Yass Valley Council Strategy for the Management of onsite sewage systems

YASS SHIRE COUNCIL

Plan\reports & studys\sewage-strategy

STRATEGY FOR THE

MANAGEMENT OF ON-SITE

SEWAGE SYSTEMS

1.0 INTRODUCTION

1.1 BACKGROUND

Approximately 250,000 households throughout New South Wales use on-site sewage management systems (OSMS). The use of septic tanks and on-site waste systems is an essential service for households in unsewered areas, which can provide a safe, economical and ecologically sustainable service, when adequately designed and maintained. However, there have been increasing concerns that many systems are failing to adequately treat and dispose of wastewater, leading to pollution of waters and the creation of unhealthy conditions.

In an attempt to address these concerns, the Minister for Local Government has recently introduced the Local Government (Approvals) Amendment (Sewerage Management) Regulation, 1998. The new sewage management regulations do not change the Council’s duty and powers to protect public health and deal with defective systems, however, they do provide an accountability framework to ensure Council provide an appropriate strategy to minimise the impact of pollution and protect public health and the environment.

This document has been produced as a result of the requirement for all Councils to prepare an initial sewage management strategy. This strategy will be placed on public exhibition for 30


days, to seek comments from affected stakeholders, prior to adoption. Other significant changes include the requirement for all householders using on-site sewage management systems to apply for council approval to continue to operate existing systems as of 1 July 1999. The rationale behind the new changes is to update Council’s records of existing systems in their Shire Municipality, and help ensure the individual and cumulative impacts of on-site systems do not pose a risk to public health or the environment.

Within Yass Shire there are approximately 2,000 on-site sewage management systems which range from old septic systems to modern aerated systems. The number is increasing as more development occurs in the rural and semi-rural areas. With the local environment stressed and sensitive to further pollution, control of such systems is essential.

The Department of Local Government, in co-operation with the Environment Protection Authority, the Department of Health, Department of Urban Affairs and Planning and Department of Land and Water Conservation have produced Environment and Health Protection guidelines to assist councils prepare management strategies for on-site sewage management for single households.

Yass Shire Council (in conjunction with a Regional Group consisting of Yass Shire Council, Tallaganda Shire Council, Mulwaree Shire Council, Goulburn City Council, Young Shire Council, Crookwell Shire Council, Queanbeyan City Council, Gunning Shire Council and Yarrowlumla Shire Council) has developed this strategy based on the guidelines and on the recently gazetted Local Government (Approvals) Amendment (Sewage Management) Regulation 1998.

1.2 AIMS

The aims of this strategy are to minimise the impact of existing and future on-site sewage management systems on public health and the environment, in accordance with the principles of ecologically sustainable development.

1.3 OBJECTIVES

The objective of this strategy is to work together with householders, developers and service agents, to ensure well managed and correct performing on-site sewage systems are used throughout the Shire. The prescribed performance standards for the management of all on-site sewage management systems are:

Prevention of Health Risks; Protection of Land; Protection of Surface Water and Ground Water; Protection of Community Amenity; and Conservation & reuse of resources

Further details of the performance objectives are outlined in Appendix 1.


The strategy will lay the framework for the identification and registration of all existing systems, then require an annual approval of the “activity of sewage management” to ensure no adverse impact on the environment or the public. Further, that all new applications will be assessed with consideration to:

The physical characteristics of the site;

Protection of waters;

Protection of ground water;

Protection of land and natural vegetation;

Prevention of any public health risk;

Maintaining and enhancing community amenity;

Ensuring conservation and reuse of water; and

Ecologically sustainable development

1.4 STRATEGIES

The following strategies will be implemented by Council to achieve the stated aims and objectives with the allocated resources:

Householders will be required to submit an application to Council by 1 July 1999, to continue to operate an on-site sewage management system on their property.

Council will develop and maintain a database of all existing on-site sewage systems.

Council will categorise the applications into medium/high and low risk systems, based upon the information received in the applications, and their locations.

Council will issue generic approvals to low risk applications requiring responsible user practices. High Risk applications will be inspected by Council staff (prior to issue of an approval to operate).

