A few thoughts:
If water was billed it went through the meter which I assume is not faulty. So council is NOT responsible as their buck stops at the outlet of the water meter (consumer side).
What is municipal insurance? Interesting, never heard of it. It could be attempted to negotiate with the council as it was neither the tenants nor the ower fault (plead unaffordability). If they write of 50%, the tenant can pay 25% and the owner the rest 25%. Or something like that.
If burst pipe was reported immediately how come so much water could still escape? Was the first action not to switch (mains) off? Me thinks even an underground leak would show itself fairly quickly as the water should come up once the soil below is saturated.
If its a complex and common property then they are liable, but this does not sound to be the case.
Are the pipes above ground plastic (sun will destroy) or copper (thieves will take)?
If its a known problem and responsible party (developer?) is over the hills there is little recourse.
A smart owner which saw burst pipes left right and centre should have maybe fixed it BEFORE it bursts and therefore would have saved the water loss.
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