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527 & IWA Publishing 2011 Water Science & Technology 9 63.

3 9 2011

Past, present, and future design of urban drainage


systems with focus on Danish experiences
K. Arnbjerg-Nielsen

ABSTRACT

Climate change will influence the water cycle substantially, and extreme precipitation will become K. Arnbjerg-Nielsen (corresponding author)
Department of Environmental Engineering,
more frequent in many regions in the years to come. How should this fact be incorporated into Technical University of Denmark,
DK-2800 Lyngby,
design of urban drainage systems, if at all? And how important is climate change compared to
Denmark
other changes over time? Based on an analysis of the underlying key drivers of changes that are E-mail: kan@env.dtu.dk

expected to affect urban drainage systems the current problems and their predicted development
over time are presented. One key issue is management of risk and uncertainties and therefore a
framework for design and analysis of urban structures in light of present and future uncertainties
is presented.
Key words 9 climatic changes, design, risk management, urban drainage

INTRODUCTION

Climatic changes will influence the water cycle substantially. rather than rigorous development of a scientific method.
In Scandinavia the predictions are for substantial increases in However, much of the research performed over the last
the maximum discharges from urban areas, due to an increase decades shows that, for typical urban catchments, the perfor-
in the maximum precipitation (Christensen & Christensen mance of the rational method for design situations is good in
2003; Arnbjerg-Nielsen 2006). However, other key inputs into terms of evaluation of both hydrological and hydraulic per-
the design process will also change over time, such as changes formance of sewer systems (Jensen 1990; Lyngfelt 1991;
in the design water levels in receiving waters, modelling Bengtsson & Niemczynowicz 1998). For complicated systems
capabilities, city planning, environmental considerations, more advanced design methods can be utilised; however, they
and changes in social behaviour. all comprise the basic input as outlined in Table 1.
There is a need to forecast all the changes that can be The rate with which the design rules are updated can be
foreseen within the technical lifetime of the urban drainage utilised as an indicator of the lifetime of the design practice.
system in order to identify if climate change will be an In Figure 1 the frequency with which the guidelines are
important aspect of the future design of urban drainage. revised or expanded in terms of new recommendations is
This paper discusses what drivers are likely to influence shown for Denmark. The published guidelines represent
design of urban drainage in the future and thus is an attempt major or minor updates and therefore the most interesting
to predict what pressures the system should be able to cope aspect is the change in frequency of such publications. There
with. The paper draws primarily on Danish examples and seems to be many changes in the 1950s, 1980s and 2000s.
experiences, but the problems are similar to other developed These changes correspond primarily to changes in rainfall
countries and the suggested risk management framework is knowledge, calculation methods, and rainfall knowledge,
generally applicable. respectively.
Recommendations of design rainfall have been issued
since 1928; see Figure 2. Every time a substantial amount of
URBAN DRAINAGE DESIGN new data became available they were processed and turned
into an input to engineering design. Until 1979 measurements
Being a very old and interdisciplinary engineering field, much were scarce and processing was manual and labour–
of the design rules for urban drainage are based on heuristics intensive, but at that time automatic rainfall gauges were

doi: 10.2166/wst.2011.253
528 K. Arnbjerg-Nielsen 9 Past, present, and future design of urban drainage systems with focus on Danish experiences Water Science & Technology 9 63.3 9 2011

Table 1 9 Needed input to the design of urban drainage systems

Simplest methodology State-of-the-art

Forcing func- Design rainfall Continuous calculation of runoff based on precipitation and snowmelt
tion

Assessment of Actual measurements of connected hard surfaces by means of GIS systems


impervious areas

Calculation Rational method Two-dimensional calculation of surface flows, one-dimensional calculation


method of sewer flows and one–three-dimensional calculation of structures

Performance Frequency for Criteria based on ethical and socio-economic consideration. Two concerns arise: Flooding of assets
criteria exceeding pipe and protection of the environment
capacity

