STRATEGIC DIRECTION G Tackling climaTe change & …apo.org.au/system/files/93911/apo-nid93911-262191.pdfSTRATEGIC DIRECTION G Tackling climaTe change & ProTecTing Sydney’S naTural

STRATEGIC DIRECTION GTackling climaTe change

& ProTecTing Sydney’S naTural environmenT

METROpOlITAN plAN fOR SyDNEy 2036 | Page 169

Sydney has one of the most beautiful natural environments in the world with a unique tapestry of national parks, geological features, harbour, beaches, bushland and plant and animal diversity.

Almost half of Sydney comprises protected national parks, regional and local open space, aquatic reserves, water catchments and wetlands. Collectively, these natural areas—which include the Greater Blue Mountains World Heritage Area—are the region’s greatest assets.

Protecting and enhancing the natural environment for current and future generations was a priority of the 2005 Metropolitan Strategy: A City of Cities and remains a focus of this Metropolitan Plan.

City of Cities also put Sydney on the path to tackling climate change. It moved Sydney towards a more compact, multi–centred city with jobs closer to home and homes closer to transport—the optimal urban form for minimising a city’s greenhouse gas emissions. It also committed the NSW Government to reducing household emissions through the Building Sustainability Index (BASIX).

However, new challenges and opportunities have emerged, demanding renewed and expanded efforts. There is increasing evidence Australia’s climate is changing (Bureau of Meteorology & CSIRO 2010) and further change is unavoidable.

To tackle climate change, cities need to make deep cuts to greenhouse gas emissions (climate change mitigation) and develop ways to minimise the harmful effects of a changing climate (climate change adaptation). Ultimately, the extent of climate change and our capacity to adapt will be determined by global efforts; however there is much Sydney can do to reduce its emissions and adapt to the inevitable changes in our climate.

Climate change policy requires careful thinking about the timing of initiatives. Some aspects, such as reducing emissions, require immediate and strong action. Other responses, such as adapting to climate change, may be more gradual and flexible, taking into account the expected timing of impacts, the potential to act effectively later and the lifespan of assets.

To tackle climate change,

cities need to develop

ways to minimise

the harmful effects of a

changing climate

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Page 170 | METROpOlITAN plAN fOR SyDNEy 2036

NSW is committed to a 60% cut in the state’s emissions by 2050

This Metropolitan Plan outlines the NSW Government’s priorities and strategies for tackling climate change in Sydney. The NSW Government is also preparing a broader response which will set out the Government’s priorities, strategies and actions across the State.

Another key challenge is managing growth sustainably and minimising human impact on natural resources while realising social and economic gains. Clean air and quality marine and terrestrial environments enhance liveability and promote healthy communities. Sydney’s economic competitiveness relies to a large degree on its natural assets to attract international business and support livelihoods and businesses.

Addressing climate change and protecting Sydney’s natural environment is therefore critical to maintaining Sydney’s quality of life, its economic productivity and its competitive status as a global city. This message was clear in community feedback received during development of this Metropolitan Plan.

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Tackling climaTe change

The growing level of greenhouse gases in the atmosphere (particularly carbon dioxide) is intensifying the natural greenhouse effect of the earth’s atmosphere, and raising temperatures.

In response, the NSW Government has committed to a 60 per cent cut in the state’s emissions by 2050, in line with Federal Government targets.

However, even if the world’s current emissions growth slows or reverses, some degree of warming is inevitable due to greenhouse gases already in the atmosphere and the lag in response to reductions in greenhouse gas levels.

The NSW Government has developed regional climate change projections in NSW Climate Impact Profile (DECCW 2010) showing NSW is expected to experience higher maximum and minimum temperatures across the state in all seasons. However there is a higher level of uncertainty for projections along the coast of NSW compared to inland NSW (DECCW 2010, pp 9–10).


to 2050 expecTed changes and impacTs in sydney’s climaTe To 2050

a hotter climate

Sydney has a temperate climate with warm summers, mild winters and daily summer temperatures averaging 26–29°C. Sydney’s daily summer temperatures are now 0.5°C to 0.9°C hotter than the long–term average. This warming is expected to continue with Sydney falling within an area of NSW projected to be 1–3°C hotter by 2050 (DECCW 2010).We know extremely high temperatures, especially prolonged over a number of days and nights, cause heat stress leading to human casualties during heatwaves (Woodruff et al. 2005) and significant increases in hospital admissions in Sydney (Khalaj et al. 2010). High temperatures experienced during heatwaves also place enormous pressure on the electricity network and can damage transport infrastructure. All these impacts were experienced during the 2009 Victorian heatwave. There is a strong link between high temperatures and air quality due to the increased occurrence of ozone at higher temperatures. The projected increase in temperature is expected to increase days of high ozone and diminish Sydney’s air quality (Cope et al. 2008).

more frequent and intense bushfires

The expected increases in temperature, evaporation and high fire risk days are likely to influence bushfire frequency and intensity across Sydney. The bushfire season is likely to be extended as a result of warmer temperatures, and fire frequency is likely to increase (Bradstock et al. 2008).

more rain in summer and spring

Sydney currently receives on average 900–1200 mm of rainfall annually. Although within an area of NSW where summer and spring rainfall are projected to rise by 10–20%, autumn rainfall is expected to be unchanged and winter rainfall is expected to decline by 20–50% by 2050 (DECCW 2010). These changes would affect the amount of water reaching rivers and creeks with the greatest change projected to be in summer. Major increases in run–off are likely to impact on the stormwater system and, where capacity is reached, cause flooding. In areas close to tidal waters, the frequency, height and extent of flooding in low lying areas are expected to increase due to the combined effects of changes to rainfall and sea level rise.

rising sea levels

Sea levels along the NSW coast are projected to rise by 40 cm by 2050 and 90 cm by 2100, although higher rates of sea level rise cannot be ruled out (DECCW 2009c). Higher sea levels will lead to increased tidal inundation, flooding of low–lying land, and beach recession. Changes in tides caused by sea level rise will affect coastal ecosystems, access to and use of public and private lands, historical and cultural heritage values, and public and private infrastructure.


objecTive g1To Reduce sydney’s gReenhouse gas emissions

The NSW Government has shown strong leadership in climate change mitigation. The NSW State Plan commits to reducing greenhouse gas emissions by 60 per cent by 2050. The Government has also committed to developing a clean energy future, targeting 20 per cent renewable energy consumption in NSW by 2020 and saving 4,000 gigawatt hours (GWh) of electricity annually through energy efficiency programs by 2014.

