decentralised systems daviscfsites1.uts.edu.au/find/isf/publications/mitchell... · • storage...
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DECENTRALISED WATERSYSTEMS – Creating conducive
institutional arrangements
Cynthia Mitchell, Monique Retamal, SimonFane, Juliet Willetts & Chris Davis
Institute for Sustainable Futures, University ofTechnology, Sydney
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Decentralised water systems makeeconomic & environmental sense
Slowly being taken up across Australia
Points in favour of decentralisationDrivers and enablersComparing and contrasting Australia & USRecommendations - steps Australia might
take
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Definitions
on-site: treatment technologies and/ormanagement on an individual lot
decentralised: treatment technologiesand/or management systems at the scaleof multiple buildings
distributed: treatment &/or managementsystems in multiple locations across acommunity, either decentralised or on-site
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Advantages of decentralised systemseconomic & environmental
Allow smaller sewersStaged developmentLower LCA outcomeLocal reuseCommunity engagementSmaller consequences of failure
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CaveatsSome cautionary points
Lose economies of scale in treatmentIf management not tops – risk of failure
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US ExperienceUSEPA Study - why take-up in USA is slowEtnier et al. 2007financial reward for centralised systemslack of knowledgeunfavorable regulatory systemslack of systems thinking
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US Experience cont’d
USEPA encourages decentralised systems60m people served by distributed systemsTypology developed –RMEs = responsible management entitiesLevels 1 to 3 – on-site systemsLevels 4 & 5 – distributed and
decentralised systems
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US experience cont’d
Level 4 RMEs responsible for O&M -Property owners own treatment system
Level 5 RMEs own treatment systems &do O&M
Level 5 RMEs – mostly new developments– developer builds, then hands over toRME (Yeager et al.)
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US experience cont’dSingle L4 or L5 RME – 100s to x10k connectionsSome work in 1 jurisdiction - others in multiple
statesVariety: public/private business models &
institutional arrangementsArrangements contextual - local regulations and
implementation - differ state to state &sometimes county to county
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Types of RME in US(Yeager et al. 2006)
private companies (profit & not-for-profit)not-for-profit rural electric cooperatives
moved into wastewater business‘special purpose districts’ - sewage
services, often with otherspublic authorities e.g. county, municipality
agencies & governments
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Private RME examples
Business models for local regulatorycontext
Adenus group - one of largestAround 30,000 households in 3 statesPrivately-owned, for-profit, publicly
regulated utility
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The Waters
Location – Montgomery, ALArea – 1,250 acresUnits – 2,500 residential unitsProduct Type - Traditional Neighborhood Communitysurrounding a 200 acre community lake.Master Plan – 8 distinct Hamlets (i.e. stand-alonecommunities), including approximately 350 residentialunits and commercial uses eachTopography – Gently rollingSoil – Prairie gumbo clay
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Collection System – site topography allows forindividual STEG versus STEP systemsTreatment - Recirculating Sand/Gravel Filter; built inphasesDisposal:
• Drip Irrigation – built in phases• Storage Pond – reduce drip irrigation installationcosts and land application area.
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Public RMEs
Advantages - greater legal powers torespond to unpaid bills, e.g. turn water off,and to gain access, easements etc. formaintenance.
Leading example - Loudoun CountySanitation Authority (LCSA)
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LCSALoudoun County - suburb of Washington DCLCSA - w & ww service to unincorporated parts
of county~ 53k connections (Danielson 2008)Historically - urbanised areas & centralised
systemsPolicy - rural areas only have on-site or cluster
systems
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Loudon County Sanitation District
The Broad Run WaterReclamation Facility
Recently - clustersystems: ownership &contract operationsDecentralised ww facilities- schools, parks, recreationfacilities & townsSystem violations down tonear zeroLCSA’s benefits -economies of scale of largecustomer base
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US issuesFor income certainty - RME needs ongoing
contractual arrangement - often linked toproperty
Key feature in USA - RME L4 & L5 – little or nocompetition for service provision
Prices set by public utility commission - onus onRME to demonstrate costs of service & argue
Commissions set rates for publicly owned, for-profit utilities, not for government, quasi-government & non-profit businesses
Indications - lack of effective pricing systems ismajor barrier to successful outcomes in USA.