installed and data quality checks and processing could be to see what changes have occurred. The climate change signal
made automatically (Jrgensen et al. 1998). Based on these from climate change modelling is typically stated as a change
new gauges, regional models of design rainfall have been over 100 years in order to give a good signal to noise ratio.
constructed that reduce the at-site measurement uncertainty Therefore this section aims at highlighting some of the
substantially and have led to more precise design of the changes that have occurred over the last 100 years. The
structures (Madsen et al. 2002; Madsen et al. 2009). Now points raised in this section of the paper are based on
the dominating uncertainty is a structural uncertainty; the ‘‘grey’’ literature if they were published at all. The objective
anticipated changes in precipitation caused by future climatic is not to give a detailed analysis of the development, but
changes. These have been assessed on the regional scale, but rather to give indications of what changes we may foresee
significant uncertainty remains (Onof & Arnbjerg-Nielsen within urban drainage over the next 100 years.
2009; Larsen et al. 2009; Arnbjerg-Nielsen 2010). Therefore The following statements indicate the amount of techni-
the uncertainties of the predicted rainfall in 2110 are sub- cal and social development over the last 100 years:
stantially larger than the present uncertainty.
 Automobiles were invented; maximum speed around
10 km/h. The main means of transportation were horse
carriages and walking.
LOOKING BACK TO PREDICT THE FUTURE

When incorporating climate change impacts into future


design of urban drainage it is helpful to look into the past

Figure 2 9 Change in recommended design storm intensities for a two year return period in
Denmark based on measurements and predicted impacts of climate change. The
horizontal line from 1947 to 1999 indicates the value typically used in that
Figure 1 9 The number of published guidelines for design on urban drainage systems in period. Since 1999 regionalised estimates have been used. The assessed design
Denmark since 1950. The full list of guidelines, including downloadable copies, is value for 2010 is based on analysis of outputs from regional climate change
available at WPC (2010). models (Arnbjerg-Nielsen 2010).
529 K. Arnbjerg-Nielsen 9 Past, present, and future design of urban drainage systems with focus on Danish experiences Water Science & Technology 9 63.3 9 2011

 Water supply systems and drainage systems were under comes down to the number of humans inhabiting the planet,
construction, with parts of cities lacking access to tap the (finite) resources each of these humans consumes and
water. disposes of, and how we interact with the planet.
 Water closets were not allowed due to the need for
fertilisers in the farming industry. Number of humans and economic wealth

The antiquarian nature of these examples indicates that


The scenarios developed and illustrated in Nakicenovic &
over a 100 year period substantial changes have occurred in
Swart (2000) divide the future development paths into four
both technical and social systems. As a result it is necessary to
scenario storylines under which economic growth and
try to identify approximately how long a time horizon each of
human population can be predicted. The storylines are devel-
the components has and compare that to the expected tech-
oped based on two main axes of development paths: eco-
nical life times of the assets of urban drainage; see Table 2.
nomic (A) – environmental (B) and global (1) – regional (2).
From the table it may be concluded that only the pipes and
As shown in Figure 3 the predicted development paths differ
manholes of the sewer system have a technical lifetime that is
substantially between the scenario families. It is interesting to
comparable to that of anticipated climatic changes due to
note that, with the assumptions underlying the ‘‘global’’
human greenhouse gas emissions. Yet the cost of constructing
scenario families, the predicted development is the most
these simple assets constitutes the vast majority of the overall
positive from a welfare economic point of view, with the
costs of urban drainage while increasing pipe sizes during
smallest global population and the highest increase in GDP.
construction or renovation only bears small extra costs. There-
The correlation between development scenario and carbon
fore the design of the pipes and manholes must take into
emissions is poor, partly because the A1 scenario covers the
account the future changes in design rainfall, since construc-
entire range of possible emission paths.
tion of too small or too large a sewer system will have an
impact on the long-term performance of urban drainage.
Technological change

