies. These vary in size up to 2,000 ML/yr.
54 South West Water Resources: Water Policy Overview
Of the two mining reserves, one was initially for 5,000 ML/yr in the Capel area, of which 1,500 ML has been accessed, leaving 3,500 ML in reserve. The other is 2,000 ML in the Busselton area and has not been allocated. When the mining company wishes to access these reserves, the desired amount is added to a water allocation licence and subtracted from the reserve.
The Water Reform discussion paper will consider the policy implications of linking water planning to Priority Agricultural areas, including the creation of horticultural precincts. This is a form of reservation of allocations.
Water allocations and licensing
Because virtually all the groundwater sources in the South West are proclaimed and licensed, the Department’s licensing database is a reasonable source of groundwater data. However, licensed entitlements do not necessarily equate to use in the region. Accurate usage data would require comprehensive metering and auditing of groundwater bores.
Determining surface water use in the South West is more complicated. Licensing of surface water systems is carried out only for those that are proclaimed. Licensing of historical use in some proclaimed systems is also still ongoing. As a result, licensed entitlements in surface water do not reflect a reasonable estimate of actual surface water use in the South West.
There are a total of 560 surface water licences and 2,991 groundwater licences in the South West.
Table 12. Surface Water Licensing
Allocation quantity No. of % of licence Total % of total water in licences holders in allocations inc licence category category reserve ML ML 0-5 24 4.29% 51.9 0.02% 5-20 123 21.96% 1,581.8 0.53% 20-50 128 22.86% 4,418.5 1.49% 50-250 223 39.82% 24,818.4 8.35% 250-500 35 6.25% 12,244.0 4.12% >500 27 4.82% 254,058.0 85.49% TOTALS 560 100.00% 297,172.6 100.00%
55 South West Water Resources: Water Policy Overview
Table 13. Groundwater Licensing Allocation quantity No. of % of licence Total % of total water in licences holders in allocations inc licence category category reserve ML ML 0-5 2291 76.60% 3,411.1 1.71% 5-20 285 9.53% 3,289.9 1.65% 20-50 173 5.78% 5,675.2 2.85% 50-250 154 5.15% 16,870.7 8.47% 250-500 35 1.17% 13,143.5 6.60% >500 53 1.77% 156,677.0 78.71% TOTALS 2991 100.00% 199,067.4 100.00%
The majority of surface water licence holders have water allocations ranging from five ML/yr to 250 ML/yr. In groundwater, the majority of licence holders have relatively small allocations of less than five ML/yr. In both categories, a relatively small number of licence holders (4.82% surface and 1.77% groundwater) have the bulk of water allocated in the South West.
As can be seen from Tables 14 and 15, licensed surface water use in the South West is higher than licensed groundwater use.
Table 14. Summary of surface water availability and use in the South West River Sustain- Total Estimate Effective Addn Total % SY Balance Basin able licensed actual commit- alln effective available Yield alln use ted requests committed (SY) pending
ML / year ML / year ML / year ML / year ML / year ML / year % ML / year
Harvey 149,400 147,800 66,900 147,800 10 147,810 99% 1,590
Collie 165,000 94,638 59,300 94,638 17,085 111,723 68% 53,277
Preston 50,000 6,261 3,000 6,261 271 6,532 13% 43,468
Busselton 135,000 3,029 6,500 6,500 3,171 9,671 7% 125,329
Donnelly 91,000 9,278 1,600 9,278 820 10,098 11% 80,902
Blackwood 112,000 1,116 13,600 13,600 0 13,600 12% 98,400
Warren 207,000 30,604 8,600 30,604 892 31,496 15% 175,504
Shannon 1 58,090 0 4,800 4,800 0 0 8% 53,290
Total 967,490 292,726 164,300 308,681 22,249 335,730 35% 631,760
Source: CSIRO Context Report for Kimberley Expert Panel 2005 1 Shannon is unproclaimed and exempt from licensing. Only estimated use figures are available
56 South West Water Resources: Water Policy Overview
Parts of the Collie and Harvey Basins are outside the boundaries of this Plan. The figures shown are for the total Basin not only those parts located within the South West Water Plan area.
Estimated actual use has been taken from data provided to the National Land and Water Resources Audit (1997). The column “Effective committed” is the sum of licensed allocations in proclaimed areas and estimates of actual use in areas that are not proclaimed.
The figures provided as the sustainable yield of surface and groundwater systems are nominal estimates only. They have not been determined by extensive monitoring of actual flow or recharge and do not include any allowances for environmental water to maintain ecosystem health. Consequently, they are estimates that may not reflect the true amount of water available for consumption in these systems.
