Pilot Water Sector Climate Change Adaptation Action Plan
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Pilot Water Sector Climate Change Adaptation Action Plan
Department of Environment, Land, Water and Planning
Over recent decades Victoria’s
climate has become drier and
warmer. The recent Millennium
Drought was the worst drought
on record in south-east Australia.
Add to that a population forecast
to grow from 6 million in 2018 to
10 million by 2050 and it is clear
we must do more with less.
© The State of Victoria Department of Environment, Land, Water
and Planning 2018.
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Cover photograph: Craig Moodie.
Pilot Water Sector Climate Change Adaptation Action Plan
Department of Environment, Land, Water and Planning
Contents
Aboriginal acknowledgement 2 5. Actions: three-year plan 49
The Minister for Water 3 5.1. Actions to build knowledge 52
Executive Summary 4 5.2. Actions to develop 54
frameworks, policy and tools
1. Introduction 7
5.3. Actions to enhance staff 56
1.1. Context 7
capability and capacity
1.2. Objectives 7 to apply adaptation to
business decisions
1.3. Legislation and policy 8
5.4. Funding sources 58
1.4. Scope 12
Appendix 1 – Process of 59
2. The climate change challenge 16
development and delivery
2.1 Climate change in Victoria 16
Appendix 2 – Summary of 61
2.2. Impacts of climate change 20 water entitlement and water
on the water sector resource planning frameworks
3. Governance, roles and 28 Appendix 3 – Other related 63
responsibilities work underway
3.1. Water sector governance 28 Appendix 4 – Greenhouse gas 66
framework emissions of the actions
3.2. Roles and responsibilities 29 Key terms and acronyms 67
in climate change adaptation
4. Existing climate change 33
adaptation policies, initiatives
and gaps
4.1 Building knowledge 33
4.2. Frameworks, policy and 40
tools for adaptation
4.3. Enhancing staff capability 45
and capacity to business
decisions
Pilot Water Sector Climate Change Adaptation Action Plan 1
Aboriginal acknowledgment The Victorian Government proudly acknowledges Victoria’s Aboriginal community and their rich culture, and pays respect to their Elders past and present. We acknowledge Aboriginal people as Australia’s first peoples and as the Traditional Owners and custodians of the land and water on which we rely. We recognise and value the ongoing contribution of Aboriginal people and communities to Victorian life and how this enriches us. We embrace the spirit of reconciliation, working towards the equality of outcomes and ensuring an equal voice. 2 Pilot Water Sector Climate Change Adaptation Action Plan
Department of Environment, Land, Water and Planning
The Minister for Water
Water is a vital resource. Government, when climatic conditions will likely be
communities, business and industry, very different.
must manage it effectively for current
Acting now will reduce long-term costs.
and future generations, particularly
Planning appropriately for climate
in the face of climate change and
change and managing the water sector
population growth.
accordingly will reduce the need for
Victoria’s climate is already becoming expensive retro-fits and help us avoid
drier and warmer. The south-east building infrastructure that can’t fully
Australian Millennium Drought was function as the climate changes.
the State’s worst on record. Stream It also means Victoria will be better
flows dropped to record lows with placed to deal with more extreme
water restrictions implemented in weather events.
457 Victorian towns – half of these
The Pilot Water Sector Adaptation Action
restrictions were severe.
Plan aims to drive adaptation across
More severe droughts are expected the water sector. Under the Climate
in future, with stream flows in some Change Act 2017, a legislated plan is
Victorian catchments projected to drop required by 2021. We have prepared this
by approximately 50% by 2065. We are pilot plan ahead of schedule to ensure
likely to see further impacts as global the community and the water sector
temperatures rise including: responsible for drainage, sewerage
• more intense rainfall, which may cause and flood management, are involved
more floods and sewer overflows in planning for a system that adapts
• warmer water temperatures, effectively in the face of climate change.
increasing the potential for water- It will also help us determine the scale of
borne pathogen growth work required. What we learn from this
• more frequent and intense fires, which pilot plan will be built into the legislated
will affect our water catchments. Adaptation Action Plan in 2021.
Climate change could threaten water This pilot plan outlines possible climate
Water is a vital change scenarios, the actions already
sector infrastructure, the people who
resource. Government, work in the sector and the services taken to address the potential climate
communities, business Victorian communities require. change impacts and implications, what
and industry, must we still need to do, and the priority actions
Add to that a population forecast to grow needed to put the sector on the right track
manage it effectively from 6 million in 2018 to 10 million by 2050 to a resilient water future for Victoria.
for current and future and it is clear we must do more with less.
generations. Planning now means Victorians can
The Victorian Government is driving participate in determining how our water
our transition to a climate resilient sector will evolve in the face of climate
community and economy with net change. It also means we are more
zero emissions by 2050. The water likely to successfully adapt so current
sector is leading this transition with a and future generations of Victorians
commitment to reduce greenhouse gas receive safe, affordable and reliable
emissions by 42% by 2025. water, sewerage, drainage and flood
management services with minimal
Leading climate change adaptation
negative impacts on our environment
across the State’s water systems, which
as the climate changes, just as previous
include sewerage, drainage and flood
generations provided for us.
management, is an important action in
Water for Victoria, our long-term plan
for effective water sector management.
To succeed, we need to begin adapting
now. The infrastructure we build The Hon. Lisa Neville MP
today could still be in use in 70 years, Minister for Water
Pilot Water Sector Climate Change Adaptation Action Plan 3
Department of Environment, Land, Water and Planning
Executive summary
Equipped with the most up-to-date understanding of climate
change and associated impacts, Victoria’s water sector is
committed to providing leadership in the State’s climate
change mitigation and adaptation.
