推进生态环境用水管理的思考与对策

随着全国各地水生态文明建设的深入推进,保障生态环境用水也越来越受到社会广泛关注。然而,我国目前的生态环境用水管理还十分薄弱,急需推进生态环境用水管理制度和机制建设。本文从生态环境用水管理基本内涵、生态环境用水管理的指标体系、生态环境用水管理制度、生态环境用水监管等四个方面,探讨了当前生态环境用水管理存在的问题,提出了相差政策建议。     

基于政策工具视角的我国节水政策研究

节水政策是“节水优先”治水思路的具体体现，对大力推进节约用水工作具有重要的指导作用。为分析我国现行主要节水政策的着力点，以《国家节水行动方案》出台的2019年为时间节点，收集整理了47份国家级节水政策，基于政策工具视角，运用NVivo软件对政策文本内容进行量化分析。结果显示：根据词频分析，2019年以来的节水政策仍以“管理”为核心，但更加注重标准体系建设、非农业用水部门以及公众参与；根据作用领域、政策工具、管理手段三方面的单维度及交叉维度分析，我国节水政策存在结构性失衡，面向供水端的政策相对较少，行政手段、综合性政策占比高，政策着力点集中在“综合领域-行政手段”方面。为进一步健全完善节水政策体系，建议加强节水政策的针对性和可操作性，丰富节水激励措施，优化公众参与机制。     

基于层次分析法的中国水资源管理能力评价研究

为进一步提高水资源管理能力，从开发利用管理、用水效率管理、行政管理、生态环境管理4个方面构建了水资源管理能力评价的指标体系，利用层次分析法评价了中国及各地区(共31个省区，因缺少相关资料，不包含香港、澳门和台湾地区)水资源管理能力现状，并揭示了水资源管理能力差异的成因。结果表明：中国目前水资源管理能力评价为Ⅲ等，主要薄弱环节在于农业用水监管和农村水环境方面。各地区中，福建省、广东省、北京市、江苏省、重庆市、山西省、甘肃省、浙江省等8个地区的综合得分较高，评价为Ⅱ等，其先进经验和做法可供参考。     

墨西哥国家水法——探索水资源管理和开发的新路子

论述了墨西哥水管理水政策，法律制度及用水管理等方面的问题，该国根据社会，环境状况和政策形势，制定和调整了国家水资源政策，法律制度逐步完善，取得了显著成就，因而值得我国在水资源的管理中借鉴。     

斯里兰卡地下水资源管理面临的挑战

在斯里兰卡的所有用水类型中，地下水的作用正在日益凸显。探寻了斯里兰卡在地质和水文地质条件变化情况下的地下水水量和质量问题。基于地下水文献资料和对相关历史、政策推动事件的概述，简要讨论了与地下水有关的社会经济、健康及政策议题，突出斯里兰卡管理地下水资源所面临的挑战，以及目前在制度、研究和公众意识方面的局限。最后，提出了若干观点及建议、及时果断地保护与管理地下水资源的可能性，从而确保地下水安全充足，为斯里兰卡社会的现在和将来创造一个健康的环境。     

英国的水资源法和生态环境用水保护

英国是一个水资源既不富足也不短缺的发达国家,其水资源法律与政策注重保障生态环境用水供给,形成了比较完善的法律管理体系。可资借鉴的经验主要有:积极参加国际活动,明确生态环境对水质和水量的需求,强化政府职责和不同机构间协调,注重利益相关者和公众参与等。     

战国秦汉时期水利职官设置与管理法规

从生态环境与国家制度安排的互动关系出发,探讨水利职官从战国以前到战国秦汉时期建置的变化,以揭示战国秦汉时期水利职官职能的专业化发展趋势;同时,通过探讨水利政策在农田灌溉、防治水害、水运及水利法律在防水、护水、用水等方面所起的作用来揭示战国秦汉时期水利管理体系的互补性。水利职官的设置与管理法规的不断完善,既回应了生态环境的变迁,也推动着国家制度设计更多倾向于民生领域。     

巩义市节约用水工作的探索和成效

本文从巩义市实际出发,系统总结了"十一·五"以来巩义市节水工作在宣传、政策、体制、管理等方面进行的探索和实践。该市社会节水意识不断增强,生产结构得到科学调整,取水水源布局更加合理,用水效率显著提高,水生态环境明显改善。希望对"十二·五"基层工作有所启示。     

江苏省合同节水管理实践及对策研究

利用合同节水管理创新节水管理模式,运用市场手段促进节水,是推动节水改造、提高用水效率的有效途径。本文在对江苏省合同节水管理现状和实践分析的基础上,指出了存在的配套政策不完善、水权改革有待深化、节水产业市场不完备、合同节水覆盖面不全、公众节水意识不强等问题,并从加强配套政策研究、探索科学合理的运行机制、丰富合同节水推广范畴、深化水权制度改革等方面提出了对策建议,对江苏省合同节水管理机制的完善具有重要参考意义。     