NSW has developed world leading approaches to reducing greenhouse gas emissions including the NSW Greenhouse Gas Reduction Scheme, one of the world’s first mandatory emissions trading schemes. The Government is also driving investment in cost–effective energy efficiency measures through the NSW Energy Efficiency Strategy and the Energy Savings Scheme, and reducing household emissions via BASIX.

These programs together with others developed under the National Strategy for Energy Efficiency will help NSW achieve its emissions reduction target and lower Sydney’s greenhouse gas emissions. Emissions can be lowered further again with actions specifically targeting the metropolitan region.

A snapshot of Sydney’s energy–related greenhouse gas emissions (Arup 2010a) reveals:

• the manufacturing, industrial and commercial sectors generate more than half of Sydney’s emissions

• residential buildings contribute one quarter of Sydney’s emissions

• transport accounts for approximately 20 per cent of Sydney’s emissions, and

• Sydney’s energy related emissions account for 10 per cent of Australia’s emissions and 34 per cent of NSW’s emissions

Encouraging a compact, multi–centred city and integrating land use with transport planning will help slow emissions growth in Sydney by encouraging smaller homes and promoting more walking, cycling and public transport use. This also improves health and local air quality.

Other factors influencing emissions include the speed, frequency and safety of public transport, the diversity of uses catered for in an area and the availability of car–share and bike spaces. The possibility of declining oil supplies, higher energy prices and new fuels and technologies also need consideration. These issues are discussed in Transport for a Connected City and Growing and Renewing Centres.

objectives & actions

fIGuRE G1sydney meTRopoliTan aRea’s 2008 eneRgy–RelaTed gReenhouse gas emissions by secToR Arup 2010a

The methodology adopted to produce the emissions snapshot uses models of energy consumption by sector and statistics for sector intensity across lGAs within Sydney. The results have been cross checked with state based consumption data reported by ABARE and represent the best estimate able to be achieved from existing data sources. The emissions attributed to the manufacturing and industrial sector however have a higher degree of uncertainty than the other sectors due to the aggregation of energy consumption data reported by these industries at the state level. (Reference: ABARE Energy update 2008, Canberra, July 2008)


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acTion g1.1Reduce emissions from the manufacturing and industrial sectors by encouraging industries to collaborate and co–locate to share materials, energy and by–products

Emissions from manufacturing and industry in Sydney are concentrated around Bankstown, Holroyd, Botany Bay and Sydney City (Arup 2010a). While reducing emissions is essential, Sydney needs an approach that ensures it remains a viable base for these sectors.

Opportunities exist to examine where synergies exist among separate but neighbouring industries to exchange materials, energy, water and/or by–products. This can assist businesses to reduce energy use and thereby reduce emissions, save costs, increase competitiveness and insulate them from any future increases in energy costs (Chertow 2003). This approach is common in cities such as Rotterdam where industries exchange steam, water, carbon dioxide, waste heat and chemicals through pipelines, cables and barges. Sharing systems for supplying compressed air, for instance, has saved firms 30 per cent in costs and reduced electricity use by 20 per cent (Arup 2010a). The role of government has been to identify opportunities for, and facilitate, collaboration.

The NSW Government will:• work with existing industries and manufacturers to

identify opportunities to exchange materials, energy and by–products

• consider a pilot to examine how Government can facilitate exchanges, and report on the commercial and sustainability outcomes

• establish the information sharing mechanisms that firms need to identify opportunities for co–location and exchange of material, energy and by–products, and

• establish shared resource principles for new manufacturing and industrial parks to ensure they are planned, designed, built and occupied to optimise potential synergies among industries and manufacturers

acTion g1.2demonstrate the benefits and costs of Low Carbon Precincts to generate district–wide strategic solutions

A low carbon precinct is a defined geographical area where a range of co–ordinated actions take place over a set period involving stakeholders with the express purpose of reducing carbon emissions (London Energy partnership 2008). Major cities such as London, Rotterdam and Stockholm use low carbon precincts to reduce greenhouse gas emissions.

A low carbon precinct approach to mitigation complements an individual lot or sector–based approach by:• identifying opportunities geographically (for

instance, the solar orientation of particular streets or the clustering of industries that could jointly use decentralised energy)

• considering initiatives that need common or undevelopable land

• realising economies of scale, and• allowing for a broader sharing of costs by expanding

the suite of measures employed

The NSW Government will assess piloting a Low Carbon Precinct for the Sydney metropolitan area in close collaboration with local government and industry.


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The immediate aim of a low carbon precinct would be to reduce emissions from areas that offer considerable mitigation opportunities (and present few constraints). If an initial pilot proves successful, a longer term aim may be to significantly contribute to achieving the state’s target of a 60 per cent cut in emissions by 2050 by rolling out the precincts and the innovative approaches adopted in them more widely across Sydney.

The precincts are likely to have these characteristics: • a mix of commercial, residential and industrial

development and building types• large sites in single ownership• high value renewable resources

(such as solar and wind potential), and• diversity in demand for resources

(such as the time of day when electricity is needed)

A precinct–based approach does not aim to move high emitters from a particular area, but to strategically assess the abatement opportunities given the particular characteristics of a specific area.

The Government will facilitate the development of simple tools for authorities to identify strategic local mitigation opportunities, consider mechanisms to support the introduction of various energy efficiency or renewable energy initiatives in such precincts, and assess the implementation of low carbon precincts across Sydney.

acTion g1.3investigate a minimum sustainability benchmark for new commercial buildings

The energy efficiency of commercial buildings largely determines the emissions from this sector. While some new buildings are constructed every year across the Sydney metropolitan area, the vast majority of commercial buildings were built in the past 150 years.

Since 1 November 2010, commercial office premises over 2,000 m2 must disclose their energy efficiency performance when being leased or sold under federal Government legislation. Buyers and prospective tenants will know a building’s energy performance, giving owners an incentive to upgrade buildings to match peer performance. Opportunities to further reduce emissions from existing commercial buildings will be pursued in policies being developed by the NSW Government.

