pprwp background land and water...land and water planning perth-peel regional water plan background...

Land and water planning Perth-Peel regional water plan background paper

Looking after all our water needs

Department of Water

September 2009

Department of Water 168 St Georges Terrace Perth Western Australia 6000 Telephone +61 8 6364 7600 Facsimile +61 8 6364 7601 www.water.wa.gov.au

© Government of Western Australia 2009

September 2009

This work is copyright. You may download, display, print and reproduce this material in unaltered form only (retaining this notice) for your personal, non-commercial use or use within your organisation. Apart from any use as permitted under the Copyright Act 1968, all other rights are reserved. Requests and inquiries concerning reproduction and rights should be addressed to the Department of Water.

ISBN 978-1-92637-87-2 (online)

Department of Water iii

Contents Contents ...................................................................................................................................iii Summary ................................................................................................................................. iv 1 Introduction..........................................................................................................................1

1.1 A brief historical perspective (1800—2000) .....................................................................1 1800s 1 1900—1950 .............................................................................................................................................1 1950—1970 .............................................................................................................................................2 1970—1990 .............................................................................................................................................2 1990—2000 .............................................................................................................................................3

2 State water strategy and Network City ................................................................................7 2.1 State water strategy .........................................................................................................7 2.2 State planning policies .....................................................................................................7 2.3 Network City.....................................................................................................................8

3 Corridor structure plans .....................................................................................................12 3.1 Purpose and status ........................................................................................................ 12 3.2 Gingin coastal area ........................................................................................................ 13 3.3 North-west urban corridor .............................................................................................. 13 3.4 North-east urban corridor ............................................................................................... 13 3.5 South-east urban corridor .............................................................................................. 14 3.6 South-west urban corridor.............................................................................................. 15 3.7 Inner Peel region............................................................................................................ 16 3.8 North Eastern Hills ......................................................................................................... 17 3.9 Criticism of corridor-driven urban form ........................................................................... 17

4 Land and water initiatives ..................................................................................................19 4.1 Gnangara Sustainability Strategy (GSS)........................................................................ 19 4.2 Gingin agriculture and water strategy............................................................................. 21 4.3 Water quality improvement plans ................................................................................... 22

Swan-Canning river system...................................................................................................................22 Peel-Harvey estuarine system...............................................................................................................22

4.4 Urban water management.............................................................................................. 23 4.5 Southern metropolitan and Peel region growth strategy ................................................ 27 4.6 Drinking water source protection.................................................................................... 28

Shortened forms.....................................................................................................................31 References .............................................................................................................................33

____________________________________________________________________________________________________________

iv Department of Water

Summary The Perth-Peel regional water plan will provide strategic directions for sustainable water management in the region to the year 20301. Figure 1 displays the Perth-Peel region’s boundaries including its three subregions: Gingin, Perth and Peel.

Figure 1 Perth-Peel regional water plan boundary

This background paper examines the water resource management issues arising from the relationship between land and water planning in the Perth-Peel region. It is one of four background papers prepared in support of the Perth-Peel strategic directions discussion paper released by the Department of Water in March 2009.

The four Department of Water background papers are: 1 Water efficiency, recycling and alternative water supplies 2 Waterways and wetlands 3 Climate change, water demand and water availability scenarios to 2030 4 Land and water planning

1 Water resources in this context do not include marine waters.

Department of Water 1

1 Introduction

1.1 A brief historical perspective2 (1800—2000)

From the earliest days of human settlement on the Swan coastal plain, water resources have shaped the spatial extent and form of land development in the Perth-Peel region. In turn, land development for agriculture, industry and urban uses has dramatically affected the region’s water resources.

1800s

Even before European settlement, the relationship between land and water resources was evident in the settlement and movement patterns of the indigenous Nyungar people. Captain Stirling’s decision to locate the Swan River Colony (later renamed Perth) on the northern banks of the Swan River in 1829 was influenced by the area’s wealth of freshwater sources, including wetlands, streams, springs and accessible groundwater, (Lund & Martin 1996). The Swan River provided transport for both goods and passengers between Perth and Fremantle and remains the centrepiece of the Perth metropolitan area.

As early as the colony's first summer, water supply came to the fore as an issue. The wetlands proved unreliable and many settlers resorted to using groundwater from shallow wells. Having lost their importance for water supply, the wetlands became liabilities restricting further growth. Lake drains were constructed to reduce flooding and improve the quantity of water in local wells. Many wetlands were drained and filled.

In the 1870s, the first artesian bores were dug around Gosnells and upper Canning Bridge and local waterways were landfilled to create the Perth Esplanade in 1879. By the 1890s, the harnessing of the Darling Scarp’s surface-water resources had begun, with construction of the Victoria Reservoir and establishment of a piped water supply system. At the close of the century, Perth’s drains were upgraded resulting in the discharge of raw refuse into the Swan River.

1900—1950

By 1903, the Mundaring Weir was complete and the Coolgardie pipeline began transferring water to the Goldfields. The use of septic tanks for residential housing became increasingly common as subdivisions were opened up at a faster rate than sewers could be provided. In the early 1920s, algal blooms became a problem in the Swan River during summer. By the end of the decade, a wastewater treatment plant (WWTP) was built at Subiaco and the state government committed to ocean rather than river disposal of effluent.

The Hills Scheme took shape during the 1930s–50s with construction of Canning Dam and the Serpentine main dam and pipehead dam to meet the water supply needs of a growing population. The dams dramatically altered downstream flow regimes.

2 For a more complete history, refer to Lund & Martin 1996, Historical association of wetlands and rivers in the

Perth-Bunbury region, Water resource technical series, Water and Rivers Commission report WRT3, Perth, Western Australia.

2 Department of Water

1950—1970

In 1955, urban planners Stephenson and Hepburn completed the Plan for the Perth metropolitan region: Perth and Fremantle. This led to the establishment of the statutory Metropolitan Region Scheme in force since 1963. It also fundamentally altered the city’s design by setting a blueprint for population growth along four corridors extending out from an urbanised core. The plan also introduced the concept of regional open space. The location of the future urban corridors was dictated largely by the need to protect the important water supply resources of the Gnangara and Jandakot mounds.

The 1960s were an economic boom time for Perth. This resulted in rapid redevelopment in much of Perth, which included some wetlands being used for sanitary landfill (e.g. Lake Monger and Bibra Lake) and the filling of Mounts Bay for the Mitchell Freeway interchange. The Woodman Point WWTP began operation, with effluent discharging to Cockburn Sound.

1970—1990

Released in 1970, The corridor plan for Perth replaced the Stephenson-Hepburn plan but retained its key features including the urban corridors (MRPA 1970). The physical constraints imposed by the Darling escarpment, the coastline and the two groundwater mounds dictated to a large extent that urban growth would proceed within the corridors.

By the early 1970s, the groundwater resources of the Gnangara Mound were further developed for public water supply with the Mirrabooka and Wanneroo groundwater areas joining the water grid. The 1970s saw a dramatic increase in the number of households with private backyard bores. There was also growing awareness not only of the ecological but social value of our waterways. The seminal work of Perth environmental planner George Seddon, A sense of place (1971), brought the values of the Swan coastal plain into the public conscientiousness.

During the next 20 years, the concept of catchment management would become mainstream and further draw together land and water resource management. By the end of the 1980s, the Landcare movement had emerged as an important grass-roots movement with community-based groups actively involved in planning and implementing projects to achieve sustainable land management.

There was broad community awareness of the stresses land-use activities were placing on our marine and inland waters and the need for catchment-wide solutions. The environmental quality problems of the Cockburn Sound, Peel-Harvey estuarine system and Swan-Canning river system were recognised as being as much land management problems as they were water management issues.

The combined effects of the Kwinana industrial area and urbanisation had significantly diminished the environmental values of the Cockburn Sound. For the next 30 years it would take a concerted effort and an investment of substantial resources by the government, industry and the community to improve the Sound’s environmental quality. This included a decision in 1984 to redirect Woodman Point WWTP effluent to Point Peron for discharge.

