Implementing the EU Water Framework Directive: Experiences of Participatory Planning in the Ribble Basin,North West England

Abstract

The Water Framework Directive (WFD) is potentially the most significant piece of water management legislation to be developed by the European Union (EU) in the last forty years. Whilst water legislation is already regarded by many people as the ‘gold plating’ of EU environmental policy, many of the previous regulations and policies have focussed on specific point and non-point source water quality problems and have stipulated stringent standards to be achieved within specified time limits. In sharp contrast, the WFD aims to establish a planning and management framework for sustainable use of water and the ecological restoration of entire river systems, many of which do not fit neatly within the political or administrative boundaries of the Member States. Public participation in planning and management decisions is a key aspect of the WFD. This paper describes the specific requirements of the WFD for public participation and examines their implementation in the Ribble basin in North West England. The Ribble is part of a EU river basin network designed to test the WFD implementation guidelines issued by the European Commission. Particular challenges associated with engaging stakeholders in WFD implementation are highlighted and recommendations for future practice are offered.     

WFD and agriculture activity of the EU: first linkages between the CAP and the WFD at EU level.

Within the "WFD and agriculture activity" both communities agreed to co-operate during implementation of the Water Framework Directive (WFD) and further development of the Common Agricultural Policy (CAP) at EU, Commission and the Member States levels. In intensive discussions including two congresses and biannual working group meetings, seven information reports were produced. Rural Development programmes are unanimously considered to be very powerful instrument to support WFD implementation. However, limited budgets, combined with the large extent of agricultural pressures will considerably restrain the results this instrument might deliver. Limited effects are also expected from the cross-compliance standards, mainly because: the standards do not cover all WFD aspects, and the existing legislation is not implemented with the same rigour in all the Member States. WFD provides additional powerful tools (River Basin Management Planning and Water Pricing discussion) to improve the situation, but the timetables of WFD and CAP do not fit each other. The activity should be continued with an intensive discussion on case and success stories in all the mentioned tools informing both policy areas for the planned evaluation of cross-compliance in 2007, and a mid-term evaluation on rural development in 2009.     

Impacts of Combined Technical and Economic Measures on Water Saving in Agriculture under Water Availability Uncertainty

In Emilia Romagna region (northern Italy), the Water Protection Plan (WPP) — a tool designed to reach the objectives of the Water Framework Directive — established different measures to achieve a good quantitative status of water bodies. The objective of this study is to evaluate the combined economic, agronomic and environmental impacts of four measures of the WPP on the “Renana” reclamation and irrigation scheme, and to quantify the water conservation in agriculture under the uncertainty of water availability. To this purpose, a mathematical stochastic model able to represent uncertainty in water availability was designed and implemented. Some data were collected from farms, and local sources were used as well to test the model. Each analyzed measure was simulated in a single scenario, and subsequently combined with other measures. The performed simulations are the following: application of volumetric water pricing (Scenario WFD1), awarding incentives for farmers to improve on-farm irrigation efficiency (Scenario WFD2a), combination of WFD1 and WFD2a (Scenario WFD2b), reduction of water abstraction in case of water shortage (Scenario WFD3a), combination of WFD1 and WFD3a (Scenario WFD3b), increasing distribution efficiency in the channel system (Scenario WFD4a) and combination of WFD1 and WFD4a (Scenario WFD4b). Results have shown that scenarios WFD2a and WFD4a generate a higher income for farmers and produce a positive ecological impact (water use and soil cover) but tend to increase total water use. Scenarios WFD1 and WFD3a have the opposite effects since they reduce farmers’ income but decrease water use as well. Only WFD1 could be favorable for the Board governing the scheme (RIB) in terms of economic returns. Finally, results have shown that combined scenarios WFD2b and WFD4b, respectively, could modify the trade-off between economic and environmental objectives and could be more effective since they significantly reduce water consumption and minimize losses in farmers’ income.     