Table 15. Summary of ground water availability and use in the South West
Ground- Sustain- Total Reserved Addn Total % SY Balance water area able Yield licensed for public allocation effective available (SY) allocation water requests committed* supply pending ML / year ML / year ML / year ML / year ML / year % ML / year
Bunbury 54,600 32,770 2,925 4,073 39,768 72.8% 14,832
Busselton - 131,850 73,498 6,387 62,864 142,749 108.3% -10,899 Capel
Collie 22,300 66,627* 0 7,030 73,657 330.3% -51,357
Blackwood 27,510 14,481 0 9,493 23,974 87.1% 3,536
Total 236,260 187,376 9,312 83,460 280,148 118.6% -43,888
Note that in this table, the column “Total effective committed” is the sum of total licensed allocations, public water reserves and additional allocation requests pending.
*Two licences of 47,000 ML/yr have been issued to coal mining companies for dewatering purposes. The remaining 19,627 ML was issued for industrial and other uses.
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Speculation in water allocations
Under the current system of water licensing and management, the Department, through a policy that has become known as “use it or lose it,” discourages users from not using their entitlement. While the original intent of the policy was to discourage people from ‘hoarding’ water, at times it also penalises users if they save water through efficiency measures.
This policy has not been applied consistently in the South West. That is, not all allocations are currently being used. Water use is not comprehensively audited by the Department to ensure compliance.
Water allocation and planning
Water allocation limits are set by the Department of Water and are used to determine the amount of water available that can be released to license applicants. Statutory water management plans have yet to be developed for various south west water resources to include specific environmental water requirements and set allocation limits.
Separation of water allocation from land
Water entitlements at this time are linked to land as one of the conditions of applying for a water licence is having legal access to land.
The exception to this rule are the shareholders of Harvey Water who own shares in the water entitlement held by the cooperative. In this case, the ownership of water is linked directly to ownership of shares. However, in order to obtain shares in the cooperative, the buyer must own land within the irrigation district. Shareholders can and do permanently or temporarily sell their shares to other shareholders without relinquishing their land.
The separation of water title from land title is a key element of the NWI and is intended to allow water entitlements to exist as a separate asset from land. This provides water users with two assets rather than one, which they are able to buy, sell, or lease independently of each other. This facilitates trade and provides for a mechanism for water to flow to productive uses, other than by the diminution of water provided for the environment.
Note that this issue is independent of Native Title considerations.
58 South West Water Resources: Water Policy Overview
Water allocations in developed and undeveloped resources
Under the current water management system, water users in proclaimed areas must apply for a water licence. This entitles them to extract an annual amount from the designated source as specified by the licence in accordance with any conditions imposed.
There are no differences to licensing requirements between developed or undeveloped resources. Users in unproclaimed systems do not require licences to access surface or superficial aquifers. However, any confined aquifer access is required to be licensed.
Risk assignment
Risk assignment is an NWI concept that has not previously been applied in WA.
The NWI specifies how statutory water plans the level of risk users can expect to bear if water availability in a source is reduced because of climate change or improvements in knowledge of a resource.
Because of the lack of statutory water planning in WA, the issue of changing allocation limits in planning under different circumstances and the impacts this has on users, has not been addressed.
Water markets and trading
The trading of water can be a useful tool for all water users to gain economic benefits from unused or saved water, and gain extra water when needed. For instance, it can help irrigators be more flexible in determining what crops and how much they wish to grow without being necessarily constrained by the limits of their water entitlement. Other water user groups including mines and industry could also purchase water on a permanent or temporary basis to support their operations.
Water trading in the South West is very limited with only four trades being registered by the Department to date.
This does not include trading of water between members of cooperatives, as these are not subject to approval or recording by the Department. Harvey Water shareholders may trade water temporarily or permanently. Temporary trade has been as high as 8,000 ML/yr, depending on seasonal conditions. Harvey Water publishes some information on trading within the cooperative on its website.
59 South West Water Resources: Water Policy Overview
Table 16. Water trading since 2001
Groundwater Aquifer Transfer Year of Duration Area Volume transfer ML / year Busselton-Capel Perth – Upper Leederville 40 2004 Temporary Busselton-Capel Perth – Yarragadee South 3,940 2005 Temporary Busselton-Capel Perth – Yarragadee South 150 2005 Permanent Busselton-Capel Perth – Upper Leederville 90 2002 Permanent
Agreements are being concluded between Water Corporation and Harvey Water to trade water. Harvey Water has agreed to trade 17,000 ML from its holdings in Stirling, Samson, and Logue Brook Dams, subject to a number of conditions.
This water will be available after water use efficiency improvements such as piping of distribution channels are in place. This trade could be finalised in 2008, subject to regulatory approvals and other conditions.
Water transfers
Water transfers are essentially the taking of water from an original source for use elsewhere in another region or catchment. the Department does not have a policy on water transfers. The RiWI Act does not preclude the taking of water from a source and transferring it for use in another area.