The impact of agricultural activities and increasing urban growth on the Peel-Harvey estuary were evident in eutrophic conditions that is, excessive nutrients resulting in poor water quality and causing seasonal occurrence of toxic blue-green algae. By 1988, a state government environmental review3 of the Peel-Harvey estuarine system concluded that urgent action was

3 The Peel Inlet and Harvey Estuary management strategy environmental review and management plan, Stage 2

(Kinhill 1988).


needed to avoid the serious environmental and amenity problems associated with eutrophication. A proposal to construct the Dawesville Channel as an additional opening from the Harvey Estuary to the ocean was supported. The cut would increase water exchange between the estuary and the ocean to address water quality issues in the estuary and facilitate residential and recreational developments. The report recommended changes in land-use activities, particularly those contributing significant amounts of phosphorous.

The Swan River Trust Act was enacted in 1988 and the Swan River Trust (SRT) created as an advocate for the Swan and Canning rivers.

1990—2000

Metroplan – a planning strategy for the Perth metropolitan region and the Urban expansion policy statement for the Perth metropolitan region were published in 1990. Metroplan (DPUD 1990) became the metropolitan-wide structure plan and retained many features of The corridor plan for Perth (MRPA 1970), such as the corridor structure (Figure 2).


Figure 2 Metroplan 1990

In the same year that the Dawesville Channel opened, the Peel regional strategy (DPUD 1994) set objectives for future land use in the Peel region. Structure plans were prepared for each of the urban corridors to develop the objectives of Metroplan and the Peel regional strategy.

There were increasing signs that Gnangara Mound was becoming stressed. In 1991, extreme temperatures, low soil moisture, low groundwater levels and abstraction caused the death of large patches of vegetation in Gnangara Mound perks, such as Whiteman Park. In


the coming years, the Water Corporation would decommission a number of production bores to relieve pressure on the mound’s environmental values.

In 1994, the Legislative Assembly Committee on Metropolitan Development and Groundwater Supplies concluded there was no need to allow urban development on the public water supply mounds in the Perth region. The Western Australian Planning Commission (WAPC) published Statement of planning policy no. 3 (now 2.2): Gnangara Mound Crown Land in 1995 as a statutory policy ‘to prevent development which could prejudice the long-term use of groundwater’.

The Jandakot land use and water management strategy (JLUWRS) (WAPC 1998) recommended policy and statutory mechanisms to protect and manage the groundwater resource and environmental values of the Jandakot Mound over the 20–30 year period to 2025. Statement of planning policy no. 6 (now 2.3): Jandakot groundwater protection policy followed in 1998.

The Metropolitan rural policy (1995), which was applied to all rural-zoned land in the metropolitan region, was designed to provide guidelines to protect the special character of rural areas, facilitate continued production on agricultural land, protect water catchments and other natural resources, conserve landscape and conservation values and protect options for future metropolitan growth.

Perth’s water future was released in 1995 as the Water Authority’s water supply strategy for Perth and Mandurah to the year 2021 (Stokes et al. 1995). The strategy highlighted:

• the need for greater integration of land and water planning

• an increasing reliance on groundwater sources for drinking water.

• the role of water efficiency in reducing the pressure on drinking water resources

• the potential for conflict between increasing demand for recreational access to drinking water catchments and the need to protect water quality

• the lack of a policy for setting streamflow requirements for waterways with water storages (e.g. public water supply dams).

• that streamflows had decreased since 1970 and climate change could potentially have significant implications for future source development.

The protection of water sources used for public drinking water supply has had a dramatic impact on land-use patterns in the region. The urban-corridor concept, in large part, reflects a desire to protect the valuable water supply values of Gnangara and Jandakot mounds from incompatible land uses.

Source protection for the Hills dams has complemented efforts to maintain large areas of forest on the Darling Scarp and to have limited and small-scale urban development in order to retain the special character of the Hills as a place to live. These protected catchments are important venues for ‘passive’ recreation activities, ie that do not impact the water supply, such as bushwalking and picnicking). The Mundaring Weir and catchment is one of the most frequently visited daytrip destinations in the region.

Drinking water source protection planning has complemented the objectives of the Metropolitan rural policy (WAPC 1995) by protecting water supply catchments, conserving landscape and conservation values and helping protect the special character of rural areas.

In 1997, the State planning strategy provided a new planning vision for Western Australia, going forward to the year 2029. The strategy highlighted the concept of sustainability and noted that:


• Perth would place heavy reliance on groundwater resources, making the protection of groundwater resources critical to future water supply strategies

• urban development would require careful management of drainage to avoid off-site environmental impacts on wetlands and nutrient levels

• water-sensitive design should become a feature of urban planning.

• there was an urgent need to manage nutrient levels in drainage systems to the Swan River and Peel-Harvey catchments.

The Jandakot Land Use and Water Management Strategy (WAPC 1998) and the Gnangara land use and water management strategy (WAPC 2001b) were early examples of a more integrated approach to land and water planning. Key recommendations of these Jandakot and Gnangara strategies were enshrined through Metropolitan Region Scheme amendments.

The concept of regional parks first mooted in the Stephenson-Hepburn plan (1955) came closer to fruition. Eight regional parks were created with wetlands playing a central role in many of the parks (e.g. Beelier, Herdsman Lake, Rockingham Lakes and Yellagonga regional parks).

Released in 1995, the Urban bushland strategy was the precursor to Perth’s Bush Forever and ’greenways’ studies. A strategic plan for Perth’s greenways (Tingay and Associates 1998) promoted the concept of a network of ‘greenways’ to provide corridors and linkages between and within regional parks. Many rivers and streams were identified as important ‘greenways’ linkages. Bush Forever (WAPC 2000b) soon followed as a plan to protect regionally significant bushland and associated wetlands within the Swan coastal plain portion of the Perth metropolitan region.

By the end of the decade, regional natural resource management (NRM) had gained momentum with the creation of community-led regional groups with responsibility for coordinating and delivering NRM programs. This included the Swan Catchment Council (1998), the Peel-Harvey Catchment Council4 (2000) and the Northern Agricultural Catchments Council (includes Gingin).

4 The PHCC is a member of the South West Catchments Council.


2 State water strategy and Network City

2.1 State water strategy

By the time Securing our water future: A state water strategy for Western Australia was published in 2003, climate change had emerged as the greatest pressure on the state’s water resources. ‘A fundamental long-term shift in climate in the south west has significant implications for the determination of sustainable yields, and the allocation and management of water resources’ (DPC 2003).

The strategy also reflected awareness that most of the easy-to-develop land in the metropolitan region had already been urbanised. The remaining future urban areas identified in the corridor plans were largely constrained by water resource issues (e.g. water availability, waterlogging and nutrient legacies) and sensitive environmental values (e.g. wetlands). ‘When considering the future use of a given land area, the constraints and opportunities need to be closely evaluated prior to establishing the permitted land use… Land use planners and water resource managers need to take accountability for decisions and ensure that sustainability principles are met’.

The concepts of ‘fit for purpose’ water use, total water cycle management5, wastewater re-use and the incorporation of water saving urban design (WSUD) into planning schemes were promoted. The strategy noted that a ‘number of groundwater subareas on the Perth coastal plain have no further groundwater allocations available. In these locations it is necessary to improve water-use efficiency, find alternative sources (reclaimed water etc.) and promote water trading to provide opportunities to free up water for further development’. It was proposed that a sustainable management framework for land and water use of the Gnangara Mound be developed and implemented.

These objectives, principles, and recommendations were more fully developed in the State water plan (DPC 2007). The plan included a state water planning framework, an action plan and a requirement that regional water plans be prepared to identify the strategic directions for implementing the policy objectives at a regional scale.

2.2 State planning policies

Since 2000, a number of state government agencies have published policy and position statements to highlight the need for strong linkages between land and water planning. The WAPC enacted several new state planning policies (SPP) highlighting that land planning had an important role in protecting, conserving and enhancing water resources (Table 1).

5 Total water cycle management or integrated water cycle management is the holistic management of water

including water supply, stormwater and wastewater, in accordance with the principles of sustainability, to maintain the integrity of the water cycle.


Table 1 State planning policy objectives

SPP Policy objective No. 2.2: Gnangara Mound Crown Land (1995)

To prevent development that could prejudice the long-term use of groundwater.

No. 2.3: Jandakot groundwater protection policy (1998)

To ensure development over the Jandakot public groundwater mound is compatible with the long-term use of groundwater for human consumption.

No. 2.7: Public drinking water source policy (2003)

Ensure that land use and development within public drinking water source areas (PDWSAs) are compatible with the protection and long-term management of water resources for public water supply.