Easier Said Than Done? The Establishment of Baseline Groundwater Conditions for the Implementation of the Water Framework Directive in Spain

The European Union (EU) Water Framework Directive (WFD) requires EU countries to achieve good status of all their waters by 2015. This should be achieved through the implementation of river basin management plans (RBMPs), which in turn are based on water resources baseline data. While it is too soon to assess the WFD effectiveness, the planning process has contributed to identify possible pitfalls of the WFD design and has provided an opportunity to enhance the knowledge of European water resources. Groundwater plays a strategic role in Spain’s economy and also in the maintenance of its aquatic ecosystems, making that country an excellent testing ground for getting an insight into the definition of baseline groundwater under the WFD mandate. This paper presents the results of compiling the information produced for the RBMPs to attain an overall picture at a national scale. In doing so, it examines some of the methodological and technical choices involved in the definition of a baseline for groundwater, assessing their practical consequences on groundwater management. This paper argues that having baseline figures for the RBMPs required compromises or shortcuts to be taken. Undoubtedly, the process leading to the first WFD Plans has been an extremely enriching learning process, but it leaves questions unanswered. The periodic (6 year) RBMP revision should become an opportunity to revisit and better tune the baseline conditions established during this first planning cycle.     

Lake management in Italy: the implications of the Water Framework Directive

This paper constitutes the first consideration of the implications of the lake management in Italy arising from the requirements of the Water Framework Directive (WFD), in comparison to the provisions of existing national legislation. As a matter of fact, the Italian decrees anticipated the principles of the WFD and have substantially modified the legislation in the field of water in Italy. Important changes were introduced, both in the monitoring systems and in the classification methods for surface waters. The environmental quality status will be determined not only by monitoring the aqueous matrix, but also the sediment and the biota. The new WFD is the major piece of European Union (EU) legislation with environment at its core; it will guide the efforts for attaining a sustainable aquatic environment in the years to come. In the WFD one can see elements from all the different forces that guided the reform of EU water policy: environmental protection, deregulation and subsidiarity. Moreover, elements of the economic instruments approach (introduction of the cost recovery principle), quantitative concerns (setting of minimum flow objectives for rivers and abstraction limits for ground waters) and the quest for integration (river basin management with representation of all stakeholders) are all reflected in the WFD. The paper summarizes the present condition of the most important lakes in the Italian lake district and also highlights the case of Lake Varese, representing a unique case of lake management in Italy. Preliminary results show that there are very few examples dealing with the elements thought appropriate to lake water assessment as required by the WFD. The application of the objectives of the type specified is a largely unknown issue.     

Potential Significance of the EU Water Framework Directive to China

The European Union Water Framework Directive (EU WFD) is a unique piece of legislation, which may be of great significance to on-going reforms of the water sector in China. First and foremost it unites 27 European member states behind a common goal, which is “to achieve good chemical and ecological status” of all water bodies across the EU. Other significant characteristics of the EU WFD are that (1) it sets a clear timeframe with a number of time-bound actions for member states to achieve the goal, but leaves it to member states to achieve this goal in a decentralised process, which makes allowance for the different socio-economic conditions, (2) it defines the river basin as the management unit for water thus departing with the traditional fragmented management by administrative units and it appoints a single competent authority for water management within each river basin, thus facilitating resolution of sector conflicts, (3) it requires a financial and economic analysis of the costs of implementing the EU WFD to enable decision makers to assess whether the required improvements are affordable to government and to the population within the river basin, and (4) it requires a structured process for information and consultation with stakeholders and the public throughout the planning and implementation process.     

Public Participation in European Water Management: from Theory to Practice

Public and stakeholder participation in water management is a crucial element in the EU Water Framework Directive (WFD). Theoretically, the WFD identifies several advantages of public participation, such as the better use of knowledge and experiences from different stakeholders, increases in public acceptance and reduced litigation, delays, and inefficiencies in implementation. However, few studies have gone as deep, in practical terms, as the existing difficulty to introduce public participation in water management. The aim of this study was to cover this issue. It aims to conduct a literature review on public participation looking for successful social innovation experiences by the EU member states and also for the main limitations and difficulties of implementation detailing the study of the Spanish case.     