This pilot Water Sector Climate Water Sector Climate Climate change and the
Change Adaptation Action Plan Change Adaptation Action water sector
(WSAAP) has been prepared
in response to the current and
Plan Variability has always been a
potential future impacts of climate This WSAAP is a pilot, prepared feature of Victoria’s climate, from
change on the water sector, its three years ahead of the first drought through to flood events.
customers, and the Victorian legislated AAPs. The purpose is to Large storage dams, water markets
community. test the process of developing an and catchment management
AAP, and to develop actions that processes are just some of the
Climate Change Act 2017 provide water sector customers features of Victoria’s water system
with reliable services under an that have been set up to manage
Victoria’s Climate Change Act this variability.
increasingly challenging climate.
2017 (the Act) places a statutory
It reviews the adaptation activities However, more recently the water
obligation on nominated Ministers
already underway and plans new sector has observed changes
to prepare sector-based Adaptation
actions to address gaps in our in climate, and built climate
Action Plans (AAPs) for seven
adaptation program. change preparedness into its
different ‘systems’ by 2021.
Actions undertaken between now management. This is in part a
The ‘water cycle system’, referred result of the seriousness of the
and 2021 will build a firm foundation
to herein as the ‘water sector’, is impacts experienced during the
for future actions to ensure that
identified in the Act as requiring an Millennium Drought (1997 to 2009).
we have a climate change-resilient
AAP. The scope covers all sources The 13 consecutive years of drought
water sector.
of water, sewerage services, had a significant impact on water
drainage services, and flood This WSAAP has been developed supplies for households, businesses,
management services. Waterway in close collaboration with agriculture and the environment.
health, biodiversity, ecology and representatives from water
agriculture are out of scope and corporations, catchment There were also three associated
form parts of other system AAPs. management authorities (CMAs) large fires – in 2003, 2006 and
and local government, who each 2009 – all of which also affected
manage parts of the water sector. Victoria’s catchments and water
supplies. The drought broke in
Public consultation has recently 2010 with one of the largest flood
been undertaken to inform the events ever recorded. There have
climate change elements of Water also been significant water quality
for Victoria (2016). Therefore impacts from pest animals, weeds,
consultation on the WSAAP has runoff from fires, erosion and land
focused on the water sector use change.
organisations, industry bodies and
interest groups. A more extensive Such conditions and events are
public consultation phase will anticipated to become more
be undertaken to inform the frequent and severe with climate
development of the first legislated change, bringing increased threats
WSAAP due by 2021. to water quality and recreational
and environmental values. Figure A
depicts potential impacts of climate
change on the water sector.
4 Pilot Water Sector Climate Change Adaptation Action Plan
Department of Environment, Land, Water and Planning
Adaptation underway The infrastructure programs have Victoria’s water sector is now
been informed by projections of leading the State’s response to
Water for Victoria set a long-term
population growth and climate climate change in both adaptation
plan to prepare for and respond
change. Local governments in and greenhouse gas emissions
to climate change. In addition,
Victoria are estimated1 to own reduction, and has committed to a
Victoria’s water corporations will
and manage over 35,000 km of 42% reduction in greenhouse gas
spend about $1.2 billion per year
stormwater pipes and 1.4 million emissions by 2025. The intersection
over the next three years on water
stormwater pits, with an estimated between adaptation and emissions
and sewerage infrastructure to
replacement value of $11 billion. reduction is actively considered in
deliver reliable services to Victoria’s
They are actively investing in the water sector, where activities
growing population.
integrated water management such as revegetation can benefit
solutions. both adaptation and mitigation.
Figure A. Impacts of climate change on the water sector
5 3
6
2
4
8
9
7
1
11
10
Legend:
1. Sea level rises 6. More frequent bushfires 10. Heavier rainfall may lead to sewer
2. More heat waves 7. More frequent and severe droughts overflows, impacting receiving waters
3. Temperature increases 8. More frequent and extreme flash flooding 11. Limited access to water for agriculture,
4. Lower average rainfall 9. More frequent and severe storms parks, gardens and recreation areas
5. More intense storms during drought.
1 Data provided by Municipal Association of Victoria (pers. comm. 2018) is indicative only, as some councils were unable to provide data and
some estimates were made. The data is based on 2014, and was then escalated to account for growth and CPI increases up to end of 2017.
The results also do not include Melbourne City Council.
Pilot Water Sector Climate Change Adaptation Action Plan 5
Department of Environment, Land, Water and Planning
Proposed adaptation actions They address the three short-term The actions will be delivered by
objectives of this WSAAP: DELWP in partnership with water
This WSAAP commits to 20 further
1 Build knowledge of how climate sector organisations. An adaptive
actions to deliver more resilient
change will impact Victoria’s planning cycle is in train and will
services to water sector customers.
water sector; inform adaptation in the sector
The actions will be cost effective
2 Develop the frameworks, policy across successive WSAAPs.
in leveraging existing investments,
research and expertise, while and tools to enable successful
having a minimal impact on adaptation; and
greenhouse gas emissions. 3 Enhance the capability and
capacity of water sector staff to
apply climate change adaptation
to business decisions.
Figure B. The policy objectives of the Act informed the WSAAP’s objectives and adaptation actions.
WSAAP Objective 1: WSAAP Objective 2:
Build knowledge Develop frameworks,
Action 1: Undertake a water grid policy and tools
stress test Action 9: Review the Guidelines
Action 2: Understand implications for Assessing the Impact of
of more intense rainfall in Climate Change on Water
combination with overall drier Supplies in Victoria
conditions, for flooding Action 10: Develop a framework
Action 3: Consider the changing to inform consistent and
sewerage, drainage and flood
Adaptation policy systematic embedment of
management risks under climate objectives of the Climate climate change considerations
into water business decisions
change in Integrated Water Change Act
Management Forums Action 11: Develop a monitoring,
To build the resilience of the State's
Action 4: Encourage the use of best evaluation, reporting and
infrastructure, built environment
practice methods to incorporate improvement plan
and communities.
climate change into the estimation Action 12: Review the use of
of future flood impacts To manage the State's natural resources,
climate change scenarios in
ecosystems and biodiversity to promote
Action 5: Identify the impact of water sector planning
their resilience.
climate change on Traditional Owner
values associated with water and To support vulnerable communities
how to adapt to them and promote social justice and
intergenerational equity.