No. 2.9: Water resources (2006)

Protect, conserve and enhance water resources that are identified as having significant economic, social, cultural and/or environmental values. Assist in ensuring the availability of suitable water resources to maintain essential requirements for human and all other biological life with attention to maintaining or improving the quality and quantity of water resources. Promote and assist in the management and sustainable use of water resources.

No. 2.10: Swan-Canning river system (2006)

Provide a regional framework for the preparation of precinct plans based on the precincts identified in the Swan River system landscape description. Provide a context for consistent and integrated planning and decision making in relation to the river. Ensure that activities, land use and development maintain and enhance the health, amenity and landscape values of the river, including its recreational and scenic values.

At the more detailed subdivision and neighbourhood planning level, Liveable neighbourhoods (particularly Element 5) provides for a more integrated approach to urban water management and urban form (WAPC 2000a).

WAPC planning bulletins (PBs) also gave water management issues greater visibility within the land-use sector. These include PB 64 Acid sulfate soils (WAPC 2003b) and the recent PB 92 Urban water management6 (WAPC 2008b).

In 2005, the EPA published Draft guidance statement no. 33: Environmental guidance for planning and development (EPA 2005), providing advice to participants in land use and development processes on their responsibilities regarding protecting, conserving and enhancing environment values.

2.3 Network City

In 2004, Network City superseded Metroplan as the metropolitan strategy for Perth and Peel to the year 2030 (WAPC & DPI 2004). The strategy projects a population of 2.2 million in Perth and Peel by 2031, or a 52 per cent increase over 2001.

6 PB 92 supersedes PB 61 Urban stormwater management (WAPC 2003c)


A WAPC (2003a) resident survey of planning priorities conducted for Network City highlighted the importance placed on protecting waterways and wetlands from development that could be damaging in the long term (Table 2). There was also the perception that not enough was being done to achieve that objective (Table 3).

Table 2 Importance placed on protecting waterways and wetlands (WAPC 2003a)

How important is it to you that a liveable city... Very

Quite Not very

Not at all

… makes sure that its natural waterways and wetlands are protected from development that could be damaging in the long term.

79 18 2 1

… protects natural bushland. 69 26 4 1 … has parks or open spaces near medium and higher density neighbourhoods.

66 28 5 1

… has enough public transport so people can get to it by walking or cycling.

61 32 6 1

… reduces dependence on motor vehicles, and thus reduce pollution/greenhouse gases.

53 34 11 2

… has a clearly defined ‘urban boundary’ 22 31 34 13

Table 3 Resident perceptions of status of planning objectives

How is Perth doing at the moment? Really over-doing it

Over-doing it a bit

Got it about right

Not doing enough

Doing almost nothing

In making sure its natural waterways and wetlands are protected from development that could be damaging in the long term.

0 2 18 60 20

In protecting natural bushland. 1 3 38 50 8 In having parks or open spaces near medium and higher density neighbourhoods.

0 1 51 44 4

In having enough public transport so people can get to it by walking or cycling.

0 1 31 61 7

In reducing dependence on motor vehicles, and thus reduce pollution/greenhouse gases.

1 3 19 62 15

In having a clearly defined ‘urban boundary’. 1 4 51 30 14

Priority strategies and actions related to water resource management included:

• refocusing planning decision-making on sustainability principles

• protecting water resources by total water cycle management and giving priority to environmental water requirements and drainage pollution control

• supporting priority environmental restoration initiatives identified by regional NRM strategies

• preparing staged infrastructure strategies to service development identified in the metropolitan development program.


Improving resource efficiency is a guiding principle of Network City. In May 2007, the state government introduced the Water Use in Houses Code as part of its 5 Star Plus program. The code requires that all new homes are plumbed with the potential to connect to an approved alternative water supply (e.g. water tanks, bore water and third pipes7).

The population growth projected by Network City would require an additional 370 000 homes between 2001 and 2031. On average this amounts to 14 000 new homes each year (WAPC & DPI 2004). The strategy sets an ambitious target of achieving 60 per cent of future dwelling growth within already developed urban areas, with only 40 per cent in ‘greenfield’ sites on the urban fringe. Local governments predicted to experience higher-than-average growth in the period 2004–21 are Wanneroo, Swan, Perth, Cockburn, Kwinana, Rockingham and Mandurah. Tables 4 and 5 display the notional distributions of new dwellings to achieve these targets.

Table 4 Additional dwellings in existing urban areas

7 The term ‘third pipe’ refers to the use of an additional water reticulation pipe to supply high-quality recycled

water for urban irrigation and toilet-flushing purposes.


Table 5 Additional dwellings in new growth areas

Population projections for the Perth-Peel region were revised upward in 2008 by the WAPC and Department for Planning and Infrastructure (DPI). The region’s population is projected to reach about 2.1 million by 2030 (Table 6). This represents an additional 590 000 people in the Perth subregion and the population nearly doubling in the Peel subregion by 2030.

Table 6 Population projections by subregion

Subregion 2008 pop. 2031 pop. Projected increase 2008–2031

Perth 1 556 000 2 146 000 590 000 Peel 102 000 193 000 89 000 Gingin 10 000 15 000 5000 Total 1 668 000 2 354 000 684 000


3 Corridor structure plans

3.1 Purpose and status

The WAPC has prepared structure plans for each of the four urban corridors, the Gingin coastal area and the inner Peel region. The plans provide a framework for urban development in the corridors and guide more detailed planning at the local level.

The corridor structure plans are ‘ideas plans’ with no legal status. However, state and local government authorities have used the plans to guide decision-making for planning and controlling urban development. The urban corridor structure plans developed since 2000 have adopted a stronger water management focus, especially with respect to drainage issues. The corridor plans are supported by district- and local-scale structure plans and strategies (Table 7).

Table 7 Key corridor structure plans and strategies

Corridor structure plans and strategies Date Gingin coast structure plan 2006 Subregional structure plan for the Swan urban growth corridor In press NW urban corridor North-west corridor structure plan 1992 Yanchep structure plan 1993 The future of east Wanneroo 2007 Updated north-west corridor structure plan In progress NE urban corridor North-east corridor structure plan 1994 NE corridor extension strategy 2003 SW urban corridor SW corridor structure plan 1993 Inner Peel region structure plan 1997 Coastal and lakelands planning strategy and structure plan 1999 SE urban corridor South-east corridor (south of Armadale) structure plan 1996 Southern River/Forrestdale/Brookdale/Wungong district structure plan 2001 Byford structure plan 2005 Foothills and Darling Scarp Foothills structure plan 1992 North Eastern Hills settlement pattern plan 2002


3.2 Gingin coastal area

The Gingin coast structure plan (WAPC 2006) guides future development in the coastal portion of the Shire of Gingin. This area lies above the northern boundary of the north-west corridor. Most of the area’s 3000 residents live in the four coastal settlements (Guilderton, Seabird, Ledge Point and Lancelin) and several rural residential estates. The Gingin coast forms part of the Swan coastal plain and includes the Moore River and Gingin Brook.

This area has been the subject of a variety of development proposals over the years, including a strategic industrial area at Breton Bay and the design of satellite cities to Perth. The current structure plan includes neither of these. Over the 25-year planning period, the residential population is projected to grow to between 7500 (low growth) and 16 000 (high growth) (WAPC 2006).

The availability of water for existing and potential uses, especially horticulture, is a major issue. The area has significant potential capacity for annual and perennial horticulture. However, available groundwater for irrigation is a limiting factor. The structure plan identifies a need for the Department of Agriculture and Food WA (DAFWA) and the Department of Water to undertake further exploration of mechanisms to protect quality groundwater.

3.3 North-west urban corridor

The North-west corridor structure plan was released in 1992 and remains in place as the guiding land-planning document for this rapidly urbanising corridor. It is supported by a growing number of state and local government policies and strategies, as well as private-sector-initiated concept and structure plans. In response to the rapid growth in the north-west corridor, the DPI is currently reviewing the corridor structure plan.

The City of Wanneroo is changing rapidly. The current population of 115 000 is forecast to increase to more than 250 000 by 2021 and the total build-out population (post-2035) may exceed 350 000 (Geografia 2008). Most of this growth will occur in the northern-coastal-corridor suburbs of Alkimos, Eglinton, Two Rocks and Yanchep.