In western societies one of the key drivers of technological


CLIMATE CHANGE AS THE MAIN DRIVER change is incremental innovation, driven by market econ-
INFLUENCING FUTURE PERFORMANCE OF omy. However, in the context of urban drainage there has
URBAN DRAINAGE SYSTEMS been little development from the development of the
rational method around 1850 until the arising of environ-
Climate change is likely to be a significant driver of change mental concerns and new computational methods more
and will influence all important aspects of human life for than 100 years later. The first development of environmen-
current and coming generations. In design of urban drainage tal legislation on the European scale was the Bathing
systems the main direct effect will be a change of the design Water Directive (European Union 1976), happening con-
rainfall intensity. However, due to the complex and dynamic currently with the development of computer models for
relationship between climate and human usage a broader advanced numerical simulation of storm water runoff such
view can be adopted, as in the development of the Inter- as SWMM (US EPA 2010). During the last decades devel-
governmental Panel on Climate Change scenarios of future opment of water treatment technologies has emerged
climate change, where the emission drivers have been studied quickly, and within a foreseeable future the choice of
carefully (Nakicenovic & Swart 2000). In their summary for technology will be based on the needed water quality and
policymakers, Nakicenovic and Swart state the following: available energy rather than emission criteria based on the
‘‘This Report reinforces our understanding that the main raw water quality. This means that closed loop water cycles
driving forces of future greenhouse gas trajectories will con- can be developed on municipal or smaller scales, which is
tinue to be demographic change, social and economic devel- already taking place in Singapore (Qin et al. 2004). The
opment, and the rate and direction of technological change.’’ investments represented in existing urban drainage
As such, the climate change predictions are comparable to structure (see Table 2) represents a lock-in and thus the
setting up a predator–prey relationship between the dominat- introduction of dramatically new types of infrastructure will
ing species on the planet (humans) and how the ecosystem on either call for high investment costs or must await depre-
the planet reacts to and interacts with the impacts of this ciation of existing infrastructure over the traditionally
species. The underlying assumption of climate change then anticipated technical lifetimes.
530 K. Arnbjerg-Nielsen 9 Past, present, and future design of urban drainage systems with focus on Danish experiences Water Science & Technology 9 63.3 9 2011

Table 2 9 Crude assessments of the expected lifetimes of the inputs to urban drainage design and the designed assets. A short expected lifetime corresponds to less than 10–15 years, a long
lifetime corresponds to more than 50–60 years

Expected lifetime Comment

Forcing functions

Design rainfall Medium – long The WMO reporting system uses a 30 year averaging to account for
climate variability. The precipitation change in climate change models
usually corresponds to a change over 50–100 years.

Connected area Medium Small changes in downtown districts, large in newly urbanised areas.

Calculation method

Hydraulic models Medium Application of hydraulic modelling of sewers seems to have reached an
end-point. Development of hydraulic modelling of other types of flow
continues. Time constant is difficult to assess due to rapid development
of computational speed.

Performance criteria

Flooding Medium There has been a low awareness of this performance criterion until a
decade ago. It will depend on social factors how this criterion will
develop due to the ability to model the risk of flooding much better in
the future.

Environmental objectives Short The environmental legislation changes every 5–10 years, setting new
targets.

Assets to be designed

Sewers: pipes and manholes Long Concrete pipes are on average more than 60 years old before first
maintenance of physical deterioration and more than 80 years old
before replacement is needed.

RTC Short Most components and communication standards change within a decade.

Pumps and other mechanical equipment Short Small pumps may have longer lifetimes.

Detention ponds Short–medium The structures themselves have a high technical lifetime whereas the
services they provide change based on the performance criteria that
change rapidly.

Social change planning is being investigated, but no firm conclusions can


be made yet as to where the development will lead us
Social change is difficult to model and understand even in (Geldof & Stahre 2005; Wong & Brown 2010). Development
hindsight, which makes it very difficult indeed to predict of virtual social networks on the internet and the availabil-
future changes in social behaviour. Nevertheless, these ity of much more focussed news services lead to more
social changes are important to predict as they are vital to diverse societies within nations (Friedman 2007). This
assessing changes in performance criteria. The rapid change trend is likely to continue in the future, putting more
in environmental protection legislation has mainly been emphasis on narratives and story-telling rather than engi-
driven by a change in perception of how humans interact neering science. This way the engineer will become one of
with nature, and is therefore a result of social change. many stakeholders and the solutions must be adapted to
Currently inclusion of social aspects into urban drainage common targets.
531 K. Arnbjerg-Nielsen 9 Past, present, and future design of urban drainage systems with focus on Danish experiences Water Science & Technology 9 63.3 9 2011

Figure 3 9 Mean values of predicted development of human population and global economic wealth depending on scenario group. Data adapted from Nakicenovic & Swart (2000).