Council will undertake a program of education through on-site inspections and the distribution of information to improve the landowners understanding and practices involving OSMS.


Council will undertake a program of education through on-site inspections and the distribution of information to improve the landowners understanding and practices involving OSMS.

Through consultation, Council will specify the qualifications for third party certification of maintenance work, servicing and performance monitoring.

Council’s development standards and approval criteria will be reviewed for subdivisions and residential buildings to ensure that the most appropriate and sustainable on-site sewage management systems are installed in unsewered areas.

1.5 SUSTAINABILITY

The Local Government Act 1993 has been amended to include principles of ecological sustainable development. These principles impact directly on any consideration of an on-site sewage management system. The principles are detailed in the Dictionary of the Act but are, in essence, as follows:

Conservation of biological diversity and ecological integrity – that this should be a fundamental consideration;

Improved valuation, pricing and incentive mechanisms – that environmental factors should be included in the valuation of assets and services, such as:

- the polluters pay- Consumers of goods and services should pay prices based on full life cycle of providing

the goods and services- Environmental goals should be pursued in the most cost-effective way, such as the use

of economic incentives and market mechanisms

Inter-generational equity – the present generation should ensure that the environment is maintained or enhanced for the benefit of future generations.

The Precautionary Principle - that if there are threats of serious environmental damage, lack of scientific certainty should not be used as a reason for postponing measures to prevent degradation.

1.6 EDUCATION /PROMOTION

It is important that owners of OSMS understand how their system operates and the possible consequences of a faulty or mismanaged system. Older houses with on-site systems may have been bought and sold a number of times and current owners may not even know where the system is located.

Council recognises its responsibility to provide appropriate information to owners. This will be through a program of inspections which will include informal education of owners on site


and distribution of information and fact sheets. It will also involve the education of service contractors to ensure a consistent approach in inspection and certification.

1.7 LOCAL GOVERNMENT ACT – AMENDMENTS

The Local Government (Approvals) Amendment (Sewage Management) Regulation 1998, was gazetted on 6 March 1998, Gazette No. 46. This Regulation prescribes the operation of a system of sewage management including domestic on-site sewage management systems as an activity that may be carried out only with the prior approval of the relevant local Council. The amendment specifies among other things, the matters that a Council must take into consideration in determining an application for approval to install, construct or alter a sewage management system and sets the performance standards for the operation of a system of sewage management. Principles of ecological sustainable development must also be taken into account in determining any development.

To administer the new system, Councils will be allowed to charge fees associated with the cost of licensing and inspection.


2.0 OPERATIONAL STRATEGY

2.1 NEW SYSTEMS

All new On-Site Sewage Management Systems (OSMS) currently require approval in accordance with Item 5 of Part C of the Table to Section 68 of the Local Government Act 1993. As from 6 April 1998 all new systems will also require an approval to operate. Each site is assessed by the determining Environmental Health & Building Surveyor and appropriate conditions of approval imposed. Fees associated with this approval process are outlined in Council’s Management Plan –3.3/3.4 Fees and Charges.

Any new system shall not be used until Council has given the applicant approval notice in writing.

Council shall not approve a system that does not have a current accreditation from the Director-General of the NSW Department of Health.

Aerated systems shall continue to have quarterly services from an appropriately qualified service contractor with all reports and documentation held together on site and copies submitted to Council.

2.2 PERFORMANCE OBJECTIVES

As part of this strategy a checklist for the assessment of new OSMS has been provided as an Appendix 2 to this strategy. Each site and proposed system must be considered on its own merits. The system must be appropriate for long term use on the site and meet the following performance objectives:

Prevention of public health risk – contact with effluent should be minimised or preferably eliminated, particularly for children;

Protection of lands – OSMS should not cause deterioration to land or vegetation through soil structure degradation, salinisation, waterlogging, chemical contamination or soil erosion;

Protection of surface and ground waters – OSMS should be selected, sited, designed, constructed, operated and maintained so that surface and groundwater is not contaminated;

Conservation and reuse of resources – the resources in domestic wastewater should be utilised as much as possible within the bounds posed by the other performance objectives; water conservation should be practised and wastewater production should be minimised.