The most notable existing example of water transfer in Western Australia is the Goldfields and Agricultural Water Supply pipeline that transfers water from the IWSS to the Goldfields region. Stirling Dam, Samson and Harris Dam all supply water into the IWSS. Water is also transferred out of the South West region to support the Great Southern Town Water Supply Scheme (GSTWS) that serves towns in the Great Southern.
Water Corporation’s application to take 45,000 ML/yr from the Yarragadee aquifer represents another example of a potential transfer.
Cost recovery for resource management
Currently, water users in WA do not pay any fees or charges relating to water licences or water extraction. Users are not charged licence application or renewal fees, or charges based on how much water they use.
Cost recovery is a key direction under the NWI and the Irrigation Review and the government is considering options. Any options developed will be subject to extensive community consultation as part of the Water Reform project.
60 South West Water Resources: Water Policy Overview
Develop water resources to support a diverse and vibrant economy
Water use efficiency Government, water users, and the community share a responsibility to use water resources efficiently in periods of abundance and scarcity.
Sustainability A range of demand and supply options will be evaluated assessment through a sustainability assessment prior to the development of a water resource, taking into consideration social, economic and environmental benefits.
Fit for purpose Water use is matched with an appropriate water quality, taking particular care with high quality water.
Resource New resources are planned for and developed in a timely development manner to support regional and economic development.
Water sensitive Water sensitive design principles are incorporated in design planning for new developments.
Water use efficiency
Water use efficiency includes reducing water demand, water reuse and recycling to reduce demands on water sources. These are all important options to consider in building a sustainable society and minimising impacts.
Private households, local government, industry, service providers and agricultural users can undertake water use efficiency measures. The government supports water use efficiency through a number of schemes including the Waterwise rebate scheme and the Premier’s Water Foundation.
61 South West Water Resources: Water Policy Overview
Waterwise rebates
In the South West, the Waterwise rebate scheme has provided almost $450,000 in rebates to South West households. The most popular products have been washing machines, soil wetting agents, and swimming pool covers.
Table 17. Summary of Waterwise rebates in the region
Waterwise product Number of rebate applications
Aerobic Treatment Units 3 Garden Bore 246 Greywater 2 In-Tap Flow Control Valves 0 Rain Sensor 4 Rainwater Tank 254 Showerhead 198 Soil Wetting Agents 1062 Subsurface Irrigation 102 Swimming Pool Cover 362 Tap Timer 98 Washing Machine 1840 Waterwise Garden Assessment 0
Public water supply
Table 18 summarises the water used per domestic property, supplied through scheme water supplies.
Table 18. Domestic water use efficiency through scheme supply
Service Properties Metered water Water Per Capita provider1 connected consumption consumption per Consumption (kilolitres) property (kilolitres) Water 69,143 24,226,000 316 277kl# Corporation Aqwest 12,555 4,221,466 336 130kl
Busselton Water 7,657 3,740,844 488 123.7Kl
Total 89,355 29,788,310 333
1 Sources: 2005 Annual reports of Aqwest, Busselton Water, Water Corporation, and ERA website # Water Corporation consumption figures are per total service therefore reflect an average that includes domestic and industrial consumption. Per capita consumption figures for Aqwest and Busselton do not include industrial consumption. Perth per capita domestic consumption is 103.1 kL/person/year
62 South West Water Resources: Water Policy Overview
All service providers have daytime restrictions for outdoor sprinklers that prohibit their use between the hours of 9am and 6pm.
There are no restrictions on the number of watering days for South West residential customers serviced by Aqwest, Busselton Water, or Water Corporation. Both Aqwest and Busselton Water have promotional water use efficiency schemes that support voluntary water conservation measures. Aqwest has a ‘Save Water, Save money’ theme encouraging reducing household use and water wise gardening through radio, newspaper advertising, brochures and providing water wise information to new home builders. Busselton Water has a similar “Use Water Wisely” campaign.
Wastewater reuse schemes
Twenty water reuse schemes operate in the South West. Water Corporation operates a number of wastewater treatment plants. Some of these re-use treated effluent water rather than disposing of it on land or to waterways. These reuse schemes are listed below.