不同反滤准则及其在宁南山区水库设计中的应用

渗流作用是引起土石坝破坏的主要原因之一,合理设置反滤层能有效控制土体发生渗透破坏。为评价不同反滤准则在以黄土为筑坝材料的土坝中的效果,探讨黄土丘陵山区水利工程反滤系统适宜的设计准则,结合宁夏南部山区乔家沟水库土坝反滤系统设计案例,在反滤料级配曲线的上、下包线范围内平行选取4条不同的级配曲线,通过理论计算得出不同反滤准则所需的反滤料和被保护土料的特征粒径,对比分析了国内外7种反滤准则在该工程中的适用性。结果表明:当被保护土料为粉质黏性黄土时,我国现行碾压式土石坝设计规范（SL 274—2001）反滤准则在该工程反滤料级配曲线的上下包线内适用范围大、效果好,能同时满足滤土与排水条件。     

Identification of significant pressures and impacts upon receiving waters.

This study gives a review on the process of identification of significant pressures and impacts, which is an important part of river basin planning and in particular for implementing the EU Water Framework Directive (WFD) (2000/60/EC). The questions: what is a "significant pressure" in terms of the WFD? which sources and driving forces have to be regarded? which data can be used? which pressure on a water body is significant? and which implications and requirements result from the identification process?--should be considered. The European Commission requires reporting from all Member States about the status of the water bodies within a river basin district and about the risk of failing the environmental objectives by the end of 2004. Therefore, a number of prevailing projects across Europe aim to develop a guideline on a common understanding of the most effective approach towards the identification of significant anthropogenic pressures, and the analysis of potential impacts including the identification of appropriate tools and models. In such a guideline suitable and intelligent criteria have to be developed in order to enable a uniform assessment of the anthropogenic pressures within a river basin district.     

Biodegradation of chlorobenzene in a constructed wetland treating contaminated groundwater.

Monochlorobenzene (MCB) is an important groundwater contaminant world-wide. In this study, a horizontal subsurface flow constructed wetland with an integrated water compartment was fed with MCB contaminated groundwater originating from the local aquifer. Analysis of spatial concentration dynamics of MCB and oxygen was combined with isotope composition analysis of MCB for assessing in situ biodegradation. Removal of MCB was most effective in the upper layer of the soil filter, reaching up to 77.1%. Trace oxygen concentrations below 0.16 mg L(-1) were observed throughout the wetland transect, suggesting a considerable limitation of aerobic microbial MCB degradation. Enrichment of 13C in the residual MCB fraction at increasing distance from the inflow point indicated microbial MCB degradation in the wetland. The observed isotope shift was higher than expected for aerobic MCB degradation and thus pointed out a significant contribution of an anaerobic degradation pathway to the overall biodegradation.     

Suitability of Water Quality Indices for Application in Lakes in the Mediterranean

Water quality indices (WQIs) are efficient and powerful tools for evaluating, organising and communicating information on the overall quality of surface water bodies. The use of these indices may be very helpful in evaluating the water quality of aquatic systems in relation to the EU Water Framework Directive (WFD). In this study, two well-known water quality indices have been selected for evaluation: the CCME (Canadian Council of Ministers of the Environment) and NSF (National Sanitation Foundation). These WQIs were applied in the Polyphytos reservoir-Aliakmon river in Greece where monthly water quality data were available for the period June 2004 to May 2005. The available dataset included values of the following parameters: water depth, water temperature, dissolved oxygen, electrical conductivity, pH, transparency (Secchi disk depth), BOD₅, COD, total phosphorus (TP), chlorophyll-a (Chl-a), ammonium (NH₄ ⁺), nitrite (NO₂ ^?) and nitrate (NO₃ ^?), and total Κjeldahl nitrogen (TKN). The application of the two WQIs was made using specialised, freely available software-tools. A comparison of their performance and a qualitative judgement on their suitability on expressing the quality of a surface water body is presented. The classification results were compared with those obtained by the WFD-ECOFRAME approach of the EU. Based on the applicability and drawbacks of the examined indices, useful conclusions were derived and discussed. Among others, it is concluded that the NSF-WQI is a more robust index and produces a classification nearer that of the WFD-ECOFRAME approach when compared to the CCME-WQI.     