HOW TO COPE WITH AND INCORPORATE THE will only persist in the developed world as long as the
DRIVERS IN DESIGN OF URBAN DRAINAGE deterioration does not lead to an increase in the disease
SYSTEMS burden and/or a significant reduction in the level of service
provided by the utility.
Cost recovery for utilities
One of the concerns of utilities globally is how to achieve a Modelling
sustainable cost recovery of their services. Indeed, there has
been a deterioration of the urban drainage systems over the As described in Table 1, the rational method was utilised for
last decades (Pollert et al. 2005; Chocat et al. 2007) and there more than a century until new computational methods
is good evidence that the value of the assets in urban drainage enabled more detailed calculations. In 1984 these new
is decreasing due to lack of maintenance (e.g. Danish EPA calculation methods were implemented into the Danish
2004). This finding is supported by several local and national code of conduct (Jensen 1984) by introducing four standard
willingness-to-pay studies that indicate that increased costs levels of calculation according to the complexity of the
are difficult to recover. However, the deterioration cannot yet sewer system to be designed. A fifth level was indicated as
be identified by the public, either in terms of visible deteriora- the ultimate calculation goal, denoted the ‘‘infinity level’’.
tion, or in terms of reduced performance of the sewer The ‘‘infinity level’’ consisted of calculation of the perfor-
systems. Once the deterioration becomes visible in terms of mance of a large sewer system based on a long historical
more frequent failures then the necessary resources will be rain series with a 1-dimensional dynamical simulation tool.
allocated rapidly. One argument is economic; even in the Less than 20 years later, several commercial software
poorest regions of the world it is cost effective to install and packages are able to calculate this ‘‘infinity level’’ automa-
maintain effective sanitation systems, and the return of the tically and process the output into easily understandable
investment supersedes the return of water supply (Hutton tables and graphs. Currently much more computationally
et al. 2007). A cost-benefit analysis of upgrading of sewer demanding calculations are commercially available, where
systems in order to maintain service levels of flooding has the 1-dimensional flow in the sewer system is coupled
also indicated a very high rate of return based on a case study dynamically with 2-dimensional flow on the city surface
in Denmark (Arnbjerg-Nielsen & Fleischer 2009). to address exceedance flows. The main reason for this is an
Human health is another reason why cost recovery issues increase in computational speed of roughly a factor of a
will be solved when the service levels decrease; even small million over these three decades (Le Treut et al. 2007). On
increases in exposure to unsafe water, sanitation, and hygiene the time scale of climate change we must therefore foresee a
give rise to significantly higher risk of diarrhoeal diseases, shift in the modelling paradigm; the main limitation will not
which is an overall cost to society (Prüss-Üstün et al. 2004). be computer calculation speed, but rather to identify the
For this reason sanitation is one of the targets specified in type of model that most appropriately will give a robust
the United Nations Millennium Development Goals (United answer to the problem at hand. That might very well be the
Nations 2009) and for the same reason cost recovery issues rational method in some cases, but in other cases more
532 K. Arnbjerg-Nielsen 9 Past, present, and future design of urban drainage systems with focus on Danish experiences Water Science & Technology 9 63.3 9 2011

complicated models will be utilised, hopefully resulting in


cities that are more resilient to rainfall extremes.