New commercial buildings tend to be more energy efficient than existing buildings, primarily due to more stringent standards under the Building Code of Australia (BCA) and voluntary performance based rating tools such as the National Australian Built Environment Rating System (NABERS) and the Green Building Council of Australia’s Green Star rating system.

The NSW Government will examine a minimum sustainability benchmark for commercial development above the minimum BCA standards. It will assess a broad range of the benefits and costs in applying a benchmark, as well as examine development controls to improve the energy performance and carbon sequestration potential of commercial buildings when they are upgraded.

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acTion g1.4create a framework to stimulate largescale energy efficiency retrofits of commercial and industrial buildings

NSW has led the country in performance rating of commercial buildings through NABERS and has now legislated to improve access to finance and to overcome barriers that currently prevent cost effective building upgrades being implemented.

The new Environmental Upgrade Agreements legislation will enable building owners to access capital on favourable terms, and to share the benefits of energy savings measures with tenants. The Department of Environment, Climate Change and Water will work with urban councils, building owners and the energy services industry to stimulate rapid intensification of building retrofits. This activity in NSW will also benefit from new tax deductions that will be offered by the federal Government from 1 July 2011 for commercial building upgrades.

acTion g1.5capitalise on one–off abatement opportunities from major projects

Major new projects may deliver large, one–off abatement opportunities which can best be realised at the design stage. for instance, new abatement technology proposed for the expansion of Orica’s Ammonium Nitrate facility in the Hunter will reduce nitrous oxide emissions, a potent greenhouse gas. This is predicted to save the equivalent of two per cent of Sydney’s total emissions (ARUp 2010B). Similar abatement opportunities may be available in existing manufacturing and industrial facilities across Sydney.

The NSW Government is proposing to prepare Sustainability Guidelines to guide assessment of major projects (refer ACTION G3.2). This will include guidelines aimed at reducing the emissions of major projects to maximise one–off abatement opportunities, and include a consistent methodology for calculating emissions. The Department of planning will consider the share of costs imposed on projects and develop a system to report on emissions saved from major projects.

The Sustainability Guidelines aim to provide greater certainty for proponents and Department of planning during the project assessment.

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acTion g1.6continue planning initiatives that improve the uptake of low emissions and renewable energy technology

Sydney meets most of its energy demands from non–renewable sources, with just seven per cent currently met by renewable sources. Energy production and use is the largest contributor of greenhouse gas emissions in Sydney. The NSW Government is committed to increasing renewable energy sources and low carbon technologies to cut emissions and meet the rising demand for electricity. The Government is targeting 20 per cent renewable energy consumption by 2020, consistent with the federal Government’s expanded Renewable Energy Target.

The NSW Government will also continue providing advice and streamlining the planning system to facilitate adoption of low emission and renewable energy technology across Sydney. for example, the Department of planning will release best practice guidelines on the application of low–emission technologies in developments to assist the building sector, including information on technologies, costs and benefits, and their application to a variety of developments. Sydney builders

and home owners will be able to adopt new technologies through BASIX. Recognition of wind generation and geothermal space heating will become available online with the BASIX tool, and research will be conducted to encourage uptake of small scale co–generation and tri–generation plants for multi–unit development.

Sydney will also benefit from the NSW Government’s continued expansion of exempt and complying development under the State Environmental Planning Policy (Infrastructure) 2007, including for a range of small scale wind and energy systems, where there are benefits and no or minimal impacts on neighbourhood amenity.

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10.57–10.73

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SYDNEY

fIGuRE G2 ResidenTial eneRgy consumpTion gj/dwellingSOURCE: GREENHOUSE GAS EMISSIONS SNApSHOT, 2036 METROpOLITAN pLAN REvIEW ARUp, SEpTEMBER 2010

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acTion g1.7establish a program for updating basix which considers the expansion of its scope, improves its stringency, and introduces regular five–yearly reviews. an assessment of the costs and benefits of the possible changes will be undertaken.

The residential sector currently accounts for 25 per cent of Sydney’s greenhouse gas emissions and emissions are projected to increase if homes get bigger, the average number of people per dwelling continues to fall and the use of electrical appliances increases.

The Building Sustainability Index (BASIX) has been in place since 2004. This performance–based tool allows developers and designers to select from a menu of sustainability options to meet mandatory targets against thermal performance, greenhouse gas performance, and water consumption performance.

BASIX delivers an overall positive return, with new BASIX certified dwellings generating a benefit to NSW of between $1.20 and $1.60 for every dollar spent complying with BASIX, most of which accrues directly to individual householders through lower energy and water bills (Nera Economic Consulting 2010).

There are opportunities to establish a program for expanding BASIX to achieve further emission reductions from new homes and alterations. By 2012, the NSW Government will have assessed the benefits and costs of the program to expand the scope of BASIX.

BASIX could be further enhanced to increase the energy efficiency of residences and make associated emissions reductions. Any consideration of enhancements to BASIX would take into account the work being undertaken at a national level under the National Strategy for Energy Efficiency to develop a nationally consistent building framework.

The program will outline the potential scope for BASIX to expand and consider related residential sustainability initiatives. The Government will assess future initiatives including:• encouraging dwellings that promote active and low–

carbon transport like cycling, walking, public transport and electric vehicles

• providing greater incentives to reduce the size of detached homes (addressing one of the biggest single factors contributing to the rising trend in total residential energy consumption)

• further improving the thermal performance of homes (a goal of the National Strategy on Energy Efficiency)

• encouraging flexible housing design • encouraging mixed–use development in larger

multi–unit developments • considering the energy embodied in construction

materials, and • considering carbon sequestration potential of

building materials

Subsequently, five yearly reviews of BASIX’s scope, outcomes and stringency will occur to ensure it maintains its leadership position relative to other statutory requirements.

basix

Benefits and emissions reduced so far

According to an independent economic evaluation by NERA Consulting:• By 2050, Sydney dwellings currently certified from

BASIX will have generated net benefits to society of $68 million to $268 million

• The greatest net saving is in reductions to households’ energy bills ($270m–$400m to 2050)

• Between 211,000 to 500,000 tonnes of CO2 emissions have been saved by metropolitan dwellings’ application of BASIX to date

• The initial costs of complying with BASIX in Sydney are approximately $6,400 for an average detached dwelling, $3,500 per dwelling in an average low–rise unit and $1,000 per dwelling in an average high–rise unit (reflecting economies of scale that allow costs to be spread across many units).