Action 6: Collate and share
knowledge about the impact of
climate change on water supply
between water sector stakeholders
Action 7: Collate and share knowl-
edge about the impact of climate
change on sewerage
Action 8: Improve information
sources on adaptation for the water
industry
WSAAP Objective 3: Enhance the capability and capacity of water sector staff
Action 13: Review emergency management plans used in the water sector in the context of climate change
Action 14: Review and update workforce emergency management capability, capacity and training requirements
Action 15: Identify and manage key risks between water and other critical service sectors
Action 16: Identify key elements of successful adaptation business cases
Action 17: Develop and deliver guidance material for water industry boards and executives on climate change
risks and duties of care
Action 18: Estimate the costs of climate change to water corporations
Action 19: Improve management of the potential impacts of climate change on water quality relating to algae
Action 20: Prepare guidelines for assessing the impact of climate change on sewerage systems
6 Pilot Water Sector Climate Change Adaptation Action Plan
Department of Environment, Land, Water and Planning
1. Introduction
1.1. Context Climate change adaptation needs 1.2. Objectives
to be undertaken in an iterative
The way our society manages process in which we regularly The objectives for this WSAAP
water will need to change in review our assumptions about are consistent with the direction
response to the impacts of climate the future and assess whether set out in Water for Victoria and
change and population growth. the current strategy still holds or in Victoria’s Climate Change
Victoria’s water sector is already needs to be modified. Adaptation Adaptation Plan 2017–2020. The
adapting to more extreme and decisions need to keep some actions in the WSAAP will help to
variable conditions. This has options open to be deployed if the achieve the short-term objectives
been prompted in part by the future is worse than anticipated, as well as achieve progress
Millennium Drought (1997–2009), but also avoid over-investing in towards the medium- and long-
which was associated with water case the future is not exactly as term objectives.
shortages and several extreme expected. This is known as an
events in Victoria. These events adaptive pathways approach, Short-term objectives
included three large bushfires (in and will be undertaken through (by 2021)
2003, 2006 and 2009) that affected the successive WSAAPs developed The short-term objectives of this
our catchments in addition to under the Act. WSAAP are to:
causing devastating loss in our
An understanding of the potential 1. build knowledge of how climate
communities. It challenged the
impacts of climate change and change will impact Victoria’s
water sector to think about how
how to best manage the threats water sector;
well it was prepared for changing
environmental conditions and more will be essential for the continued 2. develop the frameworks, policy
extreme natural events, including delivery of high quality services to and tools to enable successful
temperature increases, sea level customers. Not all threats can be adaptation; and
rise and the potential for more avoided, but understanding them 3. enhance the capability and
heatwaves, storms, high winds, will be essential to developing capacity of water sector staff
bushfires, droughts and floods. effective risk mitigation strategies. to apply climate change
Enabling policy, tools and adaptation to business decisions.
However, preparing for and technologies will allow us to better
responding to climate change is understand issues before they Medium-term objective
challenging. Climate change is arise, and to take definite steps to (by 2025)
complex, and it affects different reduce impacts on customers.
parts of the water sector in The medium-term objective
different ways. It also affects This WSAAP will help the water is to integrate climate change
different regions of Victoria sector to further embed climate adaptation considerations into
differently. Climate change needs change considerations into all relevant business decisions
to be considered alongside other planning, design and operations. It in the water sector.
pressures on water security such as is an opportunity for Government This objective will require a
population growth and changing and water sector organisations to coordinated and systematic
economic conditions. In reality there partner and build on the initiatives approach to climate change
are always uncertainties about in Water for Victoria, and keep adaptation, supporting and
the future, including future climate, the sector at the leading edge linking with key business systems
population growth, consumer of climate change adaptation and processes.
behaviour, industry and agriculture planning. As noted above, such
changes, and technological adaptation is an iterative process
advancement. There are also that will require ongoing review
multiple objectives for society, and action.
industry and the environment –
adapting to climate change is only
one of them.
Pilot Water Sector Climate Change Adaptation Action Plan 7
Department of Environment, Land, Water and Planning
Long-term objective (by 2030) 1.3. Legislation
The long-term objective is to enable the sector to provide reliable services and policy
that meet customer expectations under a changing climate, while
balancing the associated impacts on customer bills, on water business Climate Change Act 2017
finances, and on the environment.
Adaptation Action
This may include consultation with customers about ongoing levels of
Plans: background and
service, for cases in which customers feel that continuation of the current
levels of service has an undue cost or environmental impact. requirements
The Act introduced system-based
Table 1.1: Objectives of the WSAAP and the timeframe for each planning for climate change
adaptation. Under the Act,
Objectives Timeframe Adaptation Action Plans (AAPs) are
required to be developed every
Short-term 1 Build knowledge of how climate 2018–2020 five years from 2021 for systems
change will impact the Victorian that are essential or vulnerable to
water sector the inevitable impacts of climate
2 Develop the frameworks, policy 2018–2020 change and are therefore a priority
and tools to enable successful for the State Government. The
adaptation in the water sector seven systems are:
3 Enhance the capability and 2018–2020 1. Built environment
capacity of water sector staff to 2. Education and training
apply climate change adaptation
3. Health and human services
to business decisions
4. Natural environment
Medium- Integrate climate change adaptation By 2025 5. Primary production
term into all relevant business decisions in 6. Transport
the water sector 7. Water cycle system
(referred to herein as the
Long-term The water sector continues to provide By 2030 ‘water sector’)
reliable services to customers under a
The Act requires AAPs to be
changing climate, while appropriately
developed in the year following
balancing the associated impacts on
the release of the Act’s five-yearly
customer bills and on water business
Climate Change Strategy (due by
finances and on the environment
31 October 2020), which will set out
a statement of priorities to which
the AAPs must be aligned. The first
legislated AAPs are required to be
prepared by 2021.