Table 19. Reuse of effluent from wastewater treatment plants
Wastewater Treatment Plant Effluent disposal Reuse Augusta Overland infiltration and to creek Binningup Evaporation Bridgetown Golf course 9 Brunswick Overland flow to drain Burekup Infiltration Busselton Golf Course, Vasse Diversion Drain (winter) 9 Bunbury No2 Ocean outfall Caddadup Infiltration ponds Capel Infiltration ponds Collie Overland infiltration (forest) Dardanup Treelot 9 Donnybrook Treelot 9 Dunsborough Treelot, winter flow to drain 9 Gnarabup Infiltration ponds Harvey Drain Kemerton Treelot 9 Manjimup Treelot and Golf Course 9 Margaret River Treelot (CALM pine plantation) 9 Nannup Treelot 9 Pemberton Pemberton Sports Oval and stream (winter) 9 Waroona Infiltration channels (forest) and to agricultural drain
Irrigation cooperatives
Harvey Water is progressively piping all districts that it services in the interests of water use efficiency. The Waroona district is fully piped and works are currently
63 South West Water Resources: Water Policy Overview underway to pipe the Harvey district. Piping for Collie is also planned for the future. This investment in efficiency of water delivery systems decreases water losses (by evaporation and leakage from channels) from 31 per cent to approximately two per cent. Because the piped system is also pressurised, farmers can also invest in more efficient water distribution systems on farm.
Other sectors — Agriculture
Waterwise on the Farm (WWOTF) is a program being run by the Department of Agriculture designed to deliver training and technical support to irrigators in the efficient use of irrigation water. WWOTF has been run as a small pilot scale project for the last three irrigation seasons delivering training workshops and in-field technical support aimed at improving on-farm practice in targeted areas of the South West. The program is coordinated by a steering committee including key industry organisations, the WA Vegetable Growers Association, WA Fruit Growers Association, WA Citrus Growers Association, Western Dairy, Department of Environment and Conservation and the Department of Agriculture. Funding constraints have limited the potential to expand the program across all irrigation regions in the State, although the support from the National Landcare Program (NLP) is acknowledged in getting the program established in Western Australia.
In 2005-06, WWOTF conducted 28 training workshops with 61 irrigators in seven grower groups trained in irrigation systems, scheduling, soils and farm management. Technical support was provided to irrigators to prepare 50 on-farm irrigation management plans. WWOTF this year included establishing four demonstration sites for best practice in irrigation technology and management, including an integrated climate and water use information system for the Gnangara district.
South West farmer groups supported with WWOTF training and technical support this year include dairy farmers at Busselton and Harvey, fruit growers at Donnybrook, citrus growers at Harvey, vegetable growers at Manjimup and olive growers at Brookton.
An evaluation of the first two-year pilot program was conducted in 2004. The independent review found that the initial program was useful in providing training and best practice information to irrigators. The one-on-one follow up and technical support by program staff was particularly valued by participants. The number of irrigators intending to make changes to their systems increased from 42 per cent to 74 per cent as a result of completing the course.
The evaluation revealed that there is a lack of incentives and drivers for irrigators to improve irrigation efficiency and there is little incentive for irrigators to undertake training in water use efficiency management and practice. Water has been generally freely available; our water allocation framework lacks policy drivers to enhance the value of water; water entitlements lack clear authority and specification to support a water trading system; and there is no structured system for reporting on water use.
64 South West Water Resources: Water Policy Overview
There are no clearly defined benchmarks for water use in the irrigation industry and no well-defined environmental standards to which to conform.
Other sectors — Mining
Some water recycling does occur in the mining sector, though the amount recycled varies significantly from operation to operation depending on the activities being carried out — including processing, water availability, and water needs. A report for the Chamber of Minerals and Energy in 2004 titled Water and the Western Australian Minerals and Energy Industry: certainty of supply for future growth cites an average figure of 30 per cent. However, this was based on a survey of 24 mining company operations, none of which were based in the South West. Therefore, it is difficult to quantify the level of recycling within the South West region by mining.
Local Government
Some local governments are also supporting water reuse and efficiency projects through participation in the ICLEI Water Campaign as discussed earlier in this report.
Sustainability assessment
The State Sustainability Strategy promoted the concept of the sustainability assessment process as a new way for government to integrate environmental, social and economic factors into decision-making in a way that formal environmental impact assessment was unable to do. The Department developed a framework for undertaking sustainability assessments in response to Water Corporation’s proposal to transfer 45,000 ML/year from the south west to the Integrated Water Supply System. This assessment is to be run in parallel with the Department’s traditional licence assessment process because sustainability assessment has no legislative foundation. This assessment process has not been used previously by the Department.
Water Corporation has developed and completed their own sustainability evaluation for the application, included in the Environmental Review and Management Program submitted by them to the EPA for assessment. The evaluation describes the proposal, the likely environmental, social, and economic impacts and describes how they would be managed. A South West Yarragadee Sustainability Panel has also been convened to provide independent comment to the government. This panel has no legislative decision-making authority and is advisory only.
65 South West Water Resources: Water Policy Overview
Fit for purpose
The Government actively manages drinking water sources to maintain water quality to support this high value use. Water service providers supply this potable water to domestic, commercial and industrial users. Consequently, water of potable quality is not used solely for drinking or public health purposes, but also for purposes such as gardening.