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nsw sea level Rise policy & guidelines

In August 2010, the NSW Government introduced guidelines to help councils and State agencies implement the NSW Sea Level Rise Policy Statement, which includes projections of sea level rises of 40 cm by 2050 and 90 cm by 2100, relative to 1990 levels. The guidelines apply to all areas affected by tidal waters including the NSW Coastal Zone, Sydney Harbour and Botany Bay. It urges councils to:• apply appropriate criteria to development applications on

land that may be affected by coastal changes or sea level rise by 2100, such as designing homes that can be relocated from risk areas, be subject to time and trigger–limited consents, or otherwise be adaptable to sea level rise over time

• refuse development applications which cannot be adapted to sea level rise by any of the above means

• avoid intensifying land use in areas subject to coastal risks unless the impacts of sea level rise can be effectively managed

• identify ‘sea level rise investigation areas’ where coastal risk mapping is not yet in place to prioritise areas for detailed studies and adaptation strategies in advance of rezoning.

objecTive g2To lead The asia–pacific Region in capiTal ciTy adapTaTion To climaTe change

Sydney must adapt to predicted climate changes to maintain our quality of life, economic well–being and environment. Globally, all cities face this challenge and its complexity and opportunities cannot be underestimated. However the costs of doing nothing over the long term are expected to outweigh the costs of taking sound action at the right time.

The NSW Government has been a national leader in climate change adaptation, introducing—for example—Australia’s first comprehensive direction on adapting new development to sea level rise. Sydney can also become a leader in the Asia–pacific region in urban adaptation to climate change.

local governments and peak bodies such as the Sydney Coastal Council Group have been at the forefront of adaptation policy. Councils are improving their understanding of climate change impacts and incorporating adaptation into their business decision support tools and strategic planning.

Infrastructure owners also seek to understand and quantify the risks climate change poses to their assets and services, and take advantage of potential opportunities. Sydney Water, for example, has developed a three–year Climate Change Adaptation Program to quantify the risks and opportunities of climate change and inform future capital and operational investment. State agencies responsible for public infrastructure must incorporate climate change considerations into their existing risk management frameworks.

acTion g2.1develop a climate change adaptation strategy for sydney in collaboration with councils

The main risks posed by climate change for Sydney are increases in heatwaves, bushfires, flooding and sea level rise. Those most vulnerable are socio–economically disadvantaged groups, the very young, the aged, the socially isolated or those with a pre–existing disease such as cardio respiratory or renal illnesses. Extreme heat also places more pressure on infrastructure and services.

To manage the increased risks from climate change, the NSW Government will prepare a climate change adaptation strategy for Sydney to 2050. The strategy will be completed by 2013 and be based on the approach DECCW is already using in the south east of NSW.

An adaptation strategy will enable government, businesses and the community to prioritise their investment in adaptation. It will identify where key sectors, such as infrastructure, human health and tourism, are most vulnerable to a changed climate and where climate change presents opportunities. Critically, the adaptation strategy will also identify integrated solutions to the key exposures, vulnerabilities and opportunities for Sydney. It will be developed in partnership with local government and key infrastructure providers.

As part of this work, more specific and detailed information is needed about the future climate of Sydney. The NSW Government will work with climate scientists in our research institutions to develop a better understanding of Sydney’s future climate.

The climate change adaptation strategy for Sydney will provide a clearer picture of the particular exposure and vulnerabilities within Sydney to the impacts of climate change. This, along with improvements over the next five years in adaptation planning and costing, will enable the NSW Government and local councils to consider climate change when planning for new development areas.


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acTion g2.2incorporate adaptation to climate change in the program to review basix

It has been recognised internationally that government can play an effective role in keeping neighbourhoods liveable by ensuring that new construction takes account of climate change. Building standards are one critical measure (Stern 2007, pxxi).

A regulatory tool like BASIX can make housing more resilient to climate change (refer box). The NSW Government is proposing to assess expansions to the scope of BASIX (refer Action G1.6), which will also include an analysis of a range of adaptation options.

acTion g2.3 investigate incorporating street tree planting and other green cover opportunities into grant funding programs, particularly in western sydney

Globally, increasing a city’s green cover (generally through tree cover) is a most effective way to manage heat, store carbon, improve attractiveness and encourage walking and cycling. Chicago, New york, San francisco, London and northwest England have audited their green cover and set targets for increasing tree cover.

A 2007 study of Greater Manchester found:• increasing green cover by 10% could keep extreme

surface temperatures at current levels until almost the end of the century, despite climate change, and

• a 10% loss of green cover in high density residential areas and town centres would raise surface temperatures by between 3.3–3.9°C by 2080 (highlighting the dangers of removing green cover from cities)

Large–scale green cover is being introduced in parts of Sydney. Housing NSW’s Green Street Program, for example, aims to beautify public housing areas and reduce temperatures by creating shady streets. Over three years 9,000 trees will be planted in Sydney.

The NSW Government will work with local government using existing funding programs, including the Metropolitan Greenspace Program and Sharing Sydney Harbour Access Program, to plan a tree–planting program in streets, parks and public places with a particular focus on Western Sydney to manage heat.

afTeRbefoRe

how baSiX could adapt housing to climate change BASIX could address issues such as:• minimising the neighbourhood heat effect from

housing (e.g. through light coloured roofs and walls)• reducing storm runoff (e.g. through permeable

surfaces and drainage standards)• behavioural adaptation (e.g. security grills for

open window ventilation)

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incorporate climate change adaptation into centre renewal

The Department of planning is developing planning rules to renew some existing centres (refer Growing and Renewing Centres). To help make Sydney’s centres climate resilient, the Department will factor climate change adaptation (and mitigation) into the design of all centres targeted for renewal.

The NSW Government will also support state and local planners to address climate change adaptation in local planning of centres. Drawing on the lessons learnt from the Government’s lead projects, the Department of planning will develop guidelines to successfully factor the projected changes to Sydney’s climate into developments and urban design, and consider implementation mechanisms including policy and statutory frameworks.

