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Emergency
Committee
07 May 2020
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Auckland
response to the 2019/2020 drought
File No.: CP2020/05210
Te take mō te
pūrongo
Purpose of the report
1. To
consider measures in response to the 2019/2020 drought.
Whakarāpopototanga matua
Executive summary
This report
would normally go before the Regulatory Committee or Governing Body, however,
in light of COVID-19, it must now be considered by the Emergency Committee.
2. Auckland’s
water supply situation is growing increasingly serious. As at 6 May 2020, total
water storage was approximately 46 per cent of capacity. Since the start of
2020, Auckland has received less than half of the usual rainfall.
3. Watercare’s
planned response to drought events is described in its Auckland Metropolitan
Drought Management Plan (revised in February 2020),
which includes measures to reduce demand and increase supply.
4. It defines three drought response ‘trigger’ levels at
which there is a need to act to reduce water consumption (which includes
voluntary savings and mandatory water restrictions) and increase supply. These
trigger levels vary throughout the year.
5. The
trigger for Stage 1 was met in early April. Watercare is already taking all the actions under Stage 1 of the plan except
mandatory water use restrictions.
6. We
recommend that the committee impose mandatory Stage 1 water restrictions to
take effect from 16 May 2020, with a move to Stage 2 water use restrictions if
the trigger levels in the Metropolitan Drought Management Plan are met. If
there was a need to move to Stage 3 water use restrictions, we would seek a
separate decision from this committee based on further advice.
7. Restrictions
would be lifted once the water storage lakes have replenished sufficiently.
8. None of the three stages impose restrictions on water for drinking
or sanitary use of water in the household, or uses for health,
safety, emergency or biosecurity reasons.
9. The proposed water use restrictions come as business is beginning to
restart following the COVID-19 lockdown, which could impose further operating
limits. The costs of the water use restrictions have not been quantified.
However, Watercare is working with these industries to optimise their water use
and mitigate the impacts of the proposed water use restrictions. This includes
investigating non-potable water sources
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Ngā tūtohunga
Recommendation/s
That the Emergency Committee:
a) note that the ability for
Watercare Services Limited (Watercare) to maintain an adequate supply of
drinking water to the Auckland metropolitan system is at risk due to the
2019/2020 drought
b) approve
restrictions on the use of water supplied to customers connected to
Watercare’s metropolitan system under clause 12(1) of the Water Supply
and Wastewater Network Bylaw 2015, in accordance with Watercare’s
Auckland Metropolitan Drought Management Plan, as outlined in clauses c) and
d) below
c) approve
the following mandatory Stage 1 water use restrictions, to come into force on
16 May 2020:
i) Residential
A) no use
of an outdoor hose or water blaster
ii) Commercial
and non-residential
A) no use
an outdoor hose or water blaster unless it is for a health, safety, emergency
or biosecurity reason
B) no
operation of a carwash unless it uses recycled water
C) no watering
of sports fields, plants or paddocks unless an irrigation system is fitted
with soil moisture or rain sensors
d) approve
the following Stage 2 water use restrictions, to come into force once the
trigger levels in Figure 1 of the Auckland Metropolitan Drought Management
Plan are reached:
i) Residential
A) no use
of an outdoor hose or water blaster
ii) Commercial
and non-residential
A) no use
of an outdoor hose or water blaster unless it is for a health, safety,
emergency or biosecurity reason
B) no
operation of a carwash unless it uses recycled water
C) no watering
of sports fields
D) no watering
of plants or paddocks unless an irrigation system is fitted with soil
moisture or rain sensors.
e) delegate
to Watercare the enforcement of water use restrictions under clause 12(4) of
the Water Supply and Wastewater Network Bylaw 2015, in accordance with its
Auckland Metropolitan Drought Management Plan
f) delegate
to Watercare the responsibility to publish the necessary public notices under
clause 12(3) of the Water Supply and Wastewater Network Bylaw 2015 prior to
the stage 1 or stage 2 restrictions coming into force;
g) agree
that the water use restrictions and delegations in clauses b) to f) will apply
until Auckland Council is satisfied, based on advice from Watercare, that
there is no longer a risk to the adequate supply of drinking water to
Auckland metropolitan customers
h) request Watercare to continue to provide regular updates to
Auckland Council on the implementation of water use restrictions and its
ability to maintain an adequate supply of drinking water.