For all other situations, self-supply water users nominate their desired source when they apply for a water licence from the Department. The source they nominate depends on what choices may be open due to their location, the quality they desire (irrigation and stock water can use slightly worse quality than drinking quality), and the investment required to access their preferred sources. Users may accept slightly lower quality water because it is cheaper to access or potentially more reliable than a higher quality source.
The Department has no policies requiring users to access the lowest quality water suitable for their purpose.
Resource development
The different needs of users, the reliability of available water sources, and technology have all played a role in determining sources that users have traditionally accessed.
Surface water systems are traditionally the easiest to access, but in the South West these sources may have highly seasonal flows with variable quality and quantity available. Groundwater sources require more infrastructure to access but generally offer greater reliability in terms of quantity and quality.
Planning for the provision of water services, through either self-supply or reticulation is an integral part of supporting regional development. While most resource development projects and large industrial precincts develop their own water supply, providing certainty of allocation and adequate water resources data will assist in ensuring that opportunities for responsible development can be realised.
This section provides information on the historical development of water resources in the region.
Irrigation co-operatives
Harvey Water holds water licences in a number of dams off the Darling Scarp that provide reasonable security and reliable access to water. The quality varies between dams. For example, Wellington Dam water quality makes it unsuitable for drinking
66 South West Water Resources: Water Policy Overview
water but it is still able to be used for irrigation. Other dams in the area offer a quality closer to potable.
The PVIC licence permits abstractions from Glen Mervyn Dam on Lyall Brook.
Private self supply
The majority of water licence holders in the South West are ‘self-suppliers’. That is they do not rely on government provided infrastructure such as dams or piped systems to provide their water. Self-suppliers invest in their own dams, extraction pumps and bores to access water.
The type of source that self-suppliers have accessed has been dependent on local availability. On the Leeuwin Shelf west of the Blackwood Plateau to the coast, most self-suppliers use either small, isolated fractured rock aquifers or rivers and tributaries.
Irrigators in the Margaret River wine area predominantly use surface water. On the coastal plains, large irrigators prefer the reliable quality and quantity of water obtainable from groundwater sources such as the Leederville and Yarragadee systems. Smaller users (stock and domestic purposes or garden bores) have generally accessed the shallow superficial aquifers of varying water quality and lower yields.
Self-supply water users normally depend on accessing available resources up to the allocation limits determined by the Department, where possible. Demand from self- suppliers, particularly in the agriculture sector of the Scott Coastal plain, is increasing.
Public service providers
Busselton Water accesses groundwater predominantly from the Yarragadee aquifer with a small amount from the Leederville. Aqwest’s source is exclusively from the Yarragadee aquifer. Groundwater in these aquifers is generally of a high quality suitable for drinking water. Busselton Water and Aqwest both hold water reserves with the Department that are adequate to meet their short term future projected needs.
To date, Water Corporation has used surface water for much of the town water supply needs in the region. In addition, a number of dams (Stirling and Samson Brook) are used to supply water to Perth. The Harris Dam supplies water to the Collie area and towns in the Great Southern region. Salinity levels in the Wellington and Harris dams constrain their current ability to be used for drinking water supplies.
Table 20 summarises all dams in the South West region owned and operated by Water Corporation and denotes their use. Note that the storage capacity in many instances refers to design capacity. Current storage levels in most instances are
67 South West Water Resources: Water Policy Overview substantially less than capacity. However, the majority of these dams do fill up by the end of each winter. The exceptions to these are:
• Harris Dam;
• Harvey Dam (reached 98% last year)
• Logue Brook Dam;
• Manjimup Dam;
• Mungalup Dam;
• Stirling Dam;
• Ten Mile Brook Dam;
• Waroona Dam;(98% last year); and
• Wellington Dam (full in Oct 2005).
Since 2002, except where indicated, the above listed dams have not reached their full capacity.
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Table 20. Dams owned and operated by Water Corporation and their use
Storage Capacity Dam Name Nature of Use (megalitres)
Balingup Dam 61 Public Water Supply Big Brook Dam Public Water Supply/Recreation Boyup Brook Dam Public Water Supply Irrigation Drakes Brook Dam 2,290 /Recreation Dumpling Gully No 1. Public Water Supply 95 (Greenbushes) Dumpling Gully No. Public Water Supply 98 2(Greenbushes) Irrigation Glen Mervyn Dam 2,054 Public Water Supply Harris Dam (also supplies Perth) 72,000 Public Water Supply Irrigation Harvey Dam 56,441 /Recreation Hester Dam Public Water Supply Kirup Dam 60 Public Water Supply Logue Brook Dam 24,321 Irrigation/Recreation Manjimup Dam 1,581 Public Water Supply Millstream Dam 452 Public Water Supply Mungalup Dam 681 Public Water Supply Nannup (Tanjanerup) Dam 156 Public Water Supply Phillips Creek Dam 269 Public Water Supply Quinninup Dam 713 Public Water Supply Irrigation Samson Brook Dam 7,993 /Public Water Supply Irrigation Stirling Dam 53,769 /Public Water Supply Ten Mile Brook Dam 1,691 Public Water Supply Waroona Dam 14,930 Irrigation/Recreation Wellington Dam 184,916 Irrigation/Recreation Total for South West 424,571 dams and reservoirs
Water Corporation has an application currently being considered by the EPA and the Department to abstract 45,000 megalitres a year from the South West Yarragadee aquifer to supplement supply to the Integrated Water Supply System which supplies some South West towns and the Perth Metropolitan area.
