Simon Spooner University of Macau 5th September 2011

1. 中国—欧盟流域管理项目EU-China River Basin Management ProgrammeWater Allocation and Pollution Load Management … a very Chinese approach … Will it work? Simon Spooner University of Macau 5th September 2011

2. Objective The programme aims at supporting MWR, MEP and related Chinese partners to enhance integrated river basin management (IRBM) policies and practices through sharing EU experience and best practices.

3. Project Descriptive Data TITLE RIVER BASIN MANAGEMENT PROGRAMME Total Amount Project Duration €186.5 M 2007 – 201 2 European Commission Grant €25 M : • Contracting Agency: • European Commission Delegation • Executing Agency: • Ministry of Commerce • Implementing Agencies: • Ministry of Water Resources • Ministry of Environmental Protection • YRCC – Yellow River Conservancy Commission • CWRC – Yangtze River Commission - € 8 .3 M TA - € 5.7 M Incidentals - € 1 0 M Co - financing of CPRWRP Chinese Contribution € 79 M (PRC budget) € 82.5 M (World Ban k loan) Consultants Consultancy Consortium DHV BV (Netherlands) WS Atkins Int. Ltd (UK) COWI AS (Denmark) SWECO Int. AB (Sw e den) Alterra BV (Netherlands) Staffing: 4 EU Key Experts, 10 Support staff in 2 offices, YRCC, Zhengzhou and CWRC, Wuhan >250 short term experts from EU and China 5 months to 3 days each.

4. Program area

5. Programme Structure项目结构 1.1中欧对话 1.2 研究 1.3 流域综合管理能力建设 1.4 意识提高和成果推广 1.1 EU China Dialogue 1.2 Research Studies 1.3 Capacity Building in IRBM 1.4 Awareness Raising and Dissemination of Results 政策/中欧对话平台 Policy/ EU-China dialogue platform China - Europe Water Platform 黄河 Yellow River 长江 Yangtze River 2.1 IRBM Action Framework 2.2 Climate Change Adaptation 3.1 Institutional Strengthening Water Pollution Control 3.2 Pollution Prevention and Control Plan 3.3 EWERS (Pollution incidents) 3.4 Clean Technology Promotion 3.5 Advanced Water Quality Monitoring 4.1 Awareness raising on EU WFD 4.2 Testing of management practices 4.3 Piloting of river basin management mechanism 5.1 Participatory sub-watershed management, design and planning 5.2 Participatory sub-watershed implementation and replication 5.3 CPRWRP MIS 5.4 CPRWRP impact M&E

6. Yellow River Main Factors: Flooding: Raised river beds Resource: Only 2% of National Total In 1997 ran dry 226 days Now flows all year, but runoff reduced Quality: 55% worse than grade V Only 20% of reaches grade III or better • 5400 km long • 795,000 km2 basin • 112 million people • 56 bm3 annual flow, • 54 bm3 storage • 1.6 BTons sediment flux

7. Desiccated Yellow River

8. Changes of River Rhine 莱茵河的变化

9. Liao All Rivers River water quality in China 中国的流域水质 As reported by MEP 国家环保总局报告 River Water Quality Grade: Grade I Grade II Grade III Grade IV Grade V Worse than Grade V

10. MWR “Three Red Lines” 水利部三条红线 • water development and utilisation to control water quantity,通过水资源开发和利用控制水质 • water use efficiency to curb waste of water 提高用水效率杜绝浪费 • pollutant carrying capacity in water function zones to strictly control pollution discharge loads. 通过水功能区纳污能力严格控制排污

11. 中国水资源管理形势及实践 Water Resources Management Situation and Practice in China 红线 1 Red line 1 总量控制红线 Red line of total amount control 国家 State 城市 Cities 省级区域 Provincial areas 流域 Basin

12. Water Allocation • Set Total: water allocation regulations set amount of surface water users are allowed to abstract and how reservoirs are to be regulated to balance supply and demand. • Seasonal Adjustment: yearly water allocation plan is implemented through monthly regulating schemes and, in times of high water demand, ten-day water regulating schemes. • Indexes: Yearly total water abstraction indices of the main stream and tributaries are set by YRCC, which controls abstractions and reservoir releases. Adjust index in time of drought • Stakeholder Process: YRCC Prepare plans and assessments working closely with the Provincial Water Resources Bureaus. • Ratify: Final plan agreed by Provincial Governors, then submitted to State Council • FYP: Yearly water allocation planning to be incorporated into regional socio-economic development plans.

13. Water Allocation • Negotiations based on a fixed baseline of 1987 • Does not fully account for the changes in development levels over time • Deciding the Baseline problem for all water Trading Schemes 58 bcm total - 37 useable, 14 for sediment transport, 7 for Ecological restoration • Accounts for need for sediment flows • Not yet clear on calculation of environmental flows • Based on long term water resource of YR, now may be much less • Water Allocation fully Utilised

14. Water Rights Transfer - Ningxia, Inner Mongolia Pilot • New water user cannot get water drawing permit • Must arrange transfer from existing user • Invest in agricultural water saving • Be allowed to draw that water • Direct transaction places individual value on the water transfer.