Protection of community amenity – OSMS should not interfere with the quality of life with consideration given to aesthetics, odour, noise, disease vectors and pests.


2.3 EXISTING SYSTEMS

In accordance with the amendments to the Approvals Regulation of the Local Government Act, 1993 all existing on-site sewage management systems require Council approval to operate from 1 July 1999.

An Application Form and Information Sheet is included as Appendices 3 and 4.

Once an application is received, applicants are entitled to continue to operate the system until the application is finally determined. Council will advise applicants of this provision as it may take a considerable period of time to assess all applications.

Council will allocate either a medium/high risk or low risk category to each application (see Appendix 5) based on the information provided in the submission and the location of the facility. Low risk applications will be issued with a five-year approval, subject to generic conditions to encourage responsible operation by users. Medium/high risk applications will be inspected by Council’s officers prior to approval being issued, and conditions of approval and length of the approval will be subject to individual constraints.

2.4 TEMPORARY EXEMPTION FOR PURCHASERS OF LAND

A person who purchases (or otherwise acquires) land on which an OSMS is installed may operate the system without approval for a period of 3 months from the date the land is transferred.

Further, if an application is sought within the first 2 months from the transfer of the land the new owner can continue to operate the OSMS without approval until the application is determined.


3.0 RECOMMENDED FEE STRUCTURE

The recommended fee for an application to register an OSMS will be $30.00.

Council may exempt particular systems from the requirement to be inspected annually after an initial assessment has been made and where there is found to be minimal potential to cause public health or environmental harm.

Any money received from the State Government’s OSM Grants Program will be used to resource strategies outlined in this document.

3.1 FEE STRUCTURE

The initial registration of OSMS will require a substantial allocation of resources to prepare a register, collect the data and input the data into the register. However, subsequent renewals will not require the same level of resources.

The initial registration will also consist of an inspection to determine the current state of the OSMS. It is expected systems will be found in various conditions with poorly performing systems requiring follow up attention. The fee structure should reflect a user pays philosophy.


4.0 EVALUATION AND MONITORING

The evaluation of this strategy will involve the assessment of systems over time to the performance objectives of the strategy and the percentage of systems which meet these objectives.

There will also be an improvement in the standard of service reports for aerated systems and an increase in the general awareness of system owners of the impacts of failing systems.

The strategy, related policies, standards, conditions and the monitoring will be reviewed at least annually to continually improve the overall program.

4.1 PERFORMANCE INDICATORS FOR THE OSMS

Goals Performance Indicator/Target

To register and maintain a database of all existing systems

Number of systems registered each year Proportion of total registered each year Complete registration of 75% of existing

systems within five years To provide a training program for

households using on-site sewage management systems

Provide household information packs to all registered operators within one year

To ensure that land application areas comply with management requirements

Develop and implement effective inspection and enforcement strategies in two years

95% of areas to comply in five years To ensure all septic tanks are inspected by

qualified people at regular intervals and are desludged and maintained as required for effective performance

Adopt and implement maintenance policies for all septic tanks in two years

Determine who is qualified to inspect and certify septic tanks in one year

No fewer that 95% of all septic tanks to be desludged at least once every five years or when necessary

To ensure all septic tank pump out contractors and AWTS service contractors are registered with Council

To develop a list of registered contractors within one year.


5.0 ENFORCEMENT

Council will be working with householders to achieve mutually beneficial improvements, however should circumstances require, adequate powers exist under the provision of the Local Government Act, 1993, to ensure compliance with this strategy.

Council has the power to:

Require action to be taken to bring a sewerage system into compliance with relevant standards or requirements (Order No.5);

Require owners or operators to do or refrain from doing such things to prevent environmental damage or repair environmental damage (Order No. 11);

Cease conducting an activity on a premises (such as operating on OSMS) where the activity is or may constitute a threat to public health or safety (Order No. 15);

Require action to maintain a premises in a healthy condition (Order No. 21);

Control waste on premises where the waste is not being dealt with satisfactorily (Order No. 22);

Require the connection to a public sewer where the sewer is within 75 metres (Order No 24);

Require owners or operators to use or not to use a human waste storage facility (Order No. 25);

Require compliance with an approval (Order No. 30) where considered necessary.