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Water sensitive design
Water sensitive design principles are important at many levels from the design of individual houses to how whole suburbs are developed so as to use and manage local water. The Department of Planning and Infrastructure (DPI) is working to introduce a building sustainability index (BASIX) for new residential developments. This will require minimum standards of water and energy efficiency in new homes.
Within the South West region, LandCorp has announced its intention to create a residential and small tourist development at Gracetown embracing new sustainability initiatives. The proposed development will examine innovative options for water supply and reuse, along with potential alternative energy supplies and energy efficiency in the home. This new development aims to set new standards for sustainable water and energy supply as well as use within households.
This development may lead the way for future ongoing development within the highly popular South West region, help minimise impacts on the local environment and reduce demands for new water and power sources.
Water sensitive design can also be used by different types of industries such as irrigated agriculture to design efficient water use and delivery systems.
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Deliver services to build strong and healthy communities
Water services and Essential, scheme water services underpin our public public health health and economic systems, by providing safe drinking water and sanitation.
Water services to All Western Australians, living in remote communities, communities towns and cities, have access to sustainable water services as a crucial foundation for regional and community development.
Source protection and Current and future public drinking water sources are catchment protected and catchments managed to support the management provision of safe drinking water.
Water service licensing Water service providers are licensed to promote certainty for the community and the providers.
Services to new The water service provider responsible for servicing new developments developments is determined in a timely manner to allow for the orderly provision of infrastructure and related services.
Asset management Service providers are technically competent, invest in and financial sound asset management systems, and possess the capacity financial capacity to service communities now, and in the future.
Funding for water Funding for public water services is provided through services infrastructure charges, user charges and Government subsidies.
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Affordability Where cost-reflective pricing renders essential water services unaffordable, the Government may develop alternative tariff structures or provide a transparent subsidy.
Dispute resolution Consumers of essential service providers have access to an independent dispute resolution process.
As noted in the governance section under “Water and the South West Region,” there are three public water service providers in the region. This section discusses public water, sewerage and drainage services in more detail.
Water services for public health and communities
Drinking water and wastewater services
In June 2005, drinking water services were provided to over 90,000 properties in the region. The Western Australian Planning Commission (WAPC) requires all new lots (created through development or subdivision) greater than four hectares to be connected to a reticulated drinking water scheme where supply is a reasonable prospect. Lots in excess of one hectare will attract the requirement for a full cost contribution to headworks.
Water Corporation is the only operator of reticulated wastewater schemes in the region. It services approximately 59,000 wastewater connections to about 73,500 properties. The quantity of treated wastewater discharged annually is 11,200 megalitres. Consistent with the draft Country Sewerage Policy issued by the Department of Health (DoH), the WAPC generally requires new lots to be connected to existing schemes (in towns with a wastewater scheme) and all developments in excess of 100 lots to be connected to a new wastewater service (in towns that do not yet have a wastewater scheme).
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Table 21 summarises the communities and towns on a drinking water scheme supply or a reticulated wastewater scheme in the region.
Table 21. Drinking water and sewerage services
Town Drinking water Residential Wastewater services Wastewater treatment plant Services Allanson 9 Augusta 9 9 9 Australind 9 9 Balingup 9 Binningup 9 9 9 Boyanup 9 9 Boyup Brook 9 Bridgetown 9 9 9 Brunswick Junction 9 9 9 Bunbury 9 9 9 Busselton 9 9 9 Burekup 9 9 9 Capel 9 9 9 Clifton Park 9 Collie 9 9 9 Cowaramup 9 Dalyellup 9 9 Dardanup 9 9 9 Donnybrook 9 9 9 Dunsborough 9 9 9 Eaton 9 9 Gnarabup 9 9 9 Greenbushes 9 Harvey 9 9 9 Hester 9 Kemerton 9 Kirup 9 Manjimup 9 9 9 Margaret River 9 9 9 Mullalyup 9 Nannup 9 9 9 Northcliffe 9 Pemberton 9 9 9 Peppermint Grove Beach 9 Prevelly 9 Quindalup 9 9 Quinninup 9 Roelands 9 Walpole 9 9 9 Waroona 9 9 9 Witchcliffe 9 Yallingup 9 Yarloop 9
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Note that Aqwest provides water services to the town of Bunbury, and Busselton Water provides water services to the town of Busselton. Water and wastewater services in these and all other towns are provided by Water Corporation.