In addition, climate change adaptation and mitigation will be considered as part of the review of the Sydney’s Growth Centres Development Code.

pRoTecTing sydney’s naTuRal enviRonmenT

The environmental challenges faced by Australia’s largest cities relate to greater travel by private vehicle, vegetation clearing and air and water pollution. population growth will place greater pressure on the environment and natural resources, with rising demand for water, energy and land as well as increasing waste production. It is therefore essential to plan and balance the needs of the population and the environment to achieve sustainable outcomes.

Intrinsically linked with a growing population is an increasing ecological footprint. The ecological footprint is the notional amount of biologically productive land required to produce the ecological resources the population consumes and absorb the waste generated. Sydney’s ecological footprint has grown from 6.6 hectares per capita in 1998–99 to 7.21 hectares per capita in 2003–04 (DECCW 2009b)—higher than the national average of 6.9 hectares per capita.

The Metropolitan plan vision for a sustainable Sydney will be facilitated by establishing the policy framework to create a compact city, preserve our natural environments and agricultural regions and provide employment opportunities close to where people live.

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The NSW Government has adopted statewide targets for natural resource management (refer Appendix 6), setting benchmarks needed to enjoy healthy, functioning landscapes and communities in the future. These targets are in the NSW State Plan, which recognises that healthy and resilient natural resources are vital to the functioning of the state.

Many natural resource management issues are already covered by existing legislation and policies. The planning system can complement these where they relate to land use planning issues. The successful integration of natural resource management values within the planning system will help achieve identified targets.

acTion g3.1integrate environmental targets into infrastructure and land use planning

A variety of policy, planning and implementation approaches can support decisions that contribute to natural resource management targets while balancing economic and social factors.

The range of policy and planning approaches that can achieve positive environmental outcomes for land use and infrastructure decisions include:• incorporating long and short–term environmental,

social and economic considerations when developing the business case for infrastructure projects

• integrating targets in strategic plans and environmental planning instruments to guide development through to construction

• establishing targets at the project planning stage to achieve environmental benefits through every stage, increasing certainty throughout the process (refer case study)

• using the most up to date information to ensure environmental targets can be achieved and monitored regularly, for example water system modelling or biodiversity mapping

• developing tools to support implementation of targets and allow for flexibility in how targets are achieved, e.g., allow use of different technologies to achieve water or energy savings

• defining a delivery mechanism including identification of responsibilities and resources

• establishing consistent and measurable metrics to allow comparative assessment, and

• recognising the benefits of ‘green’ rating tools which assist industry to achieve better and measurable environmental outcomes

objecTive g3To inTegRaTe enviRonmenTal TaRgeTs inTo land use planning

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acTion g3.2develop and adopt Sustainability Guidelines to guide major project assessment

The Department of planning currently uses several development assessment guidelines to assess environmental impacts of major projects. There is scope to develop a set of Sustainability Guidelines to guide best practice environmental assessment. The Sustainability Guidelines would be aligned with the Natural Resource Management targets under the NSW State Plan and be prepared in consultation with partner agencies. The guidelines may address issues such as reduced greenhouse gas emissions, efficient water use, waste minimisation, social outcomes, as well as the life cycle of the major project.

acTion g3.3work towards making pRecinx™available as a web–based sustainability tool for widespread application by industry and government

Landcom developed the pRECINX™ planning and design tool to identify opportunities to achieve significant sustainability gains at a precinct wide scale. The tool can be applied to a range of development types including infill, greenfield and mixed use projects to help make informed decisions in the early stages of project planning.

pRECINX™ can help provide an upfront picture of a development’s overall performance, which may direct efforts to achieve the best sustainability outcomes and avoid unnecessary costs along the way.

The tool models the carbon intensity of new development, environmental performance, living costs, affordability and liveability. It enables development scenarios to be tested against a business as usual baseline, allows industry and government to quantify performance and enables comparison of options.

The Department of planning will work with Landcom to develop mechanisms to enable industry and government agencies to apply the tool to new development proposals, ensuring a common methodology for evaluating sustainability of new urban precincts.


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case sTudy

INTEGRATING SuSTAINABIlITy AND plANNING Rouse hill Town cenTRe

The new Rouse Hill Town Centre demonstrates how an integrated approach to a mixed development can achieve world class environmental and social sustainability outcomes. Stage One of the Town Centre opened in 2008. When complete, it will be the Major Centre for Sydney’s North West Growth Centre, accommodating 4,500 residents and 12,000 jobs.

Landcom, in conjunction with the Department of Planning, set a sustainable vision for the Town Centre with site developers and joint venture partners GPT Group and Lend Lease implementing the vision. In 2010, the Town Centre became one of only five projects internationally to receive the Urban Land Institute’s Global Award for Excellence for exemplary land–use projects. Targets were achieved because they were at the forefront of every major decision taken during the Town Centre’s planning, design and development.

The developers undertook detailed studies to ensure the project’s ambitious sustainability targets, set by the NSW Government, could be implemented, guided by sophisticated physical and computer modelling. The project’s sustainability vision is monitored by all partners and progress against the targets reported annually.

The project has achieved best practice environmental and social outcomes, including:• a 25% smaller ecological footprint than comparable centres• 63% less water use than comparable centres• 40% less energy use than comparable centres• best practice water sensitive urban design, including

a 150,000 litre rain tank• restoration of Caddies Creek• 130,000 plants in the Town Centre, of which

80 per cent are indigenous to the local area• the use of 130,000 tonnes of recycled material in construction• integration of residential and civic uses into the Town Centre• a genuine main street to encourage walking and cycling• integration of the bus transitway with the North West Rail

Link planned for longer term, and connections to local and regional bicycle paths to maximise use of non–motorised transport

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objecTive g4To impRove The healTh of waTeRways, coasTs and esTuaRies

Clean waterways and beaches are central to maintaining Sydney’s enviable lifestyle. Healthy waterways also underpin local livelihoods and the broader NSW economy. protection of rivers, creeks, lakes and dams largely depends on land use activities in a catchment.