8 Pilot Water Sector Climate Change Adaptation Action PlanDepartment of Environment, Land, Water and Planning
However, in Victoria’s Climate Statement of priorities
Change Adaptation Plan 2017–
The Act requires AAPs to be developed in the year following the release of
2020, the Victorian Government
the Act’s five-yearly Climate Change Strategy, the first of which is due by
committed to develop pilot AAPs
31 October 2020. The Climate Change Strategy will set out a Statement of
for the water sector, primary
Priorities, against which all AAPs must align. As this pilot WSAAP has been
production system and health and
prepared ahead of the Climate Change Strategy, there is currently no
human services system during the
Statement of Priorities with which to align this WSAAP. Instead, this WSAAP
period 2017–2020. The development
responds to both the Act and Victoria’s Climate Change Adaptation Plan
of pilot AAPs will test the AAP model,
2017–2020. The 2021 WSAAP will align with the Statement of Priorities in the
provide a learning opportunity
Climate Change Strategy 2020.
for the Government and smooth
the path for the delivery of the Policy objectives
legislated AAPs from 2021. The
Victorian Government selected The Act includes five key objectives, of which objectives 2, 3 and 5 are
the water sector as the subject addressed in this WSAAP.
of one of the pilot AAPs to help Table 1.2: Three objectives of the Act are addressed by the WSAAP
coordinate and monitor existing
adaptation activities in the sector, Included in
build on the initiatives in Water Objective from the Act
this WSAAP
for Victoria, and help Victoria’s
water sector to remain at the 1 Reduce the State’s greenhouse gas emissions
leading edge of climate change consistent with the long-term emissions reduction
adaptation planning. target and interim emissions reduction targets.
The Act requires that all AAPs
2 Build the resilience of the State’s infrastructure, built
include:
environment and communities through effective
1. A statement of the roles adaptation and disaster preparedness action.
and responsibilities of the
Government and other bodies in 3 Manage the State’s natural resources, ecosystems and
relation to the water sector. biodiversity to promote their resilience.
2. An assessment of the extent
to which existing Victorian 4 Promote and support the State’s regions, industries
Government water policies and communities to adjust to the changes involved in
address priorities of the relevant the transition to a net zero greenhouse gas emissions
climate change strategy. economy, including capturing new opportunities and
3. A list of further actions required addressing any impacts arising from the need to reduce
over the next five years that greenhouse gas emissions across the economy.
address any gaps between
existing water policies of the 5 Support vulnerable communities and promote social
climate change strategy. justice and intergenerational equity.
This WSAAP addresses these three Although the third objective is addressed in this WSAAP, ecosystems
requirements through Sections and biodiversity are out of its scope. Note also that the first and fourth
3, 4 and 5 respectively. As the objectives are being addressed through the water corporations’
timeframe for this pilot WSAAP is commitment to reduce greenhouse gas emissions by 42% by 2025. In
shorter than the future legislated addition, the Victorian Government is working with local governments,
WSAAPs, the actions are set for business and other partners to deliver a comprehensive set of actions
implementation over the next three to reduce emissions, build the resilience of business and the community,
years (2018–2020), rather than the and transition to a net-zero emissions economy. While neither is a focus
five years required by the Act. of this WSAAP, the first objective is relevant in that the development of
adaptation actions should not increase emissions, wherever possible.
The greenhouse gas emissions footprints of all actions proposed in the
WSAAP are in Appendix 4.
Pilot Water Sector Climate Change Adaptation Action Plan 9Department of Environment, Land, Water and Planning
Guiding principles 4. Equity – Actions should create The Act also contains
opportunities for the present and six high level principles
The Act also contains six high level
future generations to increase
principles that must be used in any
their capacities to adapt to
that must be used in any
decision made by the Government, decision made by the
climate change, particularly
and in any policy, program or
the capacities of those people Government, and in any
process developed or implemented.
These are shown below and in
most vulnerable to the potential policy, program or process
impacts of climate change. developed or implemented.
Table 1.3:
5. Community engagement –
1. Informed decision-making –
Actions should include providing
Actions should be based on
appropriate information and
a comprehensive analysis of
opportunities to the community.
the best practicably available
Actions should be developed
information about the potential
with adequate consultation with
impacts of climate change.
the community.
Actions should consider the
potential contribution to 6. Compatibility – Actions should
the State’s greenhouse gas seek to promote a coherent
emissions. policy framework within the State
and seek to achieve cohesion
2. Principle of integrated
with the climate change
decision-making – Actions
actions of other States, the
should integrate the competing
Commonwealth, other countries
long-term, medium-term and
and international bodies.
short-term environmental,
economic, health and other These principles have also been
social considerations relating to considered in the development
climate change to ensure that of this pilot WSAAP. Community
all relevant issues are taken into engagement specifically for this
consideration, there is a proper pilot WSAAP has been focused
examination of all the issues, and on industry and interest groups
any actions are cost effective. and researchers. Broader
3. Risk management – Actions public consultation has not
should be based on an been undertaken. Community
assessment of the likelihood, engagement on climate change
consequence and risks of has also been addressed through
climate change. It is a guiding the consultation undertaken for
principle of the Act that a lack of policy documents such as Water
full scientific certainty should not for Victoria. The water sector
be used as a reason to postpone organisations regularly consult
the taking of action. their customers about their climate
change activities. A draft of the
legislated WSAAP in 2021 will be
released for public comment.
10 Pilot Water Sector Climate Change Adaptation Action PlanDepartment of Environment, Land, Water and Planning
Table 1.3. How the objectives of this WSAAP relate to the guiding principles of the Act.
Guiding principle Objectives of this WSAAP
1 – Build knowledge 2 – Develop frameworks, 3 – Enhance staff
policy and tools capability and capacity
1 Informed decision-making
2 Principle of integrated
decision-making
3 Risk management
4 Equity
5 Community engagement
6 Compatibility
Victoria’s Climate Change Water for Victoria This WSAAP focuses on how the
Adaptation Plan 2017–2020 water sector should adapt to
Water for Victoria was prepared
protect resilient and liveable cities
Victoria’s Climate Change by the Victorian government in
and towns (Water for Victoria
Adaptation Plan 2017–2020 sets the 2016 as the water sector’s strategic
Chapter 5), Aboriginal values
following priorities to: forward-looking policy document.