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Horopaki
Context
10. In
February 2020 the Minister of Agriculture declared an agricultural drought
north of the Auckland Harbour Bridge and in March 2020 extended that to the
rest of Auckland. Large parts of the rest of the North Island are also
experiencing both agricultural and hydrological droughts[1].
11. As a result of the drought, Auckland’s water supply situation
is growing increasingly serious. As at 6 May 2020, total water storage was
approximately 46 per cent of capacity. This is lower
than this time last year (when storage was at approximately 65 per cent of
capacity) as well as the average for this time of year (when storage is usually
at approximately 76 per cent of capacity). Since the start of 2020, Auckland
has received less than half of the usual rainfall.
12. Watercare Services Limited (Watercare) has taken measures to
increase the supply of drinking water as well as to manage demand. Attachment A
contains a more thorough description of the steps to manage the 2019/2020
drought, including increasing supply and reducing demand.
13. Watercare has been running a public campaign since early February,
“Water is precious”, urging Aucklanders to
make voluntary water savings. This has resulted in a reduction in demand, even
though Aucklanders have been spending more time at home during the COVID-19 lockdown.
Water use has begun to increase since the end of COVID-19 Alert Level 4.
14. Despite
actions to increase water supply and reduce demand, the current volume of water
use, and the absence of sufficient rain over the next four weeks, means that
Watercare considers mandatory water restrictions to be necessary. Water
restrictions have not been imposed in Auckland since the drought of
1993/1994.
Auckland Metropolitan Drought Management Plan
15. Watercare’s
planned response to drought events is set out in its Auckland Metropolitan
Drought Management Plan (the plan) (Attachment B to this report).
16. It
defines broad drought response ‘trigger’ levels at which there is a
need to act to reduce water consumption and increase supply. Reducing demand
for water can include both voluntary savings and mandatory water use
restrictions.
17. There
are three trigger levels for the Auckland metropolitan supply dams which vary
throughout the year depending on the season. They are based on technical
assumptions, including increased dry weather demand and historical reliability
of sources. These correspond to three stages where increasing measures are
taken to reduce demand and increase supply. The trigger levels are defined in
Figure 1.
Figure 1 – Drought trigger levels
18. Although the trigger level for Stage 1 was met in early April, Watercare has not asked the council to impose the mandatory water
use restrictions under Stage 1 yet. This is because of COVID-19 and the
difficulty of enforcing any mandatory restrictions during the lockdown.
Instead, it has been asking Aucklanders to voluntarily reduce water use.
19. However,
Watercare is already taking all other actions under Stage 1 of the plan
including emphasising messages about water conservation, investigating bringing
available bores into service and planning for emergency water sources.
20. Consistent
with Government COVID-19 guidelines, the public message has emphasised the need
to continue to wash your hands frequently.
Water restrictions
21. Mandatory water use restrictions are one tool in Watercare’s
Drought Management Plan. The plan also includes
maximising the water supply, and proactive work with industry and large
customers (including the council, which is one of Watercare’s largest
customers).
22. Mandatory water use restrictions only cover outdoor water use
because it can be observed and if necessary, enforced.
23. Table
1 lists the proposed mandatory water use restrictions at Stages 1, 2 and 3.
24. None of the three stages impose mandatory restrictions on water for
drinking or sanitary use of water in the household, or operations
that use water for health, safety, emergency and biosecurity measures.
Watercare has been encouraging users to make voluntary savings in these areas.
25. Watercare
has recommended a narrower set of restrictions to simplify the public message
at a time when communities and businesses are already dealing with many limits
on what they can do because of COVID-19.
Table 1 - Proposed mandatory water use restrictions for the
2019/2020 drought
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Stage
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Proposed
residential water use restrictions
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Proposed commercial and
non-residential water use restrictions
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Stage 1
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No use of an outdoor
hose or water blaster.