The Sydney metropolitan area includes the coastal and estuarine landscapes of the Georges, Woronora and Cooks Rivers, the Hawkesbury–Nepean River and Broken Bay, parramatta River, and Sydney Harbour, as well as many smaller coastal lagoons and creeks. These river systems provide a unique environment, numerous recreational and commercial opportunities and essential resources. for example the Hawkesbury–Nepean River catchment supplies reticulated water for the majority of the Sydney metropolitan area along with the metropolitan catchment.

Sydney’s regional cities—parramatta, penrith and liverpool—are based on the parramatta, Nepean and Georges Rivers respectively. Strategic planning will ensure the rivers become an integral part of these centres. The NSW Government’s Catchment Action Plans (CAps) for Hawkesbury–Nepean and the Sydney metropolitan area help deliver the state’s natural resource management targets relating to improving the health of waterways, coasts and estuaries.

Effective stormwater and wastewater treatment systems play a critical role in maintaining and improving our waterways. Incorporating water sensitive urban design into existing urban and greenfield areas also helps improve the quality of stormwater and waterways.

The NSW Government’s Metropolitan Water Plan will secure Sydney’s water supplies to 2025. It includes water recycling projects and initiatives to maintain environmental flows throughout the Hawkesbury–Nepean river system.

The Metropolitan plan supports the many initiatives underway to improve the health of Sydney’s waterways by ensuring new development is located and designed to meet the community’s aspirations for our rivers, coasts and estuaries.

acTion g4.1achieve water quality outcomes by embedding water sensitive urban design principles and stormwater and catchment objectives and targets in local plans

Water sensitive urban design ensures development is designed, constructed and maintained to minimise impacts on the natural water cycle and downstream waterway values. It seeks to minimise demand for potable water through recycling of wastewater and stormwater, limit peak runoff and treat stormwater runoff to reduce pollutant levels. All development proposals should be designed and assessed in relation to quantitative stormwater targets.

Many councils have prepared water sensitive urban design Development Control Plans or policies with targets. The NSW Department of Environment, Climate Change and Water will continue to provide strategic advice on stormwater management and water sensitive urban design to local government.

The Department of planning continues to promote water sensitive urban design through its subregional planning and urban renewal planning responsibilities. It will also finalise model local provisions for stormwater management in urban areas for the Standard Instrument LEP.

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acTion g4.2guide councils in mapping significant riparian corridors

Riparian corridors are essential to protecting a waterway’s aquatic and terrestrial biodiversity values and the stability of its bed and banks. The Sydney Metropolitan Catchment Management Authority has prepared standard methodology to map regionally significant riparian corridors. Quality, up–to–date mapping informs decision making on the protection of aquatic and terrestrial biodiversity values and on meeting objectives and targets.

The Department of planning is finalising guidance related to riparian corridors for councils to include in Standard Instrument LEPs.

acTion g4.3promote coastal protection and foreshore access through the implementation of relevant policies and guidelines

The NSW Government currently has a suite of policies, programs and legislation to encourage ecologically sustainable growth in coastal areas while simultaneously reducing the risks to life and property from coastal hazards and flooding.

The NSW Sea Level Rise Policy Statement, adopted in 2009, supports adaptation to projected sea level rise impacts and includes sea level rise planning benchmarks to assess the potential impacts of projected sea level rise in coastal areas. To support the statement, the Department of planning has released the NSW Coastal Planning Guidelines: Adapting to Sea Level Rise to help councils, State agencies, planners and development proponents address sea level rise in land–use planning and development assessment.

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objecTive g5To achieve susTainable waTeR use

Sydney’s total water consumption has fallen from 506 litres per person a day in 1990–91 to 314 litres per person a day in 2009–10 (NSW Office of Water, 2010). This has been achieved through a combination of water recycling and efficiency programs, leak reduction and water restrictions. However, population growth and the expansion of urban areas are placing more pressure on Sydney’s water supplies.

Climate change, which is likely to result in more frequent drought and hotter temperatures, highlights the need to use water sustainably. Water security remains a significant community issue, according to community and stakeholder engagement undertaken as part of the revision of the Metropolitan Water Plan.

In relation to planning for Sydney’s water, the key areas of importance include securing water quality and ensuring adequate supplies as well as reducing demand for water through strategies such as recycling. Strategies including Sydney’s Metropolitan Water Plan and BASIX aim to secure a sustainable supply of urban water into the future as well as reduce per capita water consumption.

acTion g5.1implement the Metropolitan Water Plan to ensure sydney’s water supply for the next 25 years

The NSW Government’s 2010 Metropolitan Water Plan outlines a range of measures to ensure Sydney, the Illawarra and the Blue Mountains have enough water into the future. The plan also helps protect the health of our rivers by ensuring environmental flows are maintained and water supplies are adequate during drought at minimal cost to the community.

Most of Sydney’s drinking water will continue to be sourced from our dams, with investment in recycling, including stormwater harvesting and reuse to ease demand for fresh water. When operating at full capacity, Sydney’s wind–powered desalination plant can produce 90 billion litres of water a year, enough to supply up to 15 per cent of Greater Sydney’s current water needs. The Government will continue using innovative water efficiency programs to help reduce water use among households, businesses, government and farms.

acTion g5.2ensure integrated water cycle management for new release areas and sites for urban renewal

State agencies, utilities and local councils must work together to undertake integrated water cycle planning processes for areas of significant urban development to optimise opportunities for sustainable water supply, wastewater and stormwater management across Sydney. Land use planning decisions will be informed by appropriate catchment and water system modeling. This work will occur early in the planning process and be undertaken in a manner that ensures greater transparency and accountability in managing the impacts of urban growth on the health of waterways.

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embedding waTeR sensiTive uRban design in local plan GROWTH CENTRES DEvELOpMENT CODE

The Growth Centres Development Code establishes matters for consideration when implementing Water Sensitive Urban Design initiatives to address water cycle management within the South West and North West Growth Centres. These controls aim to minimise the impacts of development on the water cycle and achieve more sustainable urban development.

The Code sets out objectives and controls in regards to water supply, wastewater and stormwater management for consideration when preparing Development Control Plans (DCPs) as part of the Precinct Planning process. This includes the establishment of water quality and environmental flow targets set by the Department of Environment, Climate Change and Water.