Nitrogen loss in a nitrifying rotating contactor treating ammonium rich leachate without organic carbon

Extended loss (up to 70%) of nitrogen is observed in a nitrifying rotating biological contactor (RBC) treating ammonium - rich leachate of a hazardous waste landfill. Due to pretreatment (flocculation, BOD-removal, activated carbon) DOC was less than 20 mg/l so heterotrophic denitrification can be excluded. The nitrification rate reaches 3-4 g NH₄-N m⁻² d⁻¹ at a pH of 7-7.3 in the first two of three RBC compartments. An increasing partial pressure of oxygen and ammonium concentration favor nitrogen removal over ammonium oxidation. The reduction of nitrite produced in the aerobic biofilm layer close to the surface might therefore be coupled with ammonium oxidation and takes place in the deeper or temporarily anoxic layer of the biofilm.     

Towards good ecological status of surface waters in Europe--interpretation and harmonisation of the concept.

The Water Framework Directive (WFD) is a new legislative framework to manage, use, protect, and restore surface water and groundwater resources and coastal waters in the European Union (EU). The aim is to ensure sustainable water management and to reach good water quality by 2015. The assessment of the ecological status and setting of the practical management goals require several steps. The process has started with the characterisation of the river basins including identification of surface water bodies and types, and identification of significant anthropogenic pressures and impacts. The water bodies will be classified in five quality classes (high, good, moderate, poor, bad) based on the Ecological Quality Ratio, which is a ratio between reference conditions and measured status of the biological quality elements. The normative criteria for high, good and moderate ecological status described in the WFD need to be made operational because those will be used to set the practical quality targets for surface water management. National ecological assessment systems and classifications will be harmonised through the WFD intercalibration exercise in order to ensure an equal level of ambition in achieving good surface waters status all over Europe.     

A Cost-Effectiveness Analysis of Water-Saving Measures for the Water Framework Directive: the Case of the Guadalquivir River Basin in Southern Spain

The aim of this paper is to contribute to the still scarce literature on Cost-Effectiveness Analysis (CEA) in the context of the EU Water Framework Directive (WFD) in water scarce areas illustrated through a case study in Southern Spain. CEA is the preferred method to select policy measures to achieve the good ecological status of water bodies as prescribed by the WFD. It generates a ranking of the measures, according to the ratio between the equivalent annual cost and the reduction of impacts, to select the measures to be included in the Program of Measures (PoM). Here, the water-saving measures discussed in the public participation process for the elaboration of the PoM for the Guadalquivir River Basin are analysed using CEA. A methodological approach, including uncertainty for cost and efficiency of measures is proposed. A comparison between pressure and impact analysis of the effectiveness of measures shows that, in the context of the WFD, CEA should be based on the impact of the measures rather than on the pressure reduction, as the latter can lead to a misleading ranking of the water-saving measures.     

Sampling and Modeling Approaches to Assess Water Quality Impacts of Combined Sewer Overflows—The Importance of a Watershed Perspective

As part of the planning effort for combined sewer overflow (CSO) abatement, a combination of sampling and mathematical modeling was used to characterize both CSO and receiving water quality in the city of Buffalo, NY. Samples collected during storm events showed that while CSOs within the city boundary are a source of fecal coliform to the Buffalo River, higher concentrations enter the river from the upper watershed, upstream of the city. Loading estimates of Pb, Zn, Cu, and Hg were made for design storms and on an annual basis using a combined model and sampling approach. While the metals loads were quantifiable from the CSOs, the loads associated with the upper watershed discharge were greater, for example, by a factor of 3 to 18 times for the design storms. Continuous, automated sampling of conventional parameters at 15 minute time steps indicated that the river experienced non-compliant periods for dissolved oxygen. In some cases, low dissolved oxygen levels may be associated with CSO inputs, but the hydraulics of the river system also had an important negative impact on dissolved oxygen. In developing CSO abatement options for the Buffalo River, it is essential to recognize that there are other significant contaminant sources in the upper watershed that will continue to negatively impact water quality.     