In the east Wanneroo area, land planners have struggled to balance the area’s existing rural character and agriculture benefits with increasing urban development pressure and declining groundwater availability. A review of future land uses and water resource management issues resulted in the strategy: The future of east Wanneroo (WAPC 2007a). To ensure the continued presence of agriculture and horticulture activities, a new horticulture/agriculture area was proposed in north-east Wanneroo – on land currently reserved for State Forest.

There are a range of private-sector local and district structure planning proposals for future urban areas in the northern portion of the corridor. The Alkimos Eglinton district structure plan provides a vision of a new coastal town for 53 000 people located 15 km north of Joondalup. The St Andrews district structure plan covers an area of 4000 ha around the townships of Yanchep and Two Rocks with an estimated build-out population of 155 000 by 2030.

3.4 North-east urban corridor

The North-east corridor structure plan was released in 1994 to guide development in this growth corridor, most of which is to remain zoned rural, with Ellenbrook and Henley Brook zoned urban and West Swan as urban deferred. The Swan Valley takes up a large portion of land in the corridor’s south-east. The Swan Valley Planning Legislation Amendment Act 2006


(WA) underpins the land-planning goal of the Swan Valley: to preserve its unique historical, viticultural, tourism and recreational resources. Further north, the corridor includes the greenfield residential community and townsite of Ellenbrook, ultimately home to an estimated 30 000 people.

The Swan urban growth corridor drainage and water management plan (DoW 2008a) was developed to support the North-east corridor structure plan. This plan identifies wetlands of conservation significance and highlights water management issues including the potential activation of acid sulfate soils, contaminated sites, waterlogging and legacy nutrients. The Ellen Brook catchment is one of the highest contributors of nutrients to the Swan-Canning estuary (SRT 2007). In an average year, Ellen Brook contributes 36 per cent of the total phosphorus load in only 6 per cent of the total flow. Ellen Brook and its tributary creeks are highly susceptible to the growth of blue-green algae.

The North-east corridor extension strategy (WAPC 2003d) lengthened the urban corridor northward. The extension includes provisions for an urban settlement of 5000 to 10 000 people in the general vicinity of Bullsbrook, a new town near Bindoon and a corridor for the proposed Perth–Darwin National Highway. The strategy does not envisage rapid growth for the area during the next 30 years.

The strategy notes that stormwater management issues are significant constraints to population growth. Development on palusplain areas (ie, (seasonally waterlogged flats) would likely require importation of a significant amount of sandfill. The northern half of the corridor extension shows considerable potential for horticulture, but water supply availability may be a limiting factor because additional water allocations would be required from the Gingin groundwater area.

3.5 South-east urban corridor

The WAPC adopted the South-east corridor (south of Armadale) structure plan in June 1996. The south-east corridor extends from Gosnells in the north to Keysbrook in the south. The areas identified for urban development included Gosnells (Southern River) and Armadale (Forrestdale, Brookdale and Wungong) along with urban expansion around Byford and Mundijong.

In 2001 the WAPC published the Southern River/Forrestdale/Brookdale/Wungong district structure plan. Despite significant development constraints, by the late 1990s the area had come under increasing development pressure. The constraints were primarily water related, including a high watertable, low-lying land, a nutrient legacy, drainage issues, contaminated sites and regionally significant conservation areas, such as the Ramsar-listed Forrestdale Lake.

The structure plan indicated the need for a detailed urban water management strategy before development occurred. The strategy was to address drainage and nutrient management issues and provide a framework for subsequent site-specific drainage and nutrient management plans. An Urban water management strategy (JDA 2002) was released in 2002. Recognising the need to combine land use and water management in this area, an integrated land and water management plan (ILWMP) was then prepared under a multi-agency Memorandum of Understanding8 (MOU). The Department of Water published the Southern River ILWMP in January 2009.

8 The MOU was signed in 2003 by the EPA, WRC (now the Department of Water), WAPC, Water Corporation, the

cities of Armadale and Gosnells, and the Armadale Redevelopment Authority.


In the Serpentine-Jarrahdale Shire, future urban cells at Byford and Mundijong will ultimately increase the population to approximately 30 000 and 25 000 respectively. Since 2004, residential subdivisions in the Byford structure plan (BSP) area have begun. The BSP (Taylor Burrell Barnett 2005) outlines the Serpentine-Jarrahdale Shire’s plans for future subdivision and development/redevelopment of the townsite and the surrounding rural residential area. The BSP proposes substantial development of low-lying rural floodplain areas. The proposed main town centre is situated in an area at substantial risk of flooding. The Byford townsite drainage and water management plan was prepared in 2008 to address stormwater management issues and provide a framework for more site-specific water management plans (DoW 2008b).

3.6 South-west urban corridor

The South-west corridor structure plan was released in 1993. Stimulated by the Kwinana Freeway extension and the opening of the Perth to Mandurah rail line, the Jandakot structure plan (WAPC 2007b) was prepared to guide growth in the area of land immediately surrounding the Jandakot underground water pollution control area. This generally comprises the localities of Oakford, Mandogalup, Casuarina, Wellard, Anketell and The Spectacles (Figure 3). The area’s projected population is 20 000 residents by 2026 and ultimately about 40 000 people.

Much of the structure plan area has a shallow watertable depth consistent with its classification as dampland (seasonally waterlogged basin), sumpland (swamp) or palusplain. Changes to groundwater levels are of concern, as they may affect wetlands and other significant vegetation. Further, lowering the watertable through artificial drainage could mobilise nutrients in the soil and groundwater, increasing nutrient loads in the Peel-Harvey estuarine system. The draft structure plan identified that the drainage issues would need to be reviewed in a water resource management strategy (WRMS) before the structure plan was finalised.


Figure 3 Jandakot structure plan area

A framework for developing the Jandakot water resources management strategy was prepared but there was insufficient data about and understanding of the water resources to deliver a WRMS with sufficient technical rigour (DoE 2004a). The final Jandakot structure plan stated that land-use outcomes for the area would be determined pending further investigations and studies. These were to include (but would not limited to) the WRMS, the Peel main drain strategic planning project, and more detailed local structure planning (WAPC 2007b). The Department of Water is currently preparing a Jandakot drainage and water management plan for the area.

Land development planning in the Kwinana portion of the structure plan area (Anketell to Wellard) has progressed to the concept plan stage. In the coming years, the area covered by the Eastern Residential Intensification Concept (ERIC) will become home to the majority of Kwinana's new residential population. Land sales have begun at the Department of Housing and Works’ Belgravia Central, a new residential project in Bertram.

3.7 Inner Peel region

The Inner Peel region structure plan (Ministry for Planning 1997) provided the basis for the Peel region scheme (WAPC 2003e). The plan covers the City of Mandurah and the parts of the shires of Murray and Waroona located on the Swan coastal plain. Recent transportation infrastructure projects (Perth to Mandurah rail line and the New Perth Bunbury Highway project), are stimulating the increasing pressure for urbanisation along these transportation links.

The structure plan attempts to look 30–50 years into the future and identifies areas for urban development to accommodate an estimated population of about 255 000. This includes capacity for 150 000 people in the City of Mandurah, 55 000 in the Shire of Murray and


52 000 at Amarillo (now Keralup). The structure plan also recommends that a Peel Regional Park be established. The proposed park comprises the Peel Inlet, Harvey Estuary and the lower parts of the associated rivers (Murray, Serpentine and Harvey) together with 6375 ha surrounding these waterways. A management plan is currently being prepared for the park.

The structure plan notes that water resource issues and environmental issues (e.g. wetlands) will make urban development in some areas challenging. For example, expansion around Pinjarra would require the application of water-sensitive design principles to avoid flooding and protect the quality of drainage water exported to the Murray River and Peel Inlet. In the case of the proposed urban area of Amarillo (now Keralup), high groundwater levels and drainage conditions would require that a considerable proportion of the land area be devoted to water-sensitive design and the on-site retention of stormwater.

3.8 North Eastern Hills

The North Eastern Hills area consists of the portion of the Darling Scarp bounded on the south by the Great Eastern Highway. The shires of Northam and Toodyay bound the study area to the east and north. Existing town sites include Mundaring, Mahogany Creek, Parkerville, Hovea, Stoneville, Sawyers Valley, Mount Helena, Chidlow and Wooroloo in the Shire of Mundaring, and Gidgegannup in the City of Swan.

The Shire of Mundaring portion of the plan area is characterised by small town sites and a mix of hobby farms, public open space, State Forest and lower-density rural uses. The City of Swan portion is characterised by large rural landholdings with some limited pockets of rural-residential development.