For example, the following stormwater quality objectives were included in the Blacktown City Council Growth Centre Precincts DCP 2010:a. to manage the flow of stormwater from urban parts of the

Precinct to replicate, as closely as possible, pre–development flows

b. to define the flood constraints and standards applicable to urban development in the Precinct, and

c. to minimise the potential of flooding impacts on development.

The DCP requires stormwater systems to be designed and maintained to achieve water quality and environmental flow targets. These targets aim to reduce pollutant loads and limit stream erosion to the minimum practicable.

hoxTon paRk Recycled waTeR scheme AN INTEGRATED AppROACH TO SUSTAINABLE WATER DELIvERy

When complete, the Hoxton Park Recycled Water Scheme will provide around one billion litres of high quality recycled water a year to businesses and residents in south west Sydney. The scheme will supply recycled water to about 7,000 homes and to businesses in the area from 2013, increasing to over 14,000 new homes from 2025. It will serve Edmondson Park, Middleton Grange, Ingleburn Gardens, Yarrunga Industrial Area and Panorama Estate.

Three new recycled water reservoirs will be built as part of the scheme, located at Edmondson Park, and another at South Hoxton Park. The recycled water for the Hoxton Park area will be treated to a very high standard at a new recycled water plant at Sydney Water’s Glenfield Sewage Treatment Plant. It will go through a complex series of treatment processes on top of the usual high level of treatment for wastewater.

Sydney Water will provide homes in the area with two water supplies (known as dual reticulation)—recycled water and drinking water. The recycled water taps, pipes and plumbing will be coloured purple to distinguish recycled water from drinking water taps. Recycled water will be used for gardens and other outdoor uses, and toilet flushing.

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objecTive g6To pRoTecT sydney’s unique diveRsiTy of planTs and animals

The Sydney basin is Australia’s fifth most biologically diverse region. This plan complements existing mechanisms to protect biodiversity by containing the urban footprint and focusing future growth in existing urban areas around centres and corridors, thereby avoiding state and regionally significant habitats.

A site by site approach to decision–making related to biodiversity assessment can result in cumulative impacts that may result in continual clearing and fragmentation of native vegetation and habitats in Sydney, especially in Western Sydney and in coastal areas. Recent changes to legislation provide for better alignment of planning with biodiversity conservation in greenfield sites with assessment facilitated at a landscape scale. Known as Biodiversity Certification, the mechanism aims to provide for better conservation outcomes whilst increasing certainty for development. Once a planning authority secures Biodiversity Certification over an area of land, site by site assessment of threatened species is not required for subsequent developments within the area covered by the agreement.

Another mechanism is the Biodiversity Banking and Offsets Scheme (BioBanking), a market based scheme designed to reduce the impacts of development on biodiversity at least cost. Development impacts on biodiversity can be offset at one site by improving its management at other sites provided overall biodiversity values are improved or maintained. Biobank sites must have the same threatened species or ecological communities as those affected by the development, and sites must be managed for conservation in perpetuity.


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acTion g6.1implement the NSW Biodiversity Strategy to protect identified priority conservation areas and guide land use planning

The draft NSW Biodiversity Strategy identifies priority areas across NSW where investment and improved management would deliver the best return for terrestrial, aquatic and marine biodiversity. At a regional scale, priority Conservation Lands have been identified for Western Sydney in the Cumberland Plain Draft Recovery Plan. The purpose of priority Conservation Lands is to focus biobanking and other forms of conservation investment and management into areas with the highest biodiversity values. These priorities will assist public authorities to coordinate actions to enhance and protect biodiversity values.

The priority Conservation Lands identified in the Cumberland Plan Draft Recovery Plan are consistent with mapped areas identified in existing policy documents relating to biodiversity in the metropolitan area, including the Growth Centres Conservation Plan and the Hawkesbury–Nepean Catchment Action Plan.

The NSW Biodiversity Strategy will also be implemented through subregional plans and new LEPs, which will consider potential impacts on areas of high biodiversity value such as the priority Conservation Lands, at the land use planning stage.

acTion g6.2partner with the federal government to address matters of National Environmental Significance under the EPBC Act in sydney’s growth centres

The NSW and Australian Governments are undertaking a Strategic Assessment of Sydney’s Growth Centres under the federal Government Environmental Protection and Biodiversity Conservation Act 1999 (EPBC Act) to consider the potential impacts of urban development on matters of national environmental significance. The assessment will provide strategic conservation outcomes not capable of being delivered under a site by site process, and streamline future development assessment processes. The benefits of this approach include:• environmental, social and economic considerations are

balanced at a regional scale• significant conservation outcomes for matters of

national environmental significance will be secured• Biodiversity Certification will continue to be

implemented• the potential for offsets to be required twice for the

same impact will be avoided, and• potential delays arising from the legislative

requirements in implementing the Growth Centres program will be removed.

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objecTive g7To impRove sydney’s aiR qualiTy

Air quality in the Sydney Basin has improved over the past 20 years with substantial reductions in levels of carbon monoxide, nitrogen dioxide and lead through programs conducted over this time. Challenges still exist in relation to ozone concentrations and particles, both of which are linked to motor vehicle use and may have significant health impacts.

Breaches of the ozone standard occur across the metropolitan area at certain times of the year and tend to be more frequent and higher in western and south western Sydney under prevailing weather conditions.

Although Sydney generally achieves the particle standards, particles in the atmosphere remain a health concern, particularly at the local level including near busy roads. Combustion sources such as wood heaters during winter, industrial processes, and motor vehicles, particularly diesel vehicles, are the most significant source of fine particles produced from human activity.

Annual health costs of air pollution in Sydney, Hunter and Illawarra are estimated to be $4.7 billion or $893 per person per year (DEC 2005). Although Sydney has good air quality by world standards, a reduction in air pollution levels would deliver significant longterm benefits such as improved health and improved amenity.

Motor vehicles are expected to remain the most significant source of ozone–forming pollutants in the region. Gains from tighter fuel and vehicle emission standards are likely to be partially offset by growth in vehicle numbers and travel, and the use of heavier vehicles.

CSIRO modelling shows that the conditions associated with climate change are likely to result in an increase in the number of days exceeding the ozone standard in Sydney and the geographical extent of ozone impacts, as a result of increased temperatures. Changes to rainfall, temperature and weather patterns may also increase the frequency of dust storms and bushfire–related pollution events, leading to higher particle emissions.