(Water for Victoria Chapter 6)
• More effectively manage risks Water for Victoria has set a long-
and recreational values (Water
to the Government’s assets and term plan for the water sector
for Victoria Chapter 7) as
services from climate change. that includes preparing for and
well as improving emergency
responding to climate change.
• Help the community to management capability, which is
According to Water for Victoria,
understand and manage the in Water for Victoria Chapter 10:
“the water sector will lead climate
risks and potential impacts of Jobs, economy and innovation.
change adaptation actions” arising
climate change. While aspects of waterway and
from Victoria’s Climate Change
• Encourage adaptation action catchment health (Water for
Adaptation Plan 2017–2020 and
across all policy areas and Victoria Chapter 3) and water for
the Act.
sectors of the economy. agriculture (Water for Victoria
Water for Victoria addresses Chapter 4) are part of the broader
This WSAAP addresses the first
five key values of water that are context for this WSAAP, they
and the third of these priorities for
important to the community: are addressed in detail through
the water sector, and notes that
• Chapter 3 – Waterway and other AAPs.
each of the water sector agencies
catchment health
already has their own community
engagement program which covers • Chapter 4 – Water for agriculture
a variety of topics such as adapting • Chapter 5 – Resilient and liveable
to water shortage and floods. There cities and towns
will be opportunity to address the • Chapter 6 – Recognising and
second priority in the legislated managing for Aboriginal values
WSAAP, due in 2021. • Chapter 7 – Recognising
recreational values
Pilot Water Sector Climate Change Adaptation Action Plan 11Department of Environment, Land, Water and Planning
1.4. Scope
Defining the water sector
The Act defines the water sector, which is referred to in the Act as the ‘water cycle system’, as water supply,
sewerage, drainage and flood management. Therefore, this WSAAP focuses on these elements of the water sector,
and the relevant uses and values set out in Water for Victoria (Table 1.4).
Table 1.4. Elements of the water sector that are addressed in this WSAAP.
Definition in the Act How this has been interpreted and considered in this WSAAP
Water Supply
Water
The collection, storage, • All sources of water including recycled water and alternative sources
treatment, delivery • Availability and allocation of water for consumptive (urban, agricultural
and supply of water, and industrial), environmental, recreation and cultural uses
including recycled water. • Water quality of all water sources used for consumptive purposes
Sewerage
Sewerage
Sewerage services, • Sewage transport, pumping and treatment
including the collection, • Sewage quality
treatment and disposal • Recycled water treatment and quality
of wastewater through • Sewerage assets, their planning, operations and management
sewerage systems
and wastewater
treatment plants.
Drainage
Drainage services, • Nuisance inundation in urban and rural drainage schemes
including the operation
of drainage systems.
Flood management
Flood management • Overland flooding and riverine flooding
services, including • Sea level rise, storm surge and coastal flooding
the operation and
maintenance of
infrastructure to
mitigate floods.
Common issues
Common issues are not • Adaptation to extreme events as well as long-term changes.
defined in the Act, but • Decision-making under uncertainty.
have been addressed • Built assets, their design, management, operation, renewal and
in development of the replacement.
WSAAP to meet the Act’s • Financial, risk, legal, insurance, reputational and regulatory compliance
policy objectives and issues.
guiding principles.
• Water sector contribution to urban liveability.
• Community engagement.
• Internal culture, business engagement and capability around adaptation.
12 Pilot Water Sector Climate Change Adaptation Action PlanDepartment of Environment, Land, Water and Planning
Relationship to other ‘systems’
This WSAAP is closely related to other systems including the natural environment, primary production, the built
environment, and health and human services.
7 systems
Figure - scopes
1.5. The and
definitions ofelements of water
the water sector AAPthat are incorporated
and other system AAPs in in
theother system
Act (top AAPs.
line), and how each is
expected to incorporate water-related topics.
Water Primary Natural Built Health Education & Transport
production environment environment & human training
services
Defined as the Defined as (a) the Defined as land, Defined as the Defined as the Defined as the Defined as all the
collection, storage, growing and water over that places and services and assets services and components for the
treatment, delivery cultivation of land, and the soils structures built or primarily engaged in assets movement of
and supply of all horticultural and and biodiversity developed for protecting human primarily engaged persons and goods,
water sources, other crops, associated with human occupations, health from disease in the planning, including (a)
sewerage, drainage including plantation that land; coastal use and enjoyment, resulting from or development, physical
services, and flood forestry and farm water and the land including cities, associated with provision and components,
management forestry; and (b) the under those waters, buildings, urban communicable support of including transport
services. controlled breeding, and the ecological spaces, housing disease, food, water education and networks, facilities
raising or farming processes and and infrastructure, or the environment; training, including and vehicles and
of animals, and systems associated and how people and the services future workplace (b) services
the infrastructure, with the things set interact with that and assets which skills and needs. components,
workforce and out above. system. provide human including
communities physical and mental passenger, freight
supporting health care, social and other transport
(a) and (b). support and services to move
assistance. persons and goods.