North Eastern Hills settlement pattern plan (WAPC 2002) supports maintaining the ‘hills lifestyle’ while accommodating up to another 26 300 people. This would bring the area’s population up to 41 900 by 2026. Growth would initially be directed to the existing town sites, including Gidgegannup.

The existing public water supply infrastructure in the area is restricted to servicing the main town sites. Other existing development relies on rainwater tanks, bores and dams for water supply. Groundwater in this portion of the Darling Plateau generally exists in small, localised supplies of variable quality. The number of private dams on streams in the Hills has grown and many are unlicensed.

Much of the area is not connected to the metropolitan wastewater service. Effluent disposal from conventional wastewater treatment plants can be problematic, as the soils are not necessarily suitable to the breakdown of wastes (WAPC 2002). The plan notes that problems associated with water supply and waste disposal may be overcome with smaller-scale development where on-site water collection and disposal systems could be established. This might include neighbourhood-scale wastewater treatment plants with re-use of effluent for municipal purposes and separate on-site greywater re-use systems.

3.9 Criticism of corridor-driven urban form

The concept of urban corridors has driven urban form in the metropolitan area since the 1950s, but it has had its critics (e.g. Weller 2007, Yiftachel & Hedgecock 1992, Curtis & Perkins 2006). The urban sprawl created by corridor development has been criticised as being inefficient and inconsistent with sustainability principles.


From a water supply planning perspective, a more compact urban form could result in reductions in per capita water use by:

• reducing water use ‘outside’ dwellings (smaller individual property lawns and gardens)

• increasing opportunities for ‘third pipe’ through a greater concentration of services

• more efficient use of water infrastructure

• increasing the opportunities for recycling (e.g. treated wastewater, rainwater).

Water resources are part of a number of considerations in determining a preferred urban form. A decision to move away from corridor-style development would need to carefully weigh a broad range of factors, such as environmental values, economic productivity, and community character and values.


4 Land and water initiatives

4.1 Gnangara Sustainability Strategy (GSS)

In addition to public water supply, the Gnangara groundwater system supports an extensive horticultural industry, household garden bores, parks and recreational areas, industry and a range of ecological systems. Water levels in shallow groundwater systems are declining across both the Gnangara and Jandakot mounds (Figure 4). The causes are a mix of natural and human factors. Regionally, the climate is becoming drier, reducing recharge and leading to lower groundwater levels. Superimposed on this regional trend are the effects of localised land use, vegetation, urbanisation and groundwater abstraction (McHugh & Bourke 2008).

The Superficial aquifer of the Gnangara mound supports numerous ecosystems, including permanent and seasonal wetlands, Banksia woodlands, organic mound springs and caves (e.g. Yanchep National Park). The decline in the watertables has resulted in the breaching of Ministerial water-level criteria and a general deterioration of the environmental, social and cultural values of lakes and wetlands.

Ministerial conditions were first set for wetlands and other groundwater-dependent ecosystems on Gnangara Mound in 1986 (EPA Statement 438) and in 1992 for Jandakot Mound wetlands (EPA Bulletin 587). The number of Ministerial water-level criteria breaches is increasing. In 2004, the EPA warned that management of Gnangara Mound groundwater was no longer sustainable (EPA 2004).

As water levels decline, the Gnangara system as a whole is approaching full allocation with some aquifers now considered over-allocated in some groundwater areas (McHugh & Bourke 2008). The current situation poses a threat to the many economic, social and ecological uses and values of the Gnangara Mound. It has significant implications for future growth areas in the north-west urban corridor. This is where Network City expects 106 000 new homes to be built by 2031.

In April 2007, the Gnangara Sustainability Strategy (GSS) was announced as a cross-government9 initiative to prepare an action plan to address the pressing land, biodiversity and water issues on the mound. It was also announced that Whiteman Park would be expanded to more than 3600 ha in an effort to preserve more native bushland and protect drinking water resources. The GSS action plan is scheduled for release in mid-2009.

9 The Department of Water has joined forces with the Department of Agriculture and Food WA, Department of

Environment and Conservation and Department for Planning and Infrastructure, Forest Products Commission, Water Corporation and CSIRO.


Figure 4 Watertable decline on the Gnangara Mound 1979–2003 (McHugh & Bourke 2008)

Among the issues to be evaluated in the GSS are:

• the potential to increase groundwater recharge by the clearing of pine plantations and changes to the management of native vegetation

• the feasibility of a new horticultural precinct using treated wastewater


• management criteria for sustainable groundwater abstraction that minimises impacts on groundwater-dependent ecosystems

• the feasibility of storage of superficial water pumped in winter-spring into the Leederville aquifer for recovery in summer-autumn

• the viability of the long-standing proposals for new groundwater schemes at Eglington and Yanchep-Two Rocks, Barragoon north of Yanchep National Park.

4.2 Gingin agriculture and water strategy

Statement of planning policy no. 2.5: Agricultural and rural land use planning (WAPC 2002) identifies areas of potential state or regional agricultural significance. Among the SPP 2.5 principles supporting the policy objectives are the following:

• protect agricultural land resources wherever possible by improving resource and investment security for agricultural and allied industry production

• minimise the potential for land-use conflict by introducing management requirements that protect existing agricultural land uses; and identify areas suitable for intensive agricultural pursuits as agricultural priority areas

• carefully manage natural resources by integrating land, catchment and water resource management requirements with land-use planning controls.

Within the Perth-Peel region, the Gingin area appears to offer the greatest potential for expansion as a priority agricultural area10. In the coming years, the value of the area as an agricultural resource will increase as many agricultural areas closer Perth are urbanised.

The State irrigation review (DPC 2005) estimated the total area capable of supporting horticulture or irrigated agriculture (Table 8) and identified significant constraints within the metropolitan area (Table 9). Gingin not only has a large amount of suitable land but also significant undeveloped groundwater resources that could support an expanded horticultural precinct.

Table 8 Land capability for irrigated agriculture within Perth-Peel region

Subregion Capable land area (ha) Current area irrigated (ha) Gingin 615 900 3206 Metropolitan Perth 155 200 5620

Table 9 Constraints on irrigated agriculture in the metropolitan area

Area Crops Constraints Metro north Wanneroo

/Carabooda Vegetable crops, some perennial horticulture

Water availability, environmental impacts

Metro east Hills area Perennial horticulture (fruit) Land-use conflict Metro south Viticulture, vegetables Water availability, land-use

conflict

10 As discussed earlier, the GSS is examining the feasibility of a new horticultural precinct north-east of Wanneroo

using treated wastewater.


For the agricultural potential of the Gingin area to be fully realised, water supply and allocation constraints must be resolved. There appears to be significant unallocated groundwater resources in the vicinity but not in the immediate areas where horticultural production is currently occurring.

The Department of Water and DAFWA are analysing the potential for a horticultural precinct in the Gingin area. An agriculture and water strategy is needed to ensure that water supplies, water quality and ecosystem values are not threatened. The irrigated agriculture sector would need to be a central stakeholder in the process. A business case would also need to be developed and management frameworks determined (e.g. an agricultural cooperative). Other important parties include the DEC (potential expansion of conservation areas), DPI as the land planning agency, affected local governments, and the Water Corporation with respect to water infrastructure.

4.3 Water quality improvement plans

The Peel-Harvey estuarine system and the Swan-Canning estuary are two of Western Australia’s three coastal water quality ‘hotspots’11.

Swan-Canning river system

Through the Australian Government’s Coastal Catchment Initiative (CCI), the Swan River Trust (SRT) is developing a water quality improvement plan to reduce nitrogen and phosphorus inputs to the Swan and Canning rivers.

The SRT’s Healthy Rivers action plan (SRT 2007) is the second phase of the Swan-Canning Cleanup Program. It seeks to maximise the reduction of nutrients and other contaminants entering the rivers by directing funding the improvement of catchments that contribute the greatest amount of nutrients or other contaminants to the rivers. Initial investment will focus on the priority catchments of Ellen Brook, Mills Street Main Drain and Southern River. The goal is to reduce nutrient inputs to priority catchments by 30 per cent by 2015. The SRT recently released the Swan–Canning water quality improvement plan (SRT 2009).