6.0 CONCLUSION

The use of on-site sewage waste systems is an essential service for households in unsewered areas, and when well designed and maintained, can provide a safe, ecologically sustainable sewage management service at a lower cost than reticulated sewage systems. Responsible on-site sewage management is fundamental to the maintenance of independent rural lifestyles.

This document has been produced in accordance with the recent amendments to the Local Government (Approvals) Amendment (Sewage Management) Regulation 1998, which requires individual Councils to develop specific strategies appropriate to local circumstances. These strategies aim to minimise the impact of pollution in the longer term to protect public health and the environment, and to ensure responsible sewage management practices are understood and adopted by the community in the Yass Shire.

The responsibility for safe and effective on-site sewage management lies with the landowners, however Council will play a primary role in ensuring appropriate systems are installed in new developments, manage cumulative impacts and provide support and information to improve sewage management practices.


APPENDIX 1

BASIC PERFORMANCE OBJECTIVES

1. PREVENTION OF HEALTH RISKS

Effluent from primary treatment (ie septic tank) shall only be disposed of through soil absorption or removed from the site;

Contact with effluent from aerated systems shall be minimised or eliminated;

There shall be no contact with effluent from any other type of system;

Treated sewage shall not be used on edible crops;

Surface irrigation shall only occur with disinfected effluent from an aerated system.

2. PROTECTION OF LAND

On-site disposal of effluent shall minimise soil structure degradation; or

Salination;

Waterlogging;

Chemical contamination;

Soil erosion.

3. PROTECTION OF SURFACE WATER AND GROUND WATER

An appropriate OSMS shall be chosen for the site to ensure effluent does not enter surface waters or contaminate ground water.

Effluent disposal areas shall be located no less than 100 metres from a watercourse and 40 metres from a dam or other water body if within its catchment;

The disposal area shall be monitored and managed so that effluent does not escape to the surface or position where the effluent may be washed into a watercourse in a minor rain event;

Adequate consideration shall be given to managing effluent during wet weather by providing wet weather storage.


4. PROTECTION OF COMMUNITY AMENITY

An OSMS shall not cause a nuisance to others and particular attention shall be given to any noise and odours generated;

Disease vectors and other pests such as mosquitoes shall be controlled;

The siting and operation of an OSMS shall not impact on the aesthetics of an area.

5. CONSERVATION AND REUSE OF RESOURCES

The resources in wastewater such as the water and nutrients should be put to the best use possible within the bounds posed by other performance objectives;

Water conservation shall be included in any OSMS management plan.


APPENDIX 2

ASSESSMENT CHECKLIST

1. THE APPLICATION

Site specific considerations.

Are all the required details provided? That is:

- Detailed site plans as required on the application form;

- Details of the system – construction, installation and manufacturers approved details;

- Landscaping details;

- Management plans;

- Service contract and details of contractor (for aerated systems);

- Payment of relevant fees.

What is the minimum effluent application area?

- To calculate the area required refer to Appendix 6 of the Dept of Local Government’s Guidelines

Is wet weather storage required?

- To assist calculating wet area storage refer to Appendix 6 of the Dept of Local Government’s Guidelines On-site Sewage Management for Single Households.

Is there sufficient buffer distances between the system and neighbouring dwellings and other receptors, and between the disposal area and the property boundaries, waterways, significant trees, areas of natural vegetation, buildings, pathways and utility areas of the site?

Is there effective stormwater management on site? That is, is stormwater directed away from the effluent disposal area and is the stormwater disposal area separate and away from the effluent disposal area?

Is there a swimming pool or is a swimming pool likely to be constructed and where will the water from the swimming pool be discharged?

Is the disposal area likely to affect any recreational area?Plan\reports & studys\sewage-strategy

Also refer to Table 6, of Section 4 of the Guidelines (p66)

2. THE SYSTEM

The following considerations should be made:

Is the system one which has been previously approved by the NSW Health Department?

Does the proposed system suit the subject site?

What is the type of water supply to the site?