Includes sea level On-farm use of Waterway health, Sea level rise and Regulation of Public eduction on Flooding and
rise and storm water, water biodiversity and storm surge drinking water climate change drainage
surge impacts on quality and water ecology; naturally impacts on places quality; public implications of
water sector assets; efficiency occuring wetlands; and structures not health benefit that transport
integrated water measures; impact the benefits of owned by the comes from infrastructure
management. of water availability environmental water sector not irrigated recreation design
on irrigated water; land owned by the and sports fields;
farmers and their management water sector supply of water to
communities communities in an
emergency
These topics are all relevant to the water sector, but are expected to be addressed through the other system AAPs
Allocation and Allocation and Sea level and Management of Education and Management of
supply of water for delivery of storm surge drinking water training of the flooding and
irrigation, stock environmental impacts on water quality; use of water industry staff drainage
and domestic water; constructed sector assets water for irrigation and customers infrastructure;
purposes to the wetlands in an of public land relating to climate operations of water
farm gate; rural urban such as parks, change impacts sector assets when
drainage environmental recreational areas on water sector transport access
and sports fields services is compromised
These topics are all part of the WSAAP, and have relevance to the other systems
Pilot Water Sector Climate Change Adaptation Action Plan 13Department of Environment, Land, Water and Planning
Some potential impacts of climate Some topics are closely related to This WSAAP provides a clear
change impact many systems, such water but will be covered by other signal to the leaders preparing
as the coastal impacts of climate system AAPs. For example: AAPs for other systems in the Act,
change, arising from sea level rise, • The primary production AAP will on the scope of actions. Any gaps
storm surges and coastal erosion. cover issues relating to on-farm or duplications between these
Another issue common to many water use. The climate change systems will be addressed by the
or all system AAPs is community threats associated with this DELWP Climate Change Division
consultation, engagement and activity are best considered with before the first legislated AAPs are
building a social licence for other on-farm processes. prepared by 2021.
challenging adaptation decisions. • The natural environment AAP
The DELWP Climate Change Policy is likely to include waterway
Division is leading programs to health, catchment vegetation
address these overlapping and and rural wetlands on both public
cross-sector issues. These issues and private land. This includes
will also be considered in the water quantity and quality for
development of legislated AAPs environmental, biological and
for 2021. ecological purposes.
• The health and human services
AAP and/or the built environment
AAP are likely to address the
broader issues associated with
urban heat and community
health through urban design.
The scope and interactions of
future AAPs under the Act will be
reviewed after the finalisation of the
pilot AAPs and before the legislated
AAPs are prepared in 2021. Figure
1.5 shows the relationship between
the AAPs.
14 Pilot Water Sector Climate Change Adaptation Action PlanDepartment of Environment, Land, Water and Planning
This WSAAP provides a clear
signal to the leaders preparing
AAPs for other systems in the
Act, on the scope of actions. Any
gaps or duplications between
these systems will be addressed by
the DELWP Climate Change Division
before the first legislated AAPs are
prepared by 2021.
Photo: Glenelg River.
Photographer Craig Moodie.
Pilot Water Sector Climate Change Adaptation Action Plan 15Department of Environment, Land, Water and Planning
2. The climate change challenge
Climate change impacts on the Figure 2.3 shows that rainfall during the cooler months of the year (April
water sector were described in to October) has declined across Victoria. This is particularly significant
Water for Victoria. They include: for water availability as the cooler months are the ones in which the water
• Sea level rise storages receive most of their inflows. Rainfall during the warmer months
• Reduced rainfall of the year is not as effective at filling water storages, as more of the rain
• Increased frequency of extreme that falls is lost in evaporation, uptake by vegetation, and soil wetting.
temperature, rainfall and storms Any increase in rainfall during the warmer months is not expected to
compensate for the reductions in rainfall during the cooler months, since
• Increased average temperatures
rainfall during warmer months does not usually generate sustained inflows
to storages.
2.1 Climate change Figure 2.1. Summary of Victoria’s changing climate, showing changes
in Victoria already experienced (left) and likely future changes (right).
Observed changes In the future Victoria can expect:
Victoria has already experienced Victoria is already More hot days. Harsher fire weather,
increasing temperatures and experiencing the impacts Mildura could have longer fire seasons
of climate change: up to 30 more
decreasing rainfall since the days above 35oC
mid-20th century (Figures 2.1 and per year by 2070 Less autumn,
winter and spring
2.2.) Average annual rainfall has rainfall north of the
INCREASE Great Dividing Range
reduced across all parts of Victoria, temperature Temperatures
to increase
since 1950, impacting all our water across state 1.1-3.3oC year
supply catchments. Temperatures since 1950 round by 2070
have increased by around 1ºC
across Victoria and up to 1.6ºC in
south-west Victoria over the same South West
period (Figure 2.2). Other observed Victoria Fewer frosts
up to 1.6oC
changes include: WARMER
• Stream flow in some Victorian Less winter and spring
rivers has reduced drastically rainfall south of the
Increased Great Dividing Range
frequency and
since the mid-1990s in height of storm
Average rainfall
association with the Millennium DECREASED
surge and high
tides
Rising sea level
Drought (Figure 2.3), and some in all parts of
catchments have never returned Victoria Warmer and more
acidic oceans
to their pre-drought yield since
the end of the drought.
• Sea level around the coast of
Australia has risen by an average
of 2.1 mm per year since the
1960s.2
• Heatwaves in Melbourne occur,
on average, 17 days earlier and
are 1.5°C hotter than between
1950–1980.3
2 Grose, M. et al., 2015, Southern Slopes Cluster Report, In Climate Change in Australia:
Projections for Australia’s Natural Resource Management Regions: Cluster Reports,
eds Ekström, M. et al., CSIRO and Bureau of Meteorology, Australia
3 Steffan W., 2015, Quantifying the Impact of Climate Change on Extreme Heat in Australia,
Climate Council of Australia
16 Pilot Water Sector Climate Change Adaptation Action PlanDepartment of Environment, Land, Water and Planning
Figure 2.3
Rainfall received during the cooler months
of the year (April–October) has declined
across2.2
Figure Victoria
Figure 2.2: Victoria’s temperatures have been steadily increasing for decades. This trend is consistent with global
temperature
Annual mean trends. Victorian temperature
temperature anomaliesdatafor
sourced from have
Victoria Bureaufollowed
of Meteorology,
globalglobal temperature data
trends
sourced from World Meterological Organisation.