Management of uncertainties and risks

Traditionally the criteria for flood protection have focussed


on assessment of a design value as close to the mean as
possible, i.e. obtaining a service level close to the stipulated
design. The same principle has been applied to the environ-
mental field by setting up allowable discharges for urban
drainage. However, the field of environmental research is Figure 4 9 A design concept must predict both the direction and magnitude of future
headed towards a more risk-based approach, notably by the changes and the uncertainties related to the prediction. The engineer will
typically choose design values based on experience and a mathematical
application of the precautionary principle (United Nations
framework for management of risks and uncertainties. Interaction with other
1992; European Commission 2000). It seems a reasonable stakeholders may sometimes lead to designs outside the ‘‘comfort zone’’ of the
engineering tradition. In general some scenario predictions will result in lower
prediction that these principles will also be incorporated
design values; however, this is not the case for the processes discussed for
into the formulation of performance criteria for urban drai- Northern Europe.
nage. In fact, some of these principles for incorporation of
uncertainties have already been incorporated into Danish
design practice (Harremoës et al. 2005), based on the princi-
ples outlined in Walker et al. (2003). In brief, the method SUGGESTED FRAMEWORK FOR DESIGN
describes how to assess the overall uncertainty of design of PARAMETERS FOR CONSTRUCTION AND
urban drainage structures by evaluating statistical and other RENOVATION OF URBAN DRAINAGE
uncertainties and describe them in a simple framework. STRUCTURES INCORPORATING UNCERTAINTIES
Having assessed the overall uncertainty the actual design
level should then be selected as the higher-than-median- While the concept of a design storm of 2, 10, or 100 years is a
percentile of the stipulated design criteria. Based on an well known concept to engineers, it proves difficult to com-
analysis of costs of errors in the design phase in a few municate this concept to other professions and society in
urban catchments the 84th percentile was suggested, indicat- general, especially when an area has experienced several
ing that only 16% of all designs will result in lack of extensive floods during a short period of time. Therefore
compliance with the stipulated criteria. this concept should perhaps be updated to allow a terminol-
Incorporation of uncertainties and risks into the design ogy that directly relates observations to acceptable ‘‘beha-
process will change the codes of conduct from recommend- viour’’ by weather and still allows natural variation of the
ing a specific value, e.g. a design flow of 140 L/s, to a check rainfall extremes.
list stipulating what factors will influence the design. This will The concept for design and analysis of systems to comply
lead to an interval of design flows, say 100–200 L/s, depend- with given performance criteria is shown in Figure 5. The
ing on the mean design value, current and future uncertain- engineers spend much time in assessing the true but
ties, forecast horizon, and the consequence of exceeding the unknown design value of all inputs by detailed analysis of
design criteria for the choice of technology. This will lead to a all measured data and then design a system that complies
‘‘comfort zone’’ of design values for the engineer, where his/ with the performance criteria by ensuring that the true, but
her experience indicates that this is a reasonable design. This unknown, damage level is at least on the same level as the
comfort zone is indicated in Figure 4. Communication with design value. Over time the design value may change due to
other stakeholders will sometimes lead to a design that is changes in the underlying process or collection of more
outside the engineering comfort zone, by choosing values that measurements, as indicated in Figure 2. However, the
lead to designs that are non-optimal from an engineering damage level also changes over time due to changes in
point of view, either because there is a high probability that land use, degree of paved areas, urban development,
the performance criteria will not be met or because the increased use of low impact design, upgrading of the sewer
structure to be designed is not produced in an efficient system, etc. The main point of the figure is to illustrate that
manner. the engineers spend much time on assessing the true value of
533 K. Arnbjerg-Nielsen 9 Past, present, and future design of urban drainage systems with focus on Danish experiences Water Science & Technology 9 63.3 9 2011