Are water-efficient devices included in the overall-design of the system?

Is the system size appropriate for the proposed use and potential future use?

- It is necessary to calculate the likely wastewater generation

What area is required for the disposal of effluent to ensure the aim of this strategy is met?

3. THE SITE

Consider the physical characteristics of the subject site. That is:

The size of the site and the proximity to boundaries of the proposed disposal area:

Is there adequate room for buffers to the boundaries, buildings, etc.

The type of soil.

Also refer to Table 6 in Section 4 of the Guidelines (p68) for further information.

The topography of the land;

Proximity to a watercourse;

The vegetation of the subject area;

Is the vegetation local native vegetation?

Is the area grassed or to be grassed and with what type of grass?

Also refer to Table 4 in Section 4 of the Guidelines (p63) for further information

4. NATURE OF THE AREAPlan\reports & studys\sewage-strategy

Establish the extent and nature of any environmentally sensitive areas adjacent to or within the downstream catchment. Consider:

Potable aquifers;

Areas with vulnerable ground water;

Wetlands or other areas of sensitive vegetation or ecology;

Flood liable areas (frequency).

Management Plans should include:

- Service procedures and service contracts (if applicable)

- Procedures for system failures and breakdowns

- Regular monitoring of the tanks, fixtures and fittings, and disposal area checking soil condition and runoff

- Vegetation harvesting in the disposal area

- Stormwater management

- Water conservation considerations

- Exclusion of pets and other animals from the disposal area


APPENDIX 3APPLICATION FORM


A SEWAGE MANAGEMENT FACILITY Local Government Act, 1993 Section 68 Part C Item 5

APPLICATION TO

REGISTER EXISTING SYSTEM INSTALL CONSTRUCT ALTER

FEE: $30.00 PER ASSESSMENTDESCRIPTION OF LAND TO WHICH APPLICATION RELATESStreet No: Street: Locality:Lot(s): Section: DP:Parish: Dimensions Area:

OWNERSHIP AND APPLICANT DETAILSOWNERS NAME: PHONE:

(w) (h)POSTAL ADDRESS: POSTCODE:

Owner’s DeclarationI/We, the undersigned are the owner(s) of the property described in this application and consent to its lodgement.I/We hereby permit a duly authorised officer of the Yass Shire Council to enter the land or premises to carry out inspections and survey or take measurements or photographs as required for the administration of the Act(s), Regulations or Planning Instruments. All owners must sign.APPLICANTS NAME: PHONE:

(w) (h)POSTAL ADDRESS: POSTCODE:

Applicant’s Declaration (Where applicant is not owner)Application is hereby made for approval to install/construct/alter a Sewage Management Facility on the land described above. I/We consent to Yass Shire Council displaying and copying this application and supporting documentation, including designs, for the purpose of obtaining, where necessary, public comment.Signature of Applicant(s) (Company Seal):………………………………………………………………………...Date:……………………………………..

OCCUPIER DETAILS (If not Owner):NAME:

CONTACT PERSON: PHONE:(w) (h)

POSTAL ADDRESS: POSTCODE:

INSTALLATION DETAILS (IF KNOWN)NAME: LICENCE NUMBER:

POSTAL ADDRESS: POSTCODE:

SIGNATURE:

TYPE OF SYSTEM:Aerated Waste Treatment System AWTS) Wet Composting Toilet Septic Tank Waterless Composting Toilet - Transpiration Area Greywater Treatment Device - Absorption Trench Cesspit (Pit Toilet)

Pump out Collection Well Unknown Other

Please specify


Application No………

File No……………….

Fee……………………

Receipt No…………...

Date………………….

………………………………………………………………………………………………………………………………………………………………………………………………………………………………………………


FOR ALL SYSTEMS

What is the property size? ...................................................m2/haHow many people live in the dwelling?...............................................Is the dwelling connected to a reticulated water supply? Yes No

Where is your irrigation area or absorption area? Lawn Permanent landscaped area Garden Other Please specify ...................................................................................................................

How far is the on-site sewage management system from:Dam...................................m Road..................................................m Property Boundary............................mRiver..................................m Major gully system...........................m Well..................................................mCreek.................................m Other sensitive environments...........m Bore..................................................m

(Please specify)

....................................................................................................................................................................................