1.0ºC
Figure 2.3
Mean temperature anomaly
0.5ºC Rainfall received during the cooler months
of the year (April–October) has declined
across Victoria
0ºC
1986–1995
-0.5ºC
Figure 2.3
Rainfall received during the cooler months
of the year (April–October) has declined
-1.0ºC across Victoria 1986–1995
Global temperature
5 year rolling average
-1.5ºC 2000
2010
1910
1920
1930
1940
1950
1960
1970
1980
1990
1996–2005
Figure 2.3
Rainfall received
Figure duringreceived
2.3. Rainfall the coolerduring
monthsthe cooler months of the year (April to October) has declined across Victoria.
of the year (April–October) has declined
Data sourced from the Bureau of Meteorology through the Victorian Climate Initiative (VicCI)
across Victoria 1986–1995 1996–2005
2006–2015
1986–1995 1996–2005 2006–2015
Highest on record Highest on record
Very much above average
Very much above average
Above average
Above average Average
Average (relative to the long term record 1900-2016) Below average
Very much below average
Below average
Lowest on record
Very much below average
1996–2005 2006–2015
Lowest on record
Pilot Water Sector Climate Change Adaptation Action Plan 17
Highest on record
Very much above average
Above averageDepartment of Environment, Land, Water and Planning
Projected changes Figure 2.4. Some plausible future climates of Victorian cities and towns,
matched with the current climate (comparing annual temperature and
Projections of future global trends
rainfall settings) experienced in another location (climate analogues), for a
in climate are wide-ranging and
world that is 4°C warmer than pre-industrial.
affected by factors such as carbon
For example, Melbourne’s future climate is anticipated to be similar to the
emissions and feedback loops.
current climate of Dubbo in New South Wales. There is uncertainty around
Based on climate modelling,
future emissions as well as their impact on future climate, which mean that
average annual stream flow
other future scenarios with more extreme climate change, or less extreme
reductions of around 50% could
change, are also very plausible. This map also shows one point in time, after
occur in some catchments by the
which the climate will still continue changing. (Independent Expert Panel on
year 2065 in Victoria4. Climate
Interim Targets, ‘Issues paper: Independent Expert Panel: Interim Emissions
change could also result in more
Reduction Targets for Victoria (2021-2030)’, DELWP (2017))
extreme events than in the past.
Climate analogues can illustrate • Amata
some possible future climates
of specific cities and towns by
matching their possible future
climates to locations that • Narrabri
currently have similar rainfall
and temperature. Figure 2.4 • Cobar
• Dubbo
shows plausible analogue
cities for Victoria under a 4°C
warming scenario, which may be • Cowra
• Mildura
experienced around 2100 under • Wagga Wagga
a high greenhouse gas emissions
trajectory. It highlights that changes Shepparton • Albury-Wodonga
•
in temperature and rainfall will Horsham • • Bendigo
be different in different parts of Ballarat • Melbourne
Victoria, and so will the likely threats Geelong • • • Lakes Entrance
• Traralgan
•
of climate change. Warrnambool
Most of Victoria’s water sources are Source: Climate Change in Australia, Climate analogues website:
climate-dependent, so planning for www.climatechangeinaustralia.gov.au/en/climate-projections/climate-analogues/about-analogues/.
DELWP’s Guidelines for Assessing the Impact of Climate Change on Water
a range of future climate change Supplies in Victoria can inform many potential future climate change
scenarios is important. scenarios to enable water sector staff to make better decisions regarding
supply of water resources. These guidelines can also help DELWP and the
water sector manage for the range of potential climatic changes.
4 Potter, N.J., Chiew, F.H.S., Zheng, H., Ekström, M. and Zhang, L. 2016. Hydroclimate projections for Victoria at 2040
and 2065. CSIRO publishing, 58 pp. https://publications.csiro.au/rpr/pub?pid=csiro:EP161427
18 Pilot Water Sector Climate Change Adaptation Action PlanDepartment of Environment, Land, Water and Planning
Putting Climate Science into Practice – Guidelines for Assessing the
Impact of Climate Change on Water Supplies in Victoria
The Guidelines for Assessing the Impact of Climate Change on Water Supplies in
Victoria are a key resource for equipping the water sector with the most up-to-
Guidelines for Assessing the
Impact of Climate Change on date understanding of climate change and associated threats to water resources.
Water Supplies in Victoria
FINAL, December 2016 V7.0 They provide projections for long-term changes in temperature, potential
evaporation, rainfall, runoff and recharge, which are to be used by water
corporations across Victoria to model the impact of climate change on water
supplies. Application of the guidelines will help protect Victoria’s water security.
DELWP developed these guidelines from the findings of the Victorian Climate
Initiative, which included modelling from the CSIRO and Bureau of Meteorology (BOM).
Figure 2.5 shows how Barwon Water has used the guidelines to inform a range of
supply and demand scenarios. Such graphs can be used to inform the timing of
actions required to maintain service levels.
Figure 2.5: Forecast balance between water supply and demand for the Greater Geelong system (Barwon
70,000
Water’s Urban Water Strategy (2017), reproduced with permission).
60,000
2061
Water demand and yield (ML/a)
50,000
2035
40,000
30,000
20,000
10,000
Earliest year level of Median year level of
service no longer met service no longer met
0
2016 2020 2026 2032 2038 2044 2050 2056 2062
Financial year ending June
Water demand scenarios Medium demand
System yield scenarios Medium yield
The guidelines are also useful to others involved in the water sector, including waterway managers,
environmental water holders and local governments. The application of the guidelines among the wider
water sector provides a consistent approach to assessing the impact of climate change on water availability
across Victoria.
Building on the success of these guidelines for water supply, this WSAAP commits to developing guidelines to
address the impact of climate change on sewerage services (see Section 5).