urban drainage system complies with the performance require-


ment with a high degree of certainty. This corresponds to an
extra protection for the consumers relative to the stipulated
performance criteria. Similarly 2) is aimed at ensuring that it
should be made more certain that the urban drainage system is
not upgraded simply because of random fluctuations in the
frequency of exceedances, but should be due to a high prob-
ability of non-compliance of the performance criteria.
The weighing of the uncertainties in 3) is therefore a
connection between the two types of errors that can occur
in actual situations: apparent non-compliance in a system that
actually complies with the requirements and apparent com-
Figure 5 9 The random process of maximum annual extreme rainfall is illustrated by the pliance by a system that actually is not complying. The
continuous black line. The thick black line indicates the true, but unknown,
weighing between the two types of errors can be done by
design value for exceeding once in ten years. The broken line indicates the true,
but unknown, value for when damage will occur in the catchment. means of economic analysis of the cost of errors for the two
situations. In the following a more simple approach will be
adopted, assuming that the errors have equal weight. This
corresponds to choosing a common safety level for making
the thick black line while the general public (and other erroneous choices.
professionals) only have interest in urban drainage when
the broken line is exceeded by observations. Assessing and managing inherent uncertainties in
As illustrated in Figure 5, sometimes frequent excee- design and analysis of urban drainage systems
dances of the true unknown damage level occur in existing
systems, even though the system complies with the perfor- The objective is to establish a framework that can assess the
mance criteria. An example of such behaviour is illustrated in probability distribution of the broken line relative to the thick
Figure 5 in the period from 1985 to 2000. These exceedances black line. Harremoës et al. (2005) suggested a methodology
are not due to actual non-compliance, but due to natural based on Walker et al. (2003). This methodology is adopted
variation in the rainfall process. When these situations occur with some refinement to yield the following equation:
there will be a heated debate between the urban drainage
professionals and other professions. The urban professional qdesign ¼ frain  fclimate  fpaved area  fmodel  qmean
might try to argue that the storms correspond to a 30, 20, 25,
and 15 year storm, respectively, which then makes all the where
damage acceptable from an engineering point of view. How- frain denotes the systematic difference between a historical
ever, to society as a whole this type of information is rain series and the regional precipitation model for the
perceived as bad excuses rather than a scientific explanation. catchment (used only if a historical rainfall series is used as
Therefore a framework that specifically addresses both the input in the calculations). This is a bias-correction;
needs of the engineering professionals and the needs of the fclimate denotes the predicted most likely relative change
general public is needed. The framework should specifically in extreme precipitation for the given duration and return
address the uncertainties of both lines in Figure 5. The period due to climate change;
framework thus consists of the following components: fpaved area denotes the predicted most likely relative
change in connected paved area;
1. A methodology for assessing and managing the inherent
fmodel denotes the model uncertainty related to setting up
uncertainties in the design and analysis of urban drainage;
the hydraulic and hydrologic models of the catchment;
2. A methodology for choosing when the urban drainage
qmean denotes the best estimate of the design flow, corre-
capacity should be upgraded based on the inherent uncer-
sponding to the red curve in Figure 5.
tainties due to natural variation;
Each of the f(?) denotes an uncertainty, a bias, or an
3. A weighing of the uncertainties for the two situations.
anticipated change over time that should be taken into
In general 1) is aimed at ensuring that engineers add a account in the design process. Hansen & Liu (2004) made
safety margin in the design, thus implicitly ensuring that the an analysis of a few catchments and showed that for these
534 K. Arnbjerg-Nielsen 9 Past, present, and future design of urban drainage systems with focus on Danish experiences Water Science & Technology 9 63.3 9 2011

Table 3 9 Calculated minimum observation periods required for complying with a predict and incorporate not only the present, but also the
requirement of being at least 16% confident that the true rate of occurrences
is one in 10 years future conditions in order to make an optimal and robust
design of the urban drainage systems. The need for careful
Number of exceedances Three times Four times Five times evaluation of current and future conditions and resilience in
choice of solutions is greatest for the assets with long techni-
Minimum observation period (year) 14 21 29
cal lifetimes, whereas assets with short technical lifetimes can
Mean intensity in period (year) 4.6 5.3 5.8 be optimised with less attention to long-term performance
and resilience.
Regardless of the technical lifetime, there is a need to
catchments a factor of 1.23 corresponds approximately to one compensate for more complex decision making by improving
times the standard deviation of the model uncertainty based communication within engineering fields and with other
on the methodology outlined by Arnbjerg-Nielsen & Harre- scientific fields and society in general. It is of paramount
moës (1996). The correction factor frain is a simple bias importance to incorporate principles of risk management into
correction factor that should be applied only if there seems design of infrastructure such as urban drainage systems. This
to be a systematic difference between the historical rain series way focus is moved from a detailed optimisation of design
used for the design and the regional model for the area. The under current assumptions to a more robust assessment of the
last two correction factors are scenario uncertainties that will consequences of errors in the description of, or future
evolve over time following a path as indicated in Figure 4. changes in, forcing functions, computational methods, and
performance criteria.
Choosing when to upgrade an urban drainage system
based on inherent natural variation

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