用水户参与武灌溉管理模式初探

实现用水户参与式管理是进行灌区体制改革的重要途径。文章论述了用水户参与式灌溉管理的内涵、要求和基本模式。在回顾国外其他国家发展灌区参与式管理的历史经验基础上，文章重点介绍了湖南省岳阳市铁山灌区用水户参与式管理的基本情况和管理成效，同时，文章根据实施用水户参与式灌溉管理模式的实践提出了相关的建议和看法。     

河长制下跨省河流管理保护现状及联防联控对策研究——以赤水河为例

河长制为区域性环境保护管理制度,如何在流域层面实现联防联控是当前河长制推行的难点与薄弱环节。以长江流域典型跨省河流——赤水河为例,针对赤水河生态环境保护存在的突出问题,在梳理流域内河长制推行实践的基础上,结合河长制工作的主要任务,总结了赤水河流域保护管理的主要经验与不足;再从推进流域保护整体规划与立法、促进部门联动与联合执法、规范跨界断面监测评估、严格水量分配调度和完善资金投入激励等方面,提出了河长制下赤水河流域联防联控的政策建议。研究成果可为国内其他跨省河流的流域整体性管理保护提供借鉴。     

Competing Freshwater and Ecological Services in the River Basin Perspective

Abstract

A river basin approach focusing on upstream/downstream conflicts of interest has to involve attention both to the services that water itself provides to society, and to water-related ecosystem services, terrestrial as well as aquatic. Besides “blue water” flow, i.e., liquid water flows in rivers and aquifers, attention has to be paid to “green water” flow, i.e., the water vapor flow involved in plant production. Basically, the rainfall over the basin is what must be shared between those upstream and those downstream. To satisfy societal needs, humans have to manipulate various landscape elements. These manipulations—due to fundamental water functions—will produce side effects (“environmental impacts”). In an integrated basin approach, it is necessary to include side effects of water-impacting land use conversions upstream on water-dependent activities and ecosystem health downstream. A fundamental challenge is therefore to find ways and mechanisms by which reconciliation can be developed among land use, water use, and ecosystem health, and between upstream and downstream activities     

IMPLEMENTING ENVIRONMENTAL FLOWS IN COMPLEX WATER RESOURCES SYSTEMS – CASE STUDY: THE DUERO RIVER BASIN,SPAIN

European river basin authorities are responsible for the implementation of the new river basin management plans in accordance with the European Water Framework Directive. This paper presents a new methodology framework and approach to define and evaluate environmental flow regimes in the realistic complexities that exist with multiple water resource needs at a basin scale. This approach links river basin simulation models and habitat time series analysis to generate ranges of environmental flows (e‐flows), which are evaluated by using habitat, hydropower production and reliability of water supply criteria to produce best possible alternatives. With the use of these tools, the effects of the proposed e‐flows have been assessed to help in the consultation process. The possible effects analysed are impacts on water supply reliability, hydropower production and aquatic habitat. After public agreements, a heuristic optimization process was applied to maximize e‐flows and habitat indicators, while maintaining a legal level of reliability for water resource demands. The final optimal e‐flows were considered for the river basin management plans of the Duero river basin. This paper demonstrates the importance of considering quantitative hydrologic and ecological aspects of e‐flows at the basin scale in addressing complex water resource systems. This approach merges standard methods such as physical habitat simulations and time series analyses for evaluating alternatives, with recent methods to simulate and optimize water management alternatives in river networks. It can be integrated with or used to complement other frameworks for e‐flow assessments such as the In‐stream Flow Incremental Methodology and Ecological Limits of Hydrologic Alteration. Copyright © 2011 John Wiley & Sons, Ltd.     

加强流域水资源管理促进节水型社会建设

建设节水型社会是解决我国水资源短缺问题的根本出路.流域管理机构参与节水型社会建设以流域综合规划为基础,以明晰和分配初始水权为核心,以实施取水许可制度为重点,将流域控制性工程纳入流域统一管理,建立流域水法规体系,充分发挥流域管理对节水型社会建设的促进作用.     