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No use of an outdoor
hose or water blaster unless it is for a health, safety, emergency or
biosecurity reason.
No operation of a
carwash unless it uses recycled water.
No watering of sports
fields, plants or paddocks unless an irrigation system is fitted with soil
moisture or rain sensors.
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Stage 2
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No use of an outdoor
hose or water blaster.
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No use of an outdoor
hose or water blaster unless it is for a health, safety, emergency or
biosecurity reason.
No operation of a
carwash unless it uses recycled water.
No watering of sports
fields.
No watering of plants
or paddocks unless an irrigation system is fitted with soil moisture or rain
sensors.
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Stage 3
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No use of an outdoor
hose or water blaster.
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No use of an outdoor
hose or water blaster unless it is for a health, safety, emergency or
biosecurity reason.
No operation of a
carwash unless it uses recycled water.
No watering of sports
fields.
No watering of plants
or paddocks.
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Depending on the size of the savings that are needed, Stage 3
water restrictions could also include rotating compulsory cuts to commercial
water use. The impacts and feasibility of this are being further assessed. A
move to Stage 3 water use restrictions would require a separate decision from
this committee.
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26. For the mandatory water use restrictions, the only difference
between Stages 1 and 2 is that in Stage 2, sports fields cannot be watered
whereas in Stage 1, sports fields can be watered if fitted with rain sensors.
The more significant interventions in Stage 2 would be from voluntary
efficiency savings from industry and large customers and increases in supply,
for example from maximising water take from the Waikato River and
Onehunga Aquifer.
27. Different
industries are affected by mandatory water use restrictions in different ways.
At Stages 1 and 2, some industries would be directly affected because of their
outdoor water use (e.g. window washers). Watercare is working with all
industries that would be affected to help them to optimise their water use and
minimise the impact from use restrictions. Watercare and Healthy Waters are
also investigating non-potable water sources that may be used by those
industries.
28. A
larger number of industries would be more severely affected by Stage 3 water
use restrictions. For example, under Stage 3, there is no watering of plants or
paddocks, and cuts could be imposed on large industrial and commercial
customers where they are prohibited from using water at least one day per week.
This would impact a number of industries including agriculture, horticulture
and manufacturing.
29. The
water use restrictions would apply to all customers of Watercare’s
metropolitan network, which includes users in Pukekohe, Patumahoe, Clarks
Beach, Glenbrook Beach, and all other metropolitan areas from Waiwera to Drury
and Huia Village. The map in Attachment C shows the area covered by the
metropolitan network. Water use restrictions
would not apply to customers who are on bore
water.
How are mandatory water restrictions implemented?
30. The
use of water and wastewater is governed by Auckland Council’s Water
Supply and Wastewater Network Bylaw 2015. Clause 12 of the bylaw relates to
mandatory restrictions on water use:
12 Restriction
on water use
(1) Where the council considers that its
ability to maintain an adequate supply of drinking water is or may be at risk
because of drought, emergency or for any other reason, it may restrict the use
of water supplied to any premises.
(2) Any such restriction may apply to all
of Auckland or one or more parts of Auckland.
(3) The council will give such public
notice as is reasonable in the circumstances of any restriction on water use
under subclause (1).
(4) No person may use water contrary to a
restriction made under this clause.
31. Although
Watercare is the drinking water supplier in Auckland and manages the water
storage lakes, the bylaw requires the council to make a decision to impose
mandatory water restrictions. It cannot delegate this duty to Watercare. It
would normally be the responsibility of the Governing Body or the Regulatory
Committee, but it is currently delegated to the Emergency Committee.
32. Watercare
is responsible for all other measures in its Drought Management Plan.
33. The
background to the bylaw powers is the Health Act 1956, which stipulates that
the council must not restrict the use of water for ‘essential’
purposes. It is also implicit that restrictions should be proportionate to the
risk, are reasonable, and fair e.g. between different categories of users.
Tātaritanga me ngā
tohutohu
Analysis and advice
34. There
are options in relation to imposing water restrictions. These are described and
evaluated in Table 1.