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20m 25% (DECREASE OF 75%)



acTion g7.2plan appropriately for development adjacent to busy roads

The NSW Government has published Development Near Rail Corridors and Busy Roads—Interim Guideline for regulators and industry about land use planning principles that can improve residential environments and minimise exposure to poor air quality. These guidelines support the State Environmental Planning Policy (Infrastructure) 2007 and advise that sensitive land uses such as housing, child care centres and schools should have sufficient separation from busy roads.

The Guidelines outline that air pollution concentrations tend to be highest adjacent to the road and decrease with distance from it. As indicated on figure G2 at 20 m from the kerb along a busy road with an annual average daily traffic volume of more than 40,000 per day the percentage of concentration decreases by 75 per cent.

As well as distance from the road to address air quality, the guidelines provides design solutions such as architectural design, building orientation and good internal layout, which can achieve acceptable air and noise amenity in close proximity to busy transport corridors.

The Department of planning will continue working with councils during preparation of LEPs to ensure exposure of sensitive land uses to poor air quality is avoided early by providing appropriate consideration of setbacks, land uses and development design beside very busy roads.

acTion g7.1plan for improved air quality consistent with Action for Air

The NSW Government has a 25 year air quality management strategy, Action for Air. It includes actions for cleaner vehicles, businesses and homes, transport planning and industry and aims to achieve co–benefits for greenhouse gas emission reductions.

Action for Air recognises a key focus of air quality improvement is reduced dependence on motor vehicles by increasing the share of trips on public transport or by active transport.

The Metropolitan plan’s vision for a connected city of cities is essential to realising increased use of sustainable forms of transport and therefore ensuring air quality improvements over time. focusing development in areas with good access to public transport and maximising the benefits of existing infrastructure and proximity to employment, shops and services will over time ensure a well integrated land use and transport system. This in turn will encourage people to make more sustainable travel choices and reduce private motor vehicle trips.

fIGURE G3 peRcenTage of polluTanT concenTRaTion shown RelaTive To

keRbside concenTRaTion of 100%SOuRCE: DEVElOpMENT NEAR RAIl CORRIDORS AND BuSy

ROADS—INTERIM GuIDElINE, DEpARTMENT Of plANNING 2008


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objecTive g8 To minimise household exposuRe To unaccepTable noise levels

The impact of noise on health is an increasingly significant issue requiring a range of government and industry responses. Many pressures contribute to high noise levels including road, rail and air traffic, as well as noise–based land use conflicts. The challenge is to balance the need for efficient transport systems with a variety of land uses whilst minimising the noise impact generated.

acTion g8.1avoid noise–based land use conflict through strategic planning and the development assessment processes

State and local governments must coordinate strategies to ensure land use compatibility is considered in future planning processes to prevent generation of new noise sources, or noise–based land use conflicts that have an adverse impact on public health and amenity.

The Department of planning will continue working with councils during preparation of LEps to ensure potential land use conflicts are avoided early by providing appropriate separations for incompatible land uses.

Urban renewal should be located and designed to minimise noise impacts on residents while recognising the benefits of focusing housing around transport nodes or corridors. planning for new release areas should consider existing adjoining land uses such as small farm holdings and local industries.

The NSW Government has published guidelines for regulators and industry about land use planning principles that can result in better residential environments and the avoidance of land use conflicts. These should be linked to planning controls and assessment of developments to ensure best practice mitigation and management measures for noise generating land uses and activities.

The NSW Government is also implementing a noise package, including a Noise Abatement Program, to reduce exposure to noise from both future and existing rail corridors.

Best practice planning guidelines for noise and vehicle air emissions along road and rail corridors supports the State Environmental Planning Policy (Infrastructure) 2007. The Development Near Rail Corridors and Busy Roads —Interim Guideline introduced goals for internal noise levels based on World Health Organisation guidelines for residential and other sensitive developments along busy road and rail corridors to protect heath and amenity. The guidelines recognise judicious land–use planning, architectural design, building orientation and good internal layout can achieve acceptable acoustic amenity in close proximity to busy transport corridors.

BUSY ROAD

fIGURE G4 The main sTReeT of The cenTRe is on a secondaRy sTReeT RaTheR Than The busy Road, cReaTing poTenTial foR a moRe liveable cenTReSOURCE: DEvELOpMENT NEAR RAIL CORRIDORS AND BUSy ROADS—INTERIM GUIDELINE, DEpARTMENT Of pLANNING 2008


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objecTive g9To minimise and Recycle wasTe

Waste represents a loss of resources and embodied energy to the economy and its management can be harmful to the environment and human health. Historically, disposing of waste to traditional landfills has been the primary method of dealing with Sydney’s waste. However over the last five years we have seen a dramatic increase in recycling by Sydney households and industry.

Recycling rates in Sydney have increased to 62 per cent of waste in 2008–09 from 49 per cent in 2004–05. Over the same period, waste disposal in Sydney has decreased to 4.0 million tonnes from 4.6 million tonnes.

Waste can broadly be divided into three main streams—municipal solid waste, commercial and industrial waste, and construction and demolition waste. It is critical that waste generation rates are slowed and the recovery rate of waste materials is raised to reduce the loss of valuable resources from the productive economy.

The NSW Waste Avoidance and Resource Recovery Strategy provides a framework for reducing waste generation and improving the efficient use of resources while setting targets for the diversion of waste from landfill.

acTion g9.1identify strategically appropriate locations for new waste management technologies in Subregional Strategies

Waste can be reduced by increasing the uptake of materials recovery facilities, composting facilities, Alternative Waste Technologies (AWTs) and ensuring adequate investment in resource recovery infrastructure. There are currently three AWT facilities receiving and treating municipal waste in the Sydney region, servicing seven local government areas.

The Government will continue working with the private sector on successful resource recovery facilities and sustainable waste infrastructure. The Department of Environment, Climate Change and Water and the Department of planning will strategically identify appropriate locations and alternative waste technologies to deal with all classes of waste.

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Documents

STRATEGIC DIRECTION G Tackling climaTe change & …apo.org.au/system/files/93911/apo-nid93911-262191.pdfSTRATEGIC DIRECTION G Tackling climaTe change & ProTecTing Sydney’S naTural