Peel-Harvey estuarine system

Several studies have highlighted threats to the Peel-Harvey estuarine system from land and water practices in the catchment. The Economic development and recreation management plan for the Peel waterways (Everall Consulting Biologist 2002) reported that without corrective action, the waterways could not sustain the increased recreational demands driven by population growth. It also predicted that the environment would continue to decline unless action was taken to improve water quality throughout the catchment and to restore the environment and habitats of the rivers, particularly the Murray and Serpentine.

In 2007, The state of play: Peel-Harvey eastern estuary catchment environmental assessment discussion paper (URS 2007) was published as the first of a three-phase Peel-Harvey eastern estuary catchment environmental assessment co-funded by the Department of Water and the WAPC. The ‘state of play’ paper provides a comprehensive inventory and analysis of environmental values and threats.

While the Dawesville Channel has improved water quality in the Peel Inlet and Harvey Estuary, problems remain in the contributing rivers (i.e. the Harvey, Serpentine and Murray). In 2008, the Environmental Protection Authority (EPA) finalised the Water quality

11 The third ‘hotspot’ is the Geographe Bay and Vasse-Wonnerup estuary.


improvement plan for the rivers and estuary of the Peel-Harvey system – phosphorus management (EPA 2008). For the coastal sections of the Serpentine, Murray and Harvey catchments, the plan recommends a combination of management measures to reduce phosphorus loss (which drains to the estuary).

Measures to reduce phosphorus inputs include best-practice agricultural and urban land activities (e.g. better fertiliser and soil amendment, better management of irrigation systems, water-sensitive design, full connection to sewerage, licensing of agricultural nutrient discharges, research and evaluation of best-management practices).

The large stores of phosphorus in the soils and sediments of the coastal portion of the Peel-Harvey catchment will take years to leach out of the soil. Significant improvements in water quality could take 20–50 years (EPA 2007).

The Peel-Harvey WSUD local planning policy (CCI 2006) provides a planning framework for local government to integrate catchment management objectives – as set out in the Peel-Harvey water quality improvement plan – into local government strategic planning and statutory decision making. The framework is designed to help integrate land and water resource planning in urban landscapes, through the implementation of water sensitive urban design (WSUD) principles and practices.

WSUD principles should be applied when undertaking strategic and statutory planning within the policy area. These principles, in order of priority, are:

• Provide protection to life and property from flooding that would occur in a 100-year average recurrence interval (ARI) flood event.

• Manage rainfall events to minimise the wastage of water as high in the catchment as possible. Use multiple low-cost ‘in-system’ management measures to reduce runoff volumes and peak flows (e.g. maximise infiltration from leaky pipes and stormwater pits installed above pollutant-retentive material).

• Retain and restore existing elements of the natural drainage system, including waterway, wetland and groundwater features, regimes and processes, and integrate these elements into the urban landscape, possibly through a multiple-use corridor.

• Maximise water-use efficiency, reduce potable water demand, and maximise the re-use of water harvested.

• Minimise pollutant inputs through implementation of appropriate non-structural source controls (such as town planning controls, strategic planning controls, pollution prevention procedures, education and participation programs and regulatory controls) and structural controls (that manage the quantity and quality of stormwater runoff and prevent or treat stormwater pollution).

The policy is supported by the Peel-Harvey WSUD technical guidelines (PDC 2006) that provide design details, implementation methodologies and assessment tools.

4.4 Urban water management

Stormwater is water that flows over ground surfaces and in natural streams and drains as a direct result of rainfall over a catchment. Traditionally, urban stormwater systems focused on efficiently collecting and conveying runoff and groundwater from residential, commercial and industrial areas. This was achieved using piped drainage and channels that discharged to receiving water bodies such as wetlands, rivers, estuaries and the marine environment.


Within the Perth metropolitan area there are an estimated 830 km of main drains managed by the Water Corporation, plus 3000 km of local drains managed by local government.

Many of the region’s future urban areas are in locations already impacted by rural drainage systems. Most agricultural drainage systems on the Swan coastal plain were constructed during the first half of the last century. They drained what was once either waterlogged or seasonally or permanently inundated land, allowing these lands to become productive agricultural areas. They have also left a legacy of water quality problems as a result of nutrients, pesticides and erosion.

During the past 10–15 years, there has been a dramatic shift in the planning philosophy underpinning stormwater management. Current best practice12 has a greatly reduced emphasis on ‘end of pipe’ water quality treatment solutions and greater use of ‘preventative’ measures such as: retention of existing natural drainage lines; ‘at-source’ non-structural controls; and small-scale infiltration systems.

Current best practice in urban water management views the urban water cycle as a ‘single system in which all urban water flows are recognised as a potential resource and where the interconnectedness of water supply, groundwater, stormwater, wastewater, flooding, water quality, wetlands, watercourses, estuaries and coastal waters is recognised. Water efficiency, re-use and recycling are integral components of total water cycle management’ (WAPC 2008a p.1).

State planning policy no. 2.9: Water resources (WAPC 2006) requires urban development to consider total water cycle management, WSUD principles and best planning and management practices. The key principles of integrated water cycle management in SPP 2.9 are:

• consideration of all water resources, including wastewater, in water planning

• integration of water- and land-use planning

• the sustainable and equitable use of all water sources, having consideration of the needs of all water users, including the community, industry and the environment

• integration of human water-use and natural water processes

• a whole-of-catchment integration of natural resource use and management.

WSUD techniques can facilitate achievement of urban water management during the planning, design and construction of urban developments. The general objectives of WSUD are outlined below (adapted from the Stormwater management manual for Western Australia, DoW 2004–07):

• To manage a water regime:

− maintain appropriate aquifer levels, recharge and surface-water characteristics in accordance with assigned beneficial uses

− manage groundwater recharge sustainably

− prevent flood damage in developed areas

− prevent excessive erosion of waterways, slopes and banks.

• To maintain and, where possible, enhance water quality:

12 The Stormwater management manual for Western Australia provides guidance on implementing best-practice

urban stormwater management (DoW 2004–07).


− minimise waterborne-sediment loading

− protect riparian vegetation

− minimise the movement of pollutants such as phosphorus and nitrogen to surface water or groundwater

− prevent groundwater acidification processes

− minimise the contamination by sewage and its impact.

• To encourage water conservation:

− minimise the use of scheme water

− promote the sustainable use of rainwater

− promote the sustainable re-use and recycling of wastewater

− reduce irrigation requirements

− promote opportunities for localised supply.

• To maintain and, where possible, enhance water-related environmental values.

• To enhance water-related recreational and cultural values.

Principles of stormwater management as a component of WSUD are outlined below (adapted from the Stormwater management manual for Western Australia, DoW 2004–07):

• protect natural systems – protect and enhance natural water systems and their hydrological regimes in urban developments

• integrate stormwater treatment into the landscape – use stormwater in the landscape by incorporating multi-use corridors that maximise the visual and recreational amenity of developments

• protect water quality – manage drainage from urban development to minimise outputs of phosphorous, nitrogen and other pollutants

• manage runoff and peak flows – reduce peak flows from urban developments by using local detention measures and minimising impervious areas

• add value while minimising development costs – minimise the drainage infrastructure cost of development.

The document Better urban water management (WAPC 2008a) provides guidance on the implementation of State planning policy no. 2.9: Water resources. It provides a framework (Figure 5) for how water resources should be considered at each planning stage – by identifying the various actions and investigations required to support the particular planning decision being made.

The Department of Water has embarked on a five-year program – the Urban Drainage Initiative – to prepare drainage and water management plans to cover the major urban expansion areas across the Perth to Peel and South West regions. These plans support an urban water management framework, based on a catchment management approach, to achieve integrated water cycle management and WSUD.

Recent drainage and water management plans include:

• Draft Swan urban growth corridor drainage and water management plan (DoW 2008)

• Byford townsite drainage and water management plan (DoW 2008b)


• Draft Jandakot structure plan area drainage and water management plan (DoW 2008c)

• North-east corridor urban water management strategy (DoW 2007a)

• Southern River integrated land and water management plan (DoW 2009)

The Department of Water has prepared several documents to support the integration of land and water planning:

• Urban water management plans: Guidelines for preparing plans and for complying with subdivision conditions (DoW 2008d)

• Interim: Developing a local water management strategy (DoW in press)

• Interim: Drainage and water management position statement: Constructed lakes (DoW 2007b)

WSUD approaches to water quality and stormwater management rely to a large degree on the effective application of best-management practices (BMPs). BMPs are practical, structural or non-structural methods that reduce the movement of sediment, nutrients, pesticides and other pollutants from the land to surface-water or groundwater. There is a knowledge gap on how BMPs perform under Western Australian conditions.