Table 2 – Options to impose water
use restrictions for Watercare’s metropolitan network
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Option
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Advantages
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Disadvantages
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Option A: status quo – continue to rely on voluntary water
use reduction from Aucklanders and monitor the situation.
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No compliance
or enforcement action is required.
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There is a very
high risk that this option would not yield the required savings, given the
current long-range weather forecast and the use to date. This could result in
a more severe supply shortage and the need for much more severe restrictions
if sufficient rain does not fall to replenish the water storage lakes.
This option is not
recommended.
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Option B: impose a Stage 1 water restriction from 16 May 2020
and make a decision to move to more severe restrictions (Stage 2 and 3) as
and when required based on further advice from Watercare.
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This would have
a higher likelihood of achieving the required savings than Option A.
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This may result
in a slower implementation of more stringent restrictions if they are
required. It could also result in confusion on the part of the public.
Communities and
businesses having to deal with another level of restriction on their activity
during the COVID-19 pandemic.
This option is not
recommended.
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Option C: impose water restrictions, with Stage 1 water use
restrictions taking effect from 16 May 2020, with a move to Stage 2 water use
restrictions if the
trigger levels in the Metropolitan Drought Management Plan are met (refer to
Figure 1).
Water use
restrictions would be lifted once the water storage lakes have replenished
sufficiently.
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This option
would have a higher likelihood of achieving the required savings than Option
A.
This would
allow Stage 2 water use restrictions to be implemented more quickly, if
required (as soon as the trigger level is met). This gives more clarity and
certainty to the public and other stakeholders about when further
restrictions are likely.
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Communities and
businesses having to deal with another level of restriction on their activity
during the COVID-19 pandemic.
This option is recommended.
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35. If
there was a need to move to Stage 3 water use restrictions, we would seek a
separate decision from this committee based on further advice.
Discussion of impacts
36. The
proposed water use restrictions come as industry is beginning to restart
following the COVID-19 lockdown, and they could impose further operating
limits. The Stage 1 and 2 water use restrictions are likely to particularly
affect outdoor water users such as building washing and construction, outdoor
vehicle washers or cleaners without water recycling or anyone undertaking
washing for non-essential purposes. At level 2 the impacts will extend to parks
and sports fields. Watercare is working with Healthy Waters to investigate
access to alternative non-potable water sources for some industry sectors.
37. In
the time available, we have not been able to quantify the costs and impacts of
the different stages of the proposed water use restrictions in a detailed way.
This is the first time that water use restrictions would have been imposed since
1994 and the economy is very different to then.
38. However,
the costs of the status quo (not imposing water use restrictions) would be
significant as the levels in the water storage lakes are likely to continue to
drop. This would require greater restrictions which would mean more significant
impacts across a larger number of industries. There is a clear driver to impose
restrictions now to mitigate the risk of needing to impose Stage 3 water
restrictions later on.
Recommended option
39. We
recommend that the committee approves option C. It provides more clarity and
certainty for the public about what will happen if the initial Stage 1 water
restrictions do not achieve enough savings and sufficient rain does not arrive
to replenish Auckland’s water storage lakes.
40. Under
option C, restrictions would remain in place until Auckland’s water
storage lakes reach levels where Watercare and the council can be confident
there is no longer any risk to an adequate supply of drinking water in the
metropolitan system. This is very dependent on the weather conditions through
the winter and into next summer.
Compliance and enforcement
41. Once
the council has imposed a water use restriction, it is possible to delegate to
Watercare the enforcement of restrictions. If the council delegates enforcement
to Watercare, Auckland Council officers would still be able to exercise
those powers as well (e.g. if they observed non-compliance with water use
restrictions while responding to a separate complaint).
42. Therefore,
we recommend that the committee delegates enforcement of the bylaw to
Watercare. Compliance and enforcement under the bylaw will be led by Watercare,
with support from the council’s Regulatory Compliance team.
43. Watercare
will adopt the council’s graduated approach to enforcement, which
involves educating water users, and graduates to prosecution if there is
significant or repeated non-compliance.