On what type of soil is your on-site sewage management system located? Sand Loam Clay Sandy Loam Alluvial Gravel

Is the disposal site subject to local or river flooding? ...............................................................................................

FOR EXISTING SYSTEMS

If you have an aerated waste water treatment system and irrigation area:

Is your AWTS maintained on a quarterly basis by a qualified maintenance firm/individual? Yes No

Who maintains your AWTS system?

Name .........................................................................................................................................................................

Address ..................................................................................................... Phone No .......................................

Are there warning signs displayed near the irrigation area? Yes NoIs the main irrigation distribution line buried 100mm andpermanently located? Yes No

How many sprinklers are there? ................................................................................................................................

Are there any apparent leaks in the septic tank? Yes No

Does the disposal area pond, leak or overflow? Yes No N/A

Does irrigated effluent run off from the irrigation area? Yes No N/A

When was the septic tank last pumped out? ..............................................................................................................

Signed: ................................................................(Owner/Occupier)


Return to:

Yass Shire CouncilPO Box 6YASS NSW 2582

APPENDIX 4

INFORMATION SHEET

ON-SITE SEWAGE MANAGEMENT - APPROVAL TO OPERATE

In recent years there have been increasing concerns that on-site sewage management systems have failed to satisfy the expectations of unsewered communities in NSW. Growing evidence suggests that many of these systems do not meet environmental and public health requirements.

In 1997 there were 440 reported cases of Hepatitis A and one death from the consumption of food products contaminated by sewage. As a result of this incident and the subsequent inquiry, the Department of Local Government gazetted the Local Government (Approvals) Amendment (Sewerage Management) Regulation 1998.

This legislation will result in significant changes to the manner in which sewage management systems (formerly known as septic tanks) are installed, managed and maintained.

THE CHANGES

An application to install the system lodged after 6 April 1998 will also require an application to operate the system on a renewable basis. Council will grant the approval to operate the system with conditions to be known as a Sewage Management Approval.

Owners of existing systems will be required to make application to Council to operate their system. This application must be lodged by 30 June 1999.

Council will assess and classify applications to operate systems according to a risk assessment to derive high, medium and low risk categories based on a number of environment and public health criteria. The risk assessment will be used to determine the frequency of renewal of the Sewage Management Approval.

Council is expected to inspect most premises initially and will be working in cooperation with the householder to ensure their system complies with the performance standards of the new regulation. A fee for inspection may be charged to recover Council's costs on a least cost recovery basis.

The Owner

Must lodge the enclosed "approval to operate application" form by 30 June 1999.

To submit detailed plans of the existing system.


Council

Will issue Sewage Management Approval with conditions to continue to operate your system of sewage management.

Will be developing a sewage management strategy to set objectives and prioritise resources for on-site sewage management systems.

Will adopt a partnership approach with owners to ensure systems are upgraded and maintained as required.

For Further Information

The Department of Local Government has issued Guidelines to help Councils, homeowners, developers and others. These Guidelines are called "Environment and Health Protection Guidelines - On-Site sewage management for single households". They are available from the Department of Local Government for $30.00 or accessible on the Internet on: www.dlg.nsw.gov.au./on-site.htm. For further information contact Yass Shire Council on 02 6226 9234.


APPENDIX 5

RISK CATEGORIES

MEDIUM/HIGH RISK

(Site inspection required prior to approval being issued)

Properties of any size located in zones 2(v) Village or Urban and 1(c) Small Holdings.

Properties in all zones with a land area <1 acre (4000 m2).

High density occupations including schools, hospitals, caravan parks, etc.

<100m from a watercourse/lake/water body.

<40m from a dam.

Flood-prone areas.

Applications indicating potential problems exist.

LOW RISK

(Generic 5 year approvals to be issued)

Properties in zone 1(a).

>100m from a watercourse/lake/water body.

>40m from a dam.

Applications indicating the system is operating effectively.

Adopted by Council on 28 June, 2000


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Yass Valley Council Strategy for the Management of onsite sewage systems