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Comparing USA & Australianpractice
• Australian situation different to USA• Decentralised systems not as common• Push factors - ‘how’, rather than ‘whether’• Pull factors - aspirational• Identify:
– enablers– business models– lessons for Australia
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Drivers (push factors)Initially - hard-to-service pockets in larger
communitiesDecentralised approach enabled business
to extend services, esp. sewerageNow - trend to medium density - putting
services under strain - key driver for futuredecentralised systems
Another key driver - aging infrastructureand overloaded main sewers
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ExamplesWhites Road – Brisbane - example of hard-to-
service areaCommercial imperatives for developersAurora (8,000 lots) Melbourne - lack of trunk
sewersVicUrban committed to sustainable land releaseResult for water system - strong efficiency &
development scale residential recyclingOwned & operated - Yarra Valley Water
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More examples
Payne Road (22 lots) Brisbane - lack of sewer capacity Body corporate - ongoing management of decentralised
technologies - rain tanks, fire fighting system, greywatertreatment & subsurface irrigation
Take-up of house & land packages slower than hoped - may bepremature to judge success of model
Noosa North Shore Eco Resort - development employsdecentralised features (rainwater tanks and MBR torecycle effluent) Noosa Council declined to extend centralised services across
river
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Noosa North Shore Eco Resort 250 private residences On-site wastewater treatmentand recycling system by EcoNova- $1.47m Commissioned Dec 2005 Aerobic MBR - high-quality A+(EPA Qld)All wastewater (black- andgreywater combined)Up to 240 kL/dReclaimed water – toiletflushing, laundry, garden watering,& car washing
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Drivers (pull factors)
Strong pull factor - passionate commitment ofproponents
Sydney Olympic Park - strong green credentials- overcame many hurdles to set up WRAMS
Currumbin Ecovillage (Queensland) -championed by committed individual
Green building rating systems (Green StarRating) systemProfile value of high rating recognised by developers
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Currumbin Ecovillagehttp://www.envirodevelopment.com.au
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Enablers
Existing practices and systems can underminechange - enablers needed to overcome
Supportive institutional climate - strong enablingfactor
Planning permissionRegulatory authorisation as water businessAll other bureaucratic approvals can be enablers
if +veAll but insurmountable barriers if -ve
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Enablers cont’d
Authoritative guidelines legitimise decentralisedsystems
Sydney Water (2006) - new sewer miningguidelines
NSW Government (DWE 2007) - interimguidelines - recycled water schemes
Guidelines - framework to manage human health& environmental risk
Internationally – WHO (2005) guidelines for thereuse & recycling of human faecal matter
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NSW Water Industry CompetitionAct 2006 No 104
Most significant! Express purpose - to promote economically efficient use
& operation of, & investment in, significant water industryinfrastructure, promoting effective competition inupstream or downstream markets
Major step - opened door to decentralised systems The WICA 2006 - three key measures:
Licensing regime for private sector participants Access regime for storage & transport of water & sewage using
existing significant water & sewerage networks Binding arbitration of sewer mining disputes
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Costing methods
Objective costing methods neededFind least cost solutionOrganisational $ perspectives + whole-of-
community basisGuidebook by Mitchell et al. (2007)Principles from economics, systems, and risk
management - meaningful comparison oftechnologies across primary divides of:supply & demanddecentralised & centralised infrastructure
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Business modelsNarrower range than USAGenerally, decentralised systems by
developer or utilitySome departments of state, territory or local
gov’tsOthers, especially larger ones - corporations,
with government shareholders, payingdividends
Many Australian decentralised ww systemsinitiated as JVs between governments &developers
Ownership, O&M often by water utility
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Mawson Lakes
JV Delfin & SA Gov’t
Water infrastructureowned & operatedby SA Water
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Some examples Aurora Melbourne →
VicUrban water infrastructure managed by Yarra Valley Water
Pimpama Coomera WaterFuture Masterplan (Qld) developed by
Gold Coast City Council Run by Gold Coast Water
Sydney Olympic Park - stormwaterand wastewater reclamationsystem owned by SOPA SOPA ia water supply authority 25-year agreement with company for
O&M of treatment plants
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Evolution
Could change with WICA - allows privatelyowned RMEs to become major players
Alternatives already emerging - CurrumbinEcovillage: water infrastructure owned bybody corporate but O&M by contractors
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Lessons for Australia To get benefit of decentralised systems - appropriate
institutional arrangements needed Where linked to centralised networks, even if only for
emergency: access, pricing & ‘service provider of lastresort’ arrangements needed
Must ensure ‘host’ utility can recover costs incurred bylink to decentralised system
Pricing for access regime must enable viability ofdecentralised operator
Transparent accounting for both costs incurred & costavoided needed (including augmentations)
Centralised management of distributed systems - crucial
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More lessonsEnablers for decentralised systems: good
protocols for planning and approval, plusframeworks that encourage business modelvariety
Decentralised systems - more flexible businessmodels than postage stamp pricing
NSW WICA - potential for variety of viablebusiness models for decentralised wastewater,but issues still
Given complexity of challenges - additionalresearch and analysis will be critical
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CONCLUSIONSWe need:1. enabling legislation & government policies –
e.g. NSW Water Industry Competition Act 20062. wider range of business models; flexible &
adaptable, enabling effective market, includingprivate RMEs & publicly owned businesses
3. pricing, operating & supervision arrangementswhich ensure stability of whole system;including centralised & distributed systems
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Thank you