Tauākī whakaaweawe
āhuarangi
Climate impact statement
44. The
decision to impose water use restrictions does not have a climate impact.
However, the drought is associated with the effects of the changing climate and
the very low levels of rainfall over the last six months.
45. More
frequent droughts (not necessarily of this severity or duration), as well as
more extreme rainfall, are expected in the future. These parameters
continue to be factored into long term planning, including Auckland’s
Climate Action Framework.
Ngā whakaaweawe me
ngā tirohanga a te rōpū Kaunihera
Council group impacts and views
46. We
have worked with Watercare staff to prepare this advice.
Ngā whakaaweawe
ā-rohe me ngā tirohanga a te poari ā-rohe
Local impacts and local board views
47. Local
boards have not been consulted on this decision as the decision is for the
Emergency Committee to make. However, Watercare has been providing frequent
updates to local board members (as well as elected members of this committee)
about the water supply situation and the need to continue efforts to conserve
water.
48. There
have been enquiries from Rodney members about whether restrictions will apply
to their constituents. If the committee agrees to the recommendations, Rodney
residents and business in the rural area, who are not connected to the
metropolitan network, will not be subject to restrictions.
However, Rodney residents and businesses connected to the Watercare
metropolitan network will be subject to restrictions.
49. Franklin
Local Board has also asked for updates on Hays Creek dam and the Pukekohe
groundwater take.
50. Kaitiaki
Forum has been kept up to date with the water supply situation. There are no
specific impacts on Māori
above the general impacts of water use restrictions on all Aucklanders. If
marae or dwellings on Māori
land are connected to the metropolitan water supply, they will be subject to
the Stage 1 restrictions.
51. Watercare
is engaging with iwi in Waikato in relation to the applications for an
increased take from the Waikato River.
Tauākī whakaaweawe
Māori
Māori impact statement
52. Watercare
will experience a minor reduction in revenue from reduced water consumption.
This is likely to be similar to the increased revenue from high water use
during the summer.
53. If
the drought continues and Stage 2 and 3 restrictions become necessary, there
may be financial impacts on the council e.g. the council’s parks may be
restricted from watering their grounds, which may result in the need for these
grounds to be re-turfed.
Ngā ritenga
ā-pūtea
Financial implications
54. Watercare
will experience a minor reduction in revenue from reduced water consumption.
This is likely to be similar to the increased revenue from high water use
during the summer.
55. If
the drought continues and Stage 2 and 3 restrictions become necessary, there
may be financial impacts on the council e.g. the council’s parks may be
restricted from watering their grounds, which may result in the need for these
grounds to be re-turfed.
Ngā raru tūpono me
ngā whakamaurutanga
Risks and mitigations
56. There
is a risk that Stage 1 restrictions will affect the operation of some
businesses, which could compound the economic impacts of COVID-19.
57. This
can be mitigated by Watercare working with those industries to minimise the
impact of water use restrictions, including investigating non-potable water
sources. It would also be important to continue to encourage voluntary savings
above the mandatory water use restrictions.
58. There
is a risk that there could be confusion about where water use restrictions would
apply, as those on bore water are not affected by water use restrictions. This
can be mitigated by targeting specific communications to those communities.
Ngā koringa ā-muri
Next steps
59. The
bylaw requires the council to give the public reasonable notice when it imposes
water use restrictions
60. If
the committee agrees to the resolutions, Watercare will immediately begin
placing public notices in newspapers and online.
61. There will also be wider public communications about water use restrictions,
and what this means for communities and businesses.
Ngā tāpirihanga
Attachments
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No.
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Title
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Page
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a⇩
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Implementing Auckland Water Restrictions
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15
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b⇩
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Auckland Metropolitan Drought Management Plan
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25
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c⇩
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Map of Watercare's Metropolitan Water Supply Network
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51
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Ngā kaihaina
Signatories
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Author
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Sarah Holdem - Principal Advisor
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Authorisers
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Alastair Cameron - Manager - CCO Governance &
External Partnerships
Megan Tyler - Chief of Strategy
Phil Wilson - Governance Director
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