When no reticulated water or sewerage services are provided to towns, residents and industry are required to supply their own. Water supply can come from dams, bores or tanks while septic systems are common for sewerage.
Residential infill sewerage
In 1994, the State Government announced an $800 million Infill Sewerage Program that would be funded over a ten-year period to address environmental and public health concerns posed in some parts of the State by septic tanks. Infill sewerage to an area can also increase the value of land and potential for subdivision.
The bulk of the program, representing over 110,000 properties added to wastewater schemes, was completed in 2004. The towns completed in the South West region and those still to be done are shown in the table below.
Table 22. Residential Infill Sewerage Program
Completed To be completed Boyanup Australind Bridgetown Bunbury Busselton Collie Capel Eaton Dardanup Mandurah Donnybrook Nannup Harvey Ravenswood Mandurah Manjimup Margaret River Pemberton Pinjarra Walpole Waroona
The State Government continues to fund additional infill sewerage works undertaken by Water Corporation.
Self-supply for drinking water and wastewater services
Drainage
There are 1,762 kilometres of controlled drains in the South West, covering a declared drainage area of 321,324 hectares. These drains are owned and maintained by Water Corporation.
Local government provides all urban drainage services to property owners.
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Busselton flood protection
In 1997, the levee banks of the Vasse River overtopped during a flood. A subsequent investigation determined that the protection provided by the banks was for a “one in a 20-year flood,” not a “one in a 100-year flood” as previously expected.
A Busselton Flood Management Steering Committee was formed with representation from a range of government agencies. Several initiatives for improving flood protection were formulated including the Busselton Flood Protection Project for a network of compensating basins in farmland upstream of Busselton, with the objective of providing one-in-100-year flood protection. Water Corporation was appointed by the State Government to execute the design and construction of the project.
As a result, work commenced on the Vasse River Diversion Drain to improve flood protection for Busselton. Two compensating basins have been built and land acquired for the third basin. Detailed design of the third basin and associated drainage modifications are in progress and construction is expected to commence in December 2006.
Together, the two existing basins provide 55 per cent of the design flood storage capacity for the scheme. The addition of rabbit-proof fencing, trash racks and other improvements have been made to minimise the likelihood of embankment failures.
The projected completion date is estimated to be May 2009.
In addition, Busselton has a series of floodgates built since 1907. They are designed to protect Busselton and coastal wetlands from flooding by ocean storm surges, deter upstream flooding after heavy rains and prevent the wetlands ‘drying out’ in summer.
Over 1000 hectares of Ramsar wetlands are protected as a result, estimated to be home to more than 30,000 birds.
Source protection and catchment management
The Department is responsible for managing and protecting the State’s water resources, including more than 130 Public Drinking Water Supply Areas. These areas ensure the provision of safe, good quality drinking water.
Key regulatory tools used to discharge this obligation are the monitoring of catchment activities (in particular, land use) and the development of drinking water source protection plans.
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Drinking water source protection plans (DWSPP) are supported by the Department’s and DPI policies and provide a consumer approach to protecting drinking water catchments. They:
• Provide information on the location, size and significance of the drinking water resource;
• Identify drinking water contamination risks from current, proposed, or potential future land uses or activities ;and
• Recommend specific priority areas and protection zones that determine where different management and planning approaches can be used to avoid, minimise or manage contamination risks.
The plans are intended to guide State and local government land use decision- making and should be recognised by local councils in their planning documents. The process involved in preparing a DWSPP is as follows: 1. Prepare Drinking Water Source Protection Assessment document; 2. Undertake additional stakeholder consultation; 3. Prepare a draft drinking water source protection plan; 4. Release draft DWSPP for public comment; and 5. Publish DWSPP.
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Table 23 outlines the current status of drinking water source protection plans for the South West.
Table 23. Status of source protection plans
Public Drinking Water Source Area Publish Date Dunsborough/Yallingup WR March 1999 Harvey Dam CA October 2000 (current irrigation source only) Stirling Dam CA October 2000 Brunswick Water Supply (Beela Dam) CA April 2001 Quinninup Dam CA June 2002 Margaret River/Ten Mile Brook CA July 2005 Bunbury and Busselton WR Draft plan on web Logue Brook In development Tanjanerup Creek CA Not commenced (Nannup supply) Augusta Not commenced Balingup Not commenced Bancell Brook CA Not commenced Binningup Beach WR Not commenced Boyup Brook Dam Not commenced Bridgetown CA (Hester Dam) Not commenced Donnybrook WR Not commenced Eaton and Australind WR Not commenced Greenbushes (Dumpling Gully) CA Not commenced Harris River Dam Not commenced Kirup Dam CA Not commenced Manjimup Dam CA - Phillips Creek & Scabby Gully Not commenced Millstream (Bridgetown) CA Not commenced Mullalyup WR Not commenced Mungalup (Collie Water Supply CA) Not commenced Myalup WR Not commenced Padbury reservoir CA (see Balingup) Not commenced Pemberton - Lefroy Brook CA, Big Brook Dam CA Not commenced Wellington Dam CA Not commenced Wokalup Creek Not commenced (current irrigation source only)
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Water service licensing
Aqwest, Busselton Water, and Water Corporation are licensed by the ERA to provide water services to the South West.