A rigorous evaluation program is needed to determine the effectiveness of the various BMPs applied in WSUD under regional conditions. This will require careful evaluation of demonstration projects and well-designed monitoring programs for all projects adopting WSUD measures. This is needed to provide technical information so that the efficacy of specific designs and stormwater and groundwater management strategies can be verified and improved through an adaptive management framework in which research and applied data is shared.


Figure 5 Integrating water planning with land planning processes (WAPC 2008a)

4.5 Southern metropolitan and Peel region growth strategy

Most of the easy-to-develop land in the Perth-Peel region has already been urbanised. Residential development is now pushing into areas that are highly constrained by wetlands, waterlogging and nutrient legacies. A particular area of concern is the urban-rural interface associated with the western boundary of the palusplain13 and the potential impacts on the Peel-Harvey estuarine system.

The water and land planning challenges for future urban areas on palusplain in the Peel region are different from – but as challenging as – those faced on the Gnangara Mound. There are concerns that the pressure to develop new residential areas (e.g. Keralup) and industrial areas (e.g. Nambeelup) will result in urbanisation that does not sufficiently address water resource management issues.

This was highlighted in the recent EPA advice regarding a Department of Housing and Works proposal to establish a large new urban development project at Karnup. The Keralup (formerly Amarillo) project has the potential to ultimately house up to 90 000 people. In its Section 16 advice on the Amarillo master plan, the EPA identified various environmental

13 The term ‘palusplain’ refers to the seasonally waterlogged flat wetlands that are a dominant feature of the area.


constraints, the most significant being the management of water quality and drainage (EPA 2008). The EPA noted that because of site conditions (e.g. historical nutrient loads in the soil, soils with a low capacity to retain nutrients and a waterlogged soil profile), standard development methodologies would not achieve the water quality objectives set out in the draft Peel–Harvey water quality improvement plan. The state government will decide if or how the Keralup project will proceed.

Given the area’s highly water-sensitive environment, water resource management considerations must be a major driver in the process to identify suitable areas for future urban growth. Unless water planning can influence land development decision-making, outcomes are likely to be less-than-optimal.

The DPI has prepared a policy framework to guide the planning, development and implementation of a spatial plan for the southern segments of the Perth metropolitan area and the Peel region in accordance with the principles of Network City. A broad urban growth strategy will inform the development of future structure plans for the area.

The WAPC recognised the need to revisit plans for urban development in the southern metropolitan sectors and Peel region (i.e. local government areas of Kwinana and Rockingham, Serpentine-Jarrahdale, Mandurah and Murray). In 2006, it initiated a review to update the South-west corridor structure plan (Ministry for Planning 1993), the South-east corridor (south of Armadale) structure plan (WAPC 1996) and the Inner Peel region structure plan (Ministry for Planning 1997) through development of a new subregional structure plan.

4.6 Drinking water source protection

The Department of Water is responsible for the protection of water sources used for public drinking water supply. Western Australia has adopted a ‘catchment to consumer’ multiple-barrier approach to the management of drinking water quality as recommended in the Australian drinking water guidelines (NHMRC 2004). A multiple-barrier approach is where water passes through several contained treatment stages which remove micro-organisms and pollution. This system provides multiple back-ups so that water quality will not be affected by failure of one component. Catchment management and water source protection provide the first barrier for the protection of water quality. Protecting the drinking water at the source reduces the amount of treatment needed before the drinking water reaches consumers.

The catchment areas of reservoirs and recharge areas of wellfields used as sources of public drinking water are proclaimed under the Metropolitan Water Supply Sewerage and Drainage Act 1909 (WA) or Country Areas Water Supply Act 1947 (WA) as underground water pollution control areas (UWPCAs), water reserves or catchment areas. These areas are termed public drinking water source areas (PDWSAs). There are 41 PDWSAs in the Perth-Peel region.

Both the State water strategy (DPC 2003) and the State water plan (DPC 2007) identified – as a state priority – the implementation of drinking water source protection plans for all public drinking water supply catchments. Twenty-six of the region’s 41 PDWSAs already have a drinking water source protection plan in place.

The objectives of these plans are to:

• identify existing and potential threats to water quality

• determine how vulnerable a water source is to contamination


• determine preventative risk management strategies and programs for the ongoing management and protection of the source

• raise community understanding and awareness of contamination risks

• guide land-use planning decisions and approvals for compatible use

• recognise other ecosystem, social and public benefit outcomes arising from source protection

• contribute to broader catchment management through knowledge and science, management of land use, monitoring and reporting of catchment activities.

Statewide policy no.13: Policy and guidelines for recreation within public drinking water source areas on Crown Land (WRC 2003) guides decisions regarding recreational access and activities within proclaimed or proposed PDWSAs. Water quality protection note: Land use compatibility in PDWSA (DoE 2004b) provides advice on the acceptability of land uses and activities within PDWSAs.

In 2003, the WAPC embedded the Department of Water’s guidance on land-use compatibility in State planning policy no. 2.7: Public drinking water sources (WAPC 2003b). SPP 2.7 guides state and local government land-use planning decisions in PDWSAs through provisions in local/town planning schemes, including recognition of PDWSAs as special control areas.

In addition to the preparation of drinking water source protection plans, the Department of Water is working with state and local government planners to have proclaimed PDWSAs in the region included as special control areas in the Metropolitan Region Scheme (MRS), local planning schemes and other planning strategy documents.

As the region’s population continues to grow there is likely to be increased pressure from outdoor recreationists to allow greater access to public drinking water source catchments. This is likely to be a key issue during the planned review of Statewide policy no.13.


Shortened forms BMP best-management practice

CCI Coastal Catchment Initiative

CALM former (department of) Conservation and Land Management

CSIRO Commonwealth Scientific and Industrial Research Organisation

CAMBA China Australia Migratory Bird Agreement

DEC Department of Environment and Conservation

DAFWA Department of Agriculture and Food WA

DPUD former Department of Planning and Urban Development

DoE former Department of Environment

DoH Department of Health

DoW Department of Water

DPC Department of Premier and Cabinet

DPI Department for Planning and Infrastructure

EPA Environmental Protection Authority

FPC Forest Products Commission

GAWS Goldfields and Agricultural Scheme

GSS Gnangara Sustainability Strategy

GW groundwater area

ICLEI International Council for Local Environmental Initiatives

ILWMP integrated land and water management plan

IOCI Indian Ocean Climate Initiative

IWSS Integrated Water Supply Scheme

JAMBA Japan Australia Migratory Bird Agreement

KIA Kwinana Industrial Area

KIC Kwinana Industries Council

KWRP Kwinana Water Reclamation Plant

LGA local government area

MAR managed aquifer recharge

MRPA former Metropolitan Region Planning Authority

MRS Metropolitan Region Scheme (MRS)

NACC Northern Agricultural Catchments Council

NRM natural resource management

NWI National Water Initiative

PDWSAs public drinking water source areas


PHCC Peel-Harvey Catchment Council

PDC Peel Development Commission

POS public open space

PPRWP Perth-Peel regional water plan

PWS public water supply

SCC Swan Catchment Council

SDOOL Sepia Depression Ocean Outfall Line

SME small- to medium-size enterprise

SPP State planning policy

SRT Swan River Trust

SWCC South West Catchments Council

UWPCAs underground water pollution control areas

WALGA Western Australian Local Government Association

WAPC Western Australian Planning Commission

WCP water conservation plan

WELS Water Efficiency Labelling and Standards Scheme

WRC Water and Rivers Commission (now Department of Water)

WRMS water resource management strategy

WRRC water resource recovery catchment

WSUD water sensitive urban design

WWF World Wildlife Fund – Australia

WWTP wastewater treatment plant


References Alan Tingay & Associates 1998, Strategic plan for Perth’s greenways, prepared for

Environment Australia, Ministry for Planning, Department of Conservation and Land Management, WA Municipal Association, Department of Environmental Protection, Water and Rivers Commission, Main Roads WA, Swan Catchment Centre, Conservation Council and Australian Trust for Conservation Volunteers, Perth, WA.