Monitoring of environmental flow outcomes in a large river basin: The Commonwealth Environmental Water Holder's long‐term intervention in the Murray–Darling Basin,Australia

The Murray–Darling Basin in south‐eastern Australia contains over 70,000 km² of wetlands and floodplains, many of which are in poor condition. In response, Australian governments have committed to a major restoration program, the Murray–Darling Basin Plan that includes management of 2,750 Gl of environmental water to protect and restore aquatic ecosystems. The restoration is being undertaken within an adaptive management framework that includes monitoring the outcomes of environmental flows in seven river valleys. This paper provides an overview of the 5‐year monitoring project and some preliminary results. Monitoring design considered the Basin Plan's environmental objectives, conceptual models of ecosystem responses to flow, and an outcomes framework linking flow responses to the environmental objectives. Monitoring indicators includes ecosystem type, vegetation, river metabolism, and fish. Responses are evaluated to identify the contribution of environmental flows to Basin Plan environmental objectives and continual improvements in management. The program is unique in that it seeks to monitor long‐term outcomes of environmental flows at the river basin scale. Despite many challenges, the monitoring has become a key part of the adaptive management of environmental flows in the Murray–Darling Basin.     

Management challenges related to long‐term ecological impacts,complex stressor interactions,and different assessment approaches in the Danube River Basin

For centuries, rivers have experienced massive changes of their hydromorphic structures due to human activities. The Danube River, the second largest river in Europe, is a case in point for long‐term societal imprint. Resulting human‐induced pressures are a key issue for river management, aiming to improve the ecological conditions and guarantee the provision of ecosystem services. As the most international river basin in the world, the management of the Danube is particularly challenging and needs a well‐organized cooperation of 19 nations. The recent river basin management plan has identified pollution and hydromorphological alterations as most pressing problems, but it has also acknowledged newly emerging issues. In this article, we present 3 specific examples of highly relevant issues for the future river basin management of the Danube: (a) long‐term impacts in the catchment such as changes in flood patterns and potential ecological consequences; (b) complex feedback loops linking the spread of neozoa with intertwined stressor responses due to river engineering for different purposes; and (c) linkages between different assessment approaches based on European legal frameworks to analyse the specific pressures at different spatial scales. These examples highlight the need for a more integrated approach in future Danube River Basin management schemes. Furthermore, large‐scale effects such as climate change and interactions of multiple pressures need to be addressed in future management to increase resilience of the river system and to allow a sustainable ecosystem‐based management of rivers.     

维护河流健康与流域一体化管理

河流健康的概念既强调了保护河流生态系统的重要性,也承认人们适度开发水资源的合理性。把维护河流健康作为流域管理的战略目标是管理理念的重大突破。维护河流健康不仅需要工程技术的支持,也需要进行立法和机制体制改革,实行流域一体化管理。     

A collaborative and adaptive process for developing environmental flow recommendations

Many river restoration projects are focusing on restoring environmental flow regimes to improve ecosystem health in rivers that have been developed for water supply, hydropower generation, flood control, navigation, and other purposes. In efforts to prevent future ecological damage, water supply planners in some parts of the world are beginning to address the water needs of river ecosystems proactively by reserving some portion of river flows for ecosystem support. These restorative and protective actions require development of scientifically credible estimates of environmental flow needs. This paper describes an adaptive, inter‐disciplinary, science‐based process for developing environmental flow recommendations. It has been designed for use in a variety of water management activities, including flow restoration projects, and can be tailored according to available time and resources for determining environmental flow needs. The five‐step process includes: (1) an orientation meeting; (2) a literature review and summary of existing knowledge about flow‐dependent biota and ecological processes of concern; (3) a workshop to develop ecological objectives and initial flow recommendations, and identify key information gaps; (4) implementation of the flow recommendations on a trial basis to test hypotheses and reduce uncertainties; and (5) monitoring system response and conducting further research as warranted. A range of recommended flows are developed for the low flows in each month, high flow pulses throughout the year, and floods with targeted inter‐annual frequencies. We describe an application of this process to the Savannah River, in which the resultant flow recommendations were incorporated into a comprehensive river basin planning process conducted by the Corps of Engineers, and used to initiate the adaptive management of Thurmond Dam. Copyright © 2006 John Wiley & Sons, Ltd.     

The WFD Implementation in the European Member States

The Water Framework Directive (WFD), one of the most influential pieces of European water legislation, presents a general framework for integrated river basin management in Europe to meet the environmental objectives. More than 16 years after the WFD adoption and after the end of the first management cycle (in 2015), it is time for a screening assessment of the implementation of the WFD in the different Member States (MSs). This article provides a global overview about the evolution of WFD implementation in MSs, highlighting the progression of the European water bodies status, as well as, some of the main challenges of WFD implementation: ecological flows, pricing policies/economic analysis, climate change, exemptions, public participation and transboundary issues. The paper examines these different topic, drawing up their situation in different MSs. For that purpose, not only the foreseen second cycle of the River Basin Management Plans (RBMPs) is analysed as also, at a larger scale, the expectations and challenges for the future set by the WFD are examined.     

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.