The ERA monitors service provider’s performance to ensure that water service providers meet relevant standards. These standards, set out in an Operating Licence, may include:
• Drinking water quality standards
• Drinking water pressure and flow standards
• Drinking water continuity standards
• Sewerage service standards
• Drains and drainage standards
• Customer service and complaint handling standards.
The ERA requires all operating licences to be audited every two years. The ERA does not publish the results of these reports.
Several small towns within the South West are not covered by any service provider. Residents in these areas must self-supply their own domestic water needs and are therefore not covered by any operating licence with required standards or conditions.
Services to new developments
Operating licences issued by the ERA also define the operating area boundaries in which service providers are licensed to provide service.
There are number of new developments in excess of 100 lots that are active in the South West. For example, a number of large developments are occurring in development including Abbey Waters, Provence and Dunsborough Lakes.
Asset management and financial capacity
An asset management system optimises the planning, design, construction, operation and refurbishment of infrastructure to service communities. The ERA also requires all service providers to provide an independent review of their Asset Management system every two years. The ERA does not publish these reports.
The ERA does not have licence conditions that pertain to the financial viability of service providers. Currently, as all service providers in the South West are owned by
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the State Government, all service providers have financial capacity to maintain infrastructure capacity and service standards.
Funding for water services
Water services to customers in Bunbury and Busselton provide the commercial basis for the operation of the respective Water Boards. There is no subsidy provided to these service providers and they are not required to provide a dividend to Government.
All other water and wastewater services to towns noted in Table 21 are subsidised by government. A Community Service Obligation (CSO) is paid to Water Corporation to recover the full cost of operation and capital funding and provide a rate of return. This is consistent with national water pricing standards and the National Water Initiative.
The State Government provides a CSO for infill sewerage services to residential areas. Where commercial and industrial customers have access to wastewater services they must pay the full cost of connection, or remain on septic tank systems.
There is no charge for drainage services to customers or property owners in the region. The State Government funds all of these costs through a CSO provided to Water Corporation.
A number of concessions are provided to customers of Water Corporation that includes rebates for pensioners and seniors.
Water pricing matters are complex and have been the subject of two comprehensive reviews undertaken by the ERA. The Final Report on Urban Water and Wastewater Pricing was completed in November 2005 and considered the water prices of Aqwest and Busselton Water. It was tabled in Parliament by the Treasurer. In addition, the ERA completed an Inquiry into Country Water and Wastewater Pricing in Western Australia which was released in July 2006. This report addressed water and wastewater pricing in the region (excluding Bunbury and Busselton).
Affordability
Table 25 summarises the average price for the supply of 350 kilolitres of water a year to connected properties in the South West:
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Table 25. Average price for water services
Service provider Price per property (2006-07 figures) ($) Aqwest 295 Busselton Water 290.95 Water Corporation 361.83
Dispute resolution
As outlined, Aqwest, Busselton Water and Water Corporation are required to have a Customer Charter that outlines agreed levels of service and a method for dealing with complaints from their customers. This includes a requirement that service providers endeavour to resolve customer complaints within 21 days.
All customers of licensed water service providers have access to an independent dispute resolution service provided by the Department.
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Abbreviations
ARCWIS CSIRO Australian Research Centre for Water in Society CAWS Act Country Areas Water Supply Act CSO Community Service Obligation DIW Directory of Important Wetlands in Australia DoE Department of Environment DoH Department of Health EPA Environmental Protection Authority ERA Economic Regulation Authority EWP Environmental Water Provisions EWR Ecological Water Requirements ICLEI International Council for Local Environmental Initiatives IOCI Indian Ocean Climate Initiative IWSS Integrated Water Supply System (Perth) NWI National Water Initiative OAG Office of the Auditor General PVIC Preston Valley Irrigation Cooperative RiWI Act Rights in Water and Irrigation Act 1914 RNE Register of the National Estate SWCC South West Catchment Council TDS Total Dissolved Salts
WAPC West Australian Planning Commission Warren Committee Warren Water Advisory Committee Whicher Committee Whicher Water Resource Management Committee WRC Water and Rivers Commission WRL Water Resources Licensing database
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