CCI – see Coastal Catchment Initiative

Coastal Catchment Initiative 2006, Peel-Harvey WSUD local planning policy: A model local planning policy to assist local government to determine strategic and statutory proposals within the EPP policy area of the Peel-Harvey coastal catchment, Government of Western Australia, Perth, WA.

Curtis, C & Perkins, T 2006, ‘Can Network City deliver a sustainable future?’ International Journal of Environmental, Cultural, Economic and Social Sustainability, 2(3):87-94.

Department of Environment 2004a, A framework for developing the Jandakot water resources management strategy, Government of Western Australia, Perth, WA.

— 2004b, Water quality protection note: Land use compatibility in PDWSA, Government of Western Australia, Perth, WA.

Department of Planning and Urban Development 1990, Metroplan: A planning strategy for the Perth metropolitan region, Government of Western Australia, Perth, WA.

— 1994, Peel regional strategy, Government of Western Australia, Perth, WA.

Department of Premier and Cabinet 2003, Securing our water future: A state water strategy for Western Australia, Government of Western Australia, Perth, WA.

— 2005, Irrigation review: Final report, Independent report prepared by the Irrigation Review Steering Committee, Government of Western Australia, Perth, WA.

— 2007, State water plan, Government of Western Australia, Perth, WA.

Department of Water 2004–07, Stormwater management manual for Western Australia, Government of Western Australia, Perth, WA.

— 2007a, North-east corridor urban water management strategy, Government of Western Australia, Perth, WA.

— 2007b, Interim drainage and water management position statement: Constructed lakes, Government of Western Australia, Perth, WA.

— 2008a, Draft Swan urban growth corridor drainage and water management plan, Government of Western Australia, Perth, WA.

— 2008b, Byford townsite drainage and water management plan draft report, Government of Western Australia, Perth, WA.

— 2008c, Draft Jandakot structure plan area drainage and water management plan, Government of Western Australia, Perth, WA.

— 2008d, Urban water management plans: guidelines for preparing plans and for complying with subdivision conditions, Government of Western Australia, Perth, WA.

— 2009, Southern River integrated land and water management plan, Government of Western Australia, Perth, WA.


— (in press), Urban water management conditions – Guidelines for compliance, Government of Western Australia, Perth, WA.

— (in press), Guidelines for implementation of local water management strategies, Government of Western Australia, Perth, WA.

DoE – see Department of Environment

DoW – see Department of Water

DPC – see Department of the Premier and Cabinet

DPUD – see Department of Planning and Urban Development

Environmental Protection Authority 2004, Environmental management of groundwater abstraction from the Gnangara Mound July 2000 – June 2003 – triennial report, Bulletin 1139, Government of Western Australia, Perth, WA.

— 2005, Environmental guidance for planning and development, Draft guidance statement no. 3, Government of Western Australia, Perth, WA.

— 2007, Draft water quality improvement plan for the rivers and estuary of the Peel-Harvey system, Government of Western Australia, Perth, WA.

— 2008, Keralup (formerly Amarillo) masterplan, Karnup, EPA Bulletin 1281, March 2008, Government of Western Australia, Perth, WA.

EPA – see Environmental Protection Authority

Geografia 2008, Land use vision, City of Wanneroo. Where are we now? Report 1, March 2008.

JDA Consultant Hydrologists 2002, Southern River/Forrestdale/Brookdale/Wungong structure plan: Urban water management strategy, Volume 1 main report, prepared for the Waters and Rivers Commission, Perth, WA.

Kinhill Engineers Pty Ltd 1988, Peel Inlet and Harvey Estuary management strategy. environment review and management programme – Stage 2, Perth, WA.

Lund, MA & Martin, HC 1996, Historical association of wetlands and rivers in the Perth-Bunbury region, Water resource technical series, Water and Rivers Commission report WRT3, Perth, Western Australia.

McHugh, SL & Bourke, SA 2008, Management area review of shallow groundwater systems on Gnangara and Jandakot mounds, prepared for Department of Water, Perth, WA.

Metropolitan Region Planning Authority 1970, The corridor plan for Perth, Government of Western Australia, Perth, WA.

MRPA – see Metropolitan Region Planning Authority

Ministry for Planning 1993, South-west corridor structure plan, Government of Western Australia, Perth, WA.

Ministry for Planning 1994, North-east corridor structure plan, Government of Western Australia, Perth, WA.

Ministry for Planning 1997, The Inner Peel region structure plan, Government of Western Australia, Perth, WA.

National Health and Medical Research Council 2004, Australian drinking water guidelines, NHMRC, Canberra, ACT.

NHMRC – see National Health and Medical Research Council


PDC – see Peel Development Commission

Peel Development Commission 2006, Peel-Harvey coastal catchment WSUD technical guidelines, Peel Development Commission, Mandurah, WA.

Seddon, G 1971, Sense of place: A response to an environment, the Swan coastal plain, Western Australia, UWA Press, Nedlands, WA,

Stephenson, G & Hepburn, A 1955, A plan for the metropolitan region, Perth and Fremantle, Western Australia.

Stokes et al. 1995, A water supply strategy for Perth to Mandurah to 2021, Publication no. WP214, Water Authority of Western Australia.

SRT – see Swan River Trust

Swan River Trust 2007, Draft Healthy Rivers action plan, Swan River Trust and Government of Western Australia, Perth, WA.

Taylor Burrell Barnett 2005, The Byford structure plan, prepared for the Shire of Serpentine-Jarrahdale.

URS 2007, The state of play: Peel-Harvey eastern estuary catchment environmental assessment discussion paper, prepared for the Department of Water, Perth, WA.

Water and Rivers Commission 2003, Statewide policy no.13: Policy and guidelines for recreation within public drinking water source areas on Crown Land, Government of Western Australia, Perth, WA.

WRC – see Water and Rivers Commission

Weller, R 2007, Boomtown 2050: Alternative urban futures for a rapidly growing city, UWA Press, Nedlands, WA.

WAPC – see Western Australian Planning Commission

Western Australian Planning Commission 1995, Metropolitan rural policy, Perth, Western Australia, Government of Western Australia, Perth, WA.

— 1995, Urban bushland strategy, Government of Western Australia, Perth, WA.

— 1996, South-east corridor (south of Armadale) structure plan, Government of Western Australia, Perth, WA.

— 1997, State planning strategy, Government of Western Australia, Perth, WA.

— 1998, The Jandakot land use and water management strategy (JLUWMS), Government of Western Australia, Perth, WA.

— 2000a, Liveable neighbourhoods: A Western Australian government sustainable cities initiative, Edition 2, Government of Western Australia, Perth, WA.

— 2000b, Bush Forever, Government of Western Australia, Perth, WA.

— 2001a, District structure plan for the Southern River/Forrestdale/Brookdale/Wungong areas, Government of Western Australia, Perth, WA.

— 2001b, Gnangara land use and water management strategy (GLUWMS), Government of Western Australia, Perth, WA.

— 2002, North Eastern Hills settlement pattern plan, Government of Western Australia, Perth, WA.


— 2003a, Greater Perth planning context – survey results, Government of Western Australia, Perth, WA.

— 2003b, Planning bulletin no. 64: Acid sulfate soils, November 2003, Government of Western Australia, Perth, WA.

— 2003c, Planning bulletin no 61: Urban stormwater management, Government of Western Australia, Perth, WA.

— 2003d, NE corridor extension strategy, Government of Western Australia, Perth, WA.

— 2003e, Peel region scheme, Government of Western Australia, Perth, WA.

— 2003f, Middle Helena catchment area land use and water management strategy, Government of Western Australia, Perth, WA.

— 2006, Gingin coast structure plan, Government of Western Australia, Perth, WA.

— 2007a, The future of east Wanneroo: Land use and water management in the context of Network City, Government of Western Australia, Perth, WA.

— 2007b, Jandakot structure plan, Government of Western Australia, Perth, WA.

— 2008a, Better urban water management, Government of Western Australia, Perth, WA.

— 2008b, Planning bulletin no. 92: Urban water management, Government of Western Australia, Perth, WA.

Western Australian Planning Commission & DPI 2004, Network City: Community planning strategy for Perth and Peel, Government of Western Australia, Perth, WA.

Yiftachel, O & Hedgcock, D 1992, ‘Theoretical perspectives on Perth’s changing urban form’. In Hedgcock, D & Yiftachel, O (Ed), Urban and regional planning in Western Australia, pp 149-161, Paradigm Press, Perth, WA.

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