Pilot Water Sector Climate Change Adaptation Action Plan 19Department of Environment, Land, Water and Planning
2.2. Impacts of climate
change on the water
sector
Impact on water quality
Observed impacts
As explained in Section 2.1, Victoria Deterioration of water quality as a result of climate change, such
has already experienced some as through higher temperatures, drought, bushfires, floods and
changes in climate. These have storms, can pose threats to human health. Infection may occur from
impacted the water sector and its contamination of a variety of water sources such as drinking water
customers in various ways. Some supply, water bodies used for recreation, alternative water sources,
of these impacts are illustrated waterways or marine waters (the latter two are out of scope of this
through case studies. This mix of WSAAP). In some water systems, the location, capacity and design of
case studies covers some direct treatment plants may need to be reconsidered.
impacts of climate changes, some
For example, blue green algae blooms occur naturally in waterways
of the impacts of extreme events
and storages throughout Victoria. Some strains of the algae are toxic
that are exacerbated by climate
to humans and livestock.
change, and some impacts that
climate change has on community In mid-February 2016 a major algal outbreak was detected in the
values associated with water. Murray River extending 1,450 km from Hume Dam to just downstream
of Wentworth. This was one of the longest lasting blooms in the Murray,
lasting more than 12 weeks and impacting many river communities.
The warmer average temperatures that year and low rainfall are
thought to have contributed to this protracted outbreak. Other
experiences in the Victorian water sector in recent years have shown
that blue-green algae outbreaks may now occur in water bodies that
haven’t experienced blooms in the past, and in cooler months when
they weren’t expected in the past. Warmer, drier average conditions
anticipated under climate change may lead to algal blooms that are
more frequent or extensive, or occur in unexpected locations.
Photograph: Blue-green algae bloom in the Murray River, 2016. Source: anonymous.
20 Pilot Water Sector Climate Change Adaptation Action PlanDepartment of Environment, Land, Water and Planning
Impacts of bushfires Impact of changing
Bushfires are likely to be more frequent and intense with climate
snowpack
change, posing an increased threat to water security. Fires can burn
In some parts of the State, the
natural assets such as vegetation and infrastructure assets such
amount and timing of snowmelt
as pumping stations, pipes, storages or treatment plants. For many
impacts stream flow and water
months after bushfires, ash and sediment washed into reservoirs
supplies, including some urban
can affect the quality and quantity of water supplies, potentially
supplies. In particular, snow
rendering them unusable. Or in some cases, water may continue to
acts as a store of precipitation
be supplied to customers but at reduced quality, which may cause
in winter, which is released
inconvenience. Reservoirs are also threatened by debris flows, which
to waterways in spring, filling
are typically triggered by intense rainfall and more likely to occur in
water storages in preparation
post-fire landscapes.
for peak summer demand.
Even after reservoirs recover from these direct impacts, in some More work is needed to
situations forests that are regrowing after a bushfire might intercept quantify the likely future impact
and use more runoff than established forests. The reduction in runoff of reduced snow and snowmelt
reaching reservoirs can last for many years. This means reduced total on Victoria’s water supplies.
water available for water users.
DELWP and the water sector manage bushfire threats by undertaking
strategic planned burns, maintaining fire breaks and roads for
firefighters, and identifying fires as quickly as possible.
Current research by Melbourne Water and the University of Melbourne
is investigating the impacts of bushfires on long-term water yield and
short-term water quality under climate change.
Bushfires are likely to be
more frequent and intense
with climate change,
posing an increased
threat to water security.
Fires can burn natural
assets such as vegetation
and infrastructure
assets such as pumping
stations, pipes, storages or
treatment plants.
Pilot Water Sector Climate Change Adaptation Action Plan 21Department of Environment, Land, Water and Planning
Impacts of storms Impacts of drought on
The intensity of extreme rainfall events is projected
water availability
to increase with climate change, and lead to higher
Between 1997 and 2009, Victoria experienced
costs and more disruption to essential water
unprecedented dry conditions – a period now
services. Storms can cause damage and disruption
known as the Millennium Drought. These 13
in many ways, such as through intense rainfall,
consecutive years of drought, including the lowest
flooding and high winds. They can also bring storm
annual inflows to storages recorded (2006/07),
surges, which may overwhelm sewerage systems
resulted in conditions well outside the boundaries
and increase contaminant runoff from catchments,
in which the water supply systems and water
polluting water supplies and waterways. Storms
sharing rules across Victoria were designed to
can wash debris into water supply catchments and
operate. By the 2006/07 summer, many areas
rivers that impact water quality.
faced severe water shortages. Water customers
Storm damage to the Sydney Desalination Plant is were impacted through water restrictions, loss
an example of how some of Victoria’s water sector of plants in recreational areas, sports grounds
assets could be affected in future. In December and gardens, and impacts on agriculture and
2015, the Sydney Desalination Plant was hit by a other businesses such as nurseries, whose sales
very severe storm. The strongest maximum wind dropped as customers’ irrigation was restricted.
gust ever recorded in NSW (213 km/h) occurred These water shortages were more extreme than
at the site, which the Bureau of Meteorology envisaged possible when water entitlements were
confirmed was consistent with a tornado. developed, and the effectiveness of Victoria’s water
management frameworks was tested.
The storm caused significant damage to several
roofs, the control room, electricity transformers and The experience of managing water resources for all
other parts of the facility. It has been undergoing competing uses during the Millennium Drought was
major repairs. influenced by the complex interaction of:
• climatic conditions (that is, patterns and
As a critical piece of infrastructure, the desalination
reliability of rainfall across Victoria)
plant should be ready to help secure Sydney’s
drinking water supply when needed. However, it has • physical water systems (nature of supply
been unavailable for three years during its repairs. infrastructure and natural waterways)
• water sharing arrangements (secure water
Victoria can put in place safeguards and a disaster entitlements and trade)
preparedness plan to mitigate damage that
• water planning arrangements (preparedness in
could occur in this State so that water security
the short and long term)
is optimised.
• demand for water for different purposes
(domestic use including gardens, rural
consumption including irrigation, stock and
environmental water.).
While the Millennium Drought was in part caused
by natural variability with limited climate change
impact, climate science indicates that we should
expect longer and more frequent drought in future.
22 Pilot Water Sector Climate Change Adaptation Action PlanYou can also read