European Union policy for improving drought preparedness and mitigation

The European Water Framework Directive 2000/60 (WFD), does not appear fully adequate to address drought risk. A Group on Drought and Water Scarcity has developed some proposals to improve the strategy for coping with drought and water scarcity issues. The main proposal consists in supplementing the River Basin Management indicated by the WFD with a specific Drought Management (sub)Plan aimed at minimizing the negative drought impacts on the economy, society and the environment. Also a list of indicators to identify prolonged droughts which permit a temporary suspension of the requirements of good ecological status in water bodies has been proposed. Some specific recommendations that the EU should issue to national governments, are discussed. Several criteria are suggested to achieve an effective drought management strategy.     

Analysis and evaluation of large‐scale river restoration planning in Germany to better link river research and management

In December 2008, the draft programmes of measures (PoM) have been published in the EU member states, which list the measures that will be taken to enhance the ecological status of surface and groundwater bodies, and to reach the environmental objectives of the EU‐Water Framework Directive (WFD). We have analysed the German PoM to identify the main pressures and the restoration measures water managers planned to implement in streams and rivers. The objective was to evaluate the PoM and to identify the main, practically relevant knowledge gaps in river management on which applied river research should focus on. In general, the selection of measures in the PoM was reasonable. In accordance with the analysis of pressures and impacts in Germany, the PoM focussed on measures addressing morphological alterations and river continuity, and the results indicated that diffuse source pollution and fine sediment input were additional main pressures in Central European streams and rivers. Although point source pollution was not a main pressure in most rivers, respective point source measures have been selected for many water bodies. Apparently, these were so‐called basic measures that have to be taken due to other EU‐Directives or national laws. Therefore, although in line with the WFD, it seemed doubtful if the point source measures would help to substantially enhance the ecological status. Furthermore, the results indicated that there was a general lack of knowledge on the effect of restoration measures and a specific knowledge gap in how to enhance the ecological state of heavily modified water bodies (HMWB) in the lowland region with a high land‐use pressure, which was reflected by the high share of water bodies for which conceptual measures have been selected (e.g. developing management plans). Based on the analysis of the PoM and a literature review, we identified the following, practically relevant knowledge gaps in river management: (i) the morphodynamics of river reaches where natural channel dynamics have been restored, (ii) the combined effect of measures addressing diffuse nutrient and fine sediment input at different spatial scales (e.g. riparian buffer strips and land‐use changes), (iii) methods to identify suitable and efficient measures and to define environmental objectives for HMWB and (iv) the effect of measures on less well‐studied biological groups like macrophytes and phytoplankton. There is a strong need to summarize recent research results on these issues, to identify the knowledge gaps and research needs in detail, and to make the results of such a comprehensive literature review or meta‐analysis available for the next 6‐year management cycle and second WFD management plans. Copyright © 2010 John Wiley & Sons, Ltd.     

Use of Models to Support the Monitoring Requirements in the Water Framework Directive

Implementation of the EU Water Framework Directive (WFD) poses many new challenges to European water managers. Monitoring programmes play a key role to assess the status and identify possible trends in the environmental conditions of river basins; to gain new knowledge on water processes and to assess to which extent implemented measures actually have the expected effects in terms of improving the environmental status. Despite a general acknowledgement in the scientific community on the benefits of using monitoring and modelling jointly, it has not been the common practise in the European monitoring programmes so far. Several obstacles may be identified which limits the joint use of monitoring and modelling, such as lack of the required skill, lack of time, lack of confidence in models but also a lack of awareness on how models can be used in practise. In this paper we provide examples on how modelling can support the monitoring programmes to meet the objectives of the monitoring programmes in the WFD more efficiently. The extent to which the monitoring requirements in the WFD can be expected to supply sufficient data for modelling purposes is further addressed. This question is, however, not well posed, as the data requirement for modelling is highly dependent on the required accuracy of the model results.     

Bridging parallel discourses of Integrated Water Resources Management (IWRM): institutional and political challenges in developing and developed countries

This paper provides a comparative review of the literature on the institutional challenges and politics of IWRM, in relation to the EU's Water Framework Directive (WFD). It reveals two parallel debates with little interaction. The extent to which IWRM is actually addressed in the WFD literature is questioned, as is the assumption that developing countries can learn from WFD experiences. Finally, the mutual benefits of connecting these parallel discussions are demonstrated, especially in terms of encouraging greater sensitivity to the contingencies and complexities of water management.