15. 中国水资源管理形势及实践 Water Resources Management Situation and Practice in China 红线 3 Red line 3 水功能区纳污红线 Assimilative red line of water functional zone

16. No 1 Document on Water Quality improvement 1号文件-水质改善 • The approach is of total load management (article 21) 总量控制管理（第21条） • linked to setting of performance targets for officials to be incorporated to the existing system of letters of responsibility (article 22). 考察官员的绩效目标，并将其与当前的责任相联系 This is a quite radically different approach to EU, and possibly to anywhere else in the world. It is highly ambitious in terms of the technical and institutional tools required for implementation. 这与欧盟及世界上其他地方有 很大的不同，从实施的技术角度和制度层面都是很有挑战性的。

17. Mechanismsof WFD:水框架指令的机制 Europe‘s waterbodies should achieve ‘good status’ by 2015 欧洲水体在2015年前应达到良好状态 • Characterise River Basins流域的特点 • Establish water bodies at Risk • Establish Reference conditions建立基准条件 • Monitoring监测 • Chemistry, Biology, Morphology 化学、生物、形态 • One out all out • Prepare River Basin Management Plans准备流域管理规划 • Implement Programme of Measures实施项目方法 • Check progress检查程序 • Repeat Cycle重复循环

18. No 1 Document on Water Quality improvement 1号文件-水质改善 • The approach is of total load management (article 21) 总量控制管理（第21条） • linked to setting of performance targets for officials to be incorporated to the existing system of letters of responsibility (article 22). 考察官员的绩效目标，并将其与当前的责任相联系

19. Pollution load Management • Sounds straight forward • But how to actually make it work? • There are discharge standards which have been tightened • But no real equivalent of BAT • Currently no proper discharge permitting system • Plan is for Pollution Load Based system • MWR have guidelines for how to Calculate the Carrying Capacity and Pollution Load allocations SL 348-2006 • But getting into the detail of these encounters many uncertainties and problems

20. Pollution load Management • River catchment defined into Water Functional Zones • Calculate Carrying capacity • COD and Ammonia • Based on Upstream standard • 90 percentile low flow • Standard Decay coefficients • Effective discharge point calculation

21. Pollution load Management • Calculate pollution load allocation • Compare the known discharges to the Carrying Capacity • If less than Carrying capacity then leave as are • Apply industry standards, Still greater than CC? • If still greater then apply proportional reductions to meet Carrying capacity • Meets WFZ standard now?? … Doubt it!

22. Some Problems with Pollution load system 污染负荷管理系统的问题 • Definition of Flow regime 定义流态 • Not River basin approach – Reaches are disconnected 并非流域理念-河流是不连续的 • Takes no account of actual river water quality data 不考虑实际的河流水质数据 • Diffuse pollution is not considered 不考虑面源污染 • Uncertainty in Data and models not managed数据和模型的不确定性 • Abstractions and diversions not properly considered 没有适当考虑取水和调水 • Problems of data sharing between sectors部门之间数据共享问题 • Timetable for attainment not defined没有目标实现时间表 • Flow and quality solutions not yet linked流量和质量不匹配 • Mechanisms for translating pollution load for river reach to discharge control for factory / town and objective for official 将河段污染负荷分解到工厂、城镇排污口的机制以及官员目标

23. RBMP Contribution to PL Allocation • Enhanced Pollution Load management system • Model and GIS based system for undertaking the calculations. Ability to: • extend calculation procedure to different flow regimes • consider diffuse sources • account for unknown data and uncertainty • Account for river basin network effects • Use actual water quality data, predict outcome of strategies to meet WFZ • Quantitative methods for comparing strategies and future horizons. • Support of integration of calculations to administrative process

24. Where is this Going? • Water Allocation • Scientific assessment process • Passes to a stakeholder political negotiation process • Allocation of a scarce resource • Mechanisms for trading of the Water allocation • Currently internally in Provinces • Potential to make inter province / region at multiple administrative levels • Link water allocation and pollution allocation through Water Permit • Compare to Europe where abstraction and discharge only loosely linked in most cases

25. Where is this Going? • Pollution Load Management • Requires improved Scientific assessment process that accounts for all sources and Basin Network effects • Yet to establish stakeholder political negotiation process • Allocation of an overabundant liability • No Mechanisms for trading of the Pollution allocation (possible?) • Currently internal in River reach • Potential to make inter province / region at multiple administrative levels across River basin • Link water allocation and pollution allocation through Water Permit • Link to administrative personnel performance assessment of CPC • But system as presently conceived will not actually achieve WFZ objectives in an efficient way

26. Where is this Going? …. Future • Integrated Quantity and Quality Management • Water Functional Zones to include comprehensive river health assessment - Accounts for Biology, morphology, social status, hydrology • Design system to actually meet these Targets • Flow regime basis of Pollution Load calculation could match with the Water Allocation and environmental flows requirement • The statutory Pollution load allocation system based on simple local principles in WFZ supplemented with River basin Level planning for optimised investment • Models and Pollution indices may be used as mechanism for optimised planning of pollution control and Benefit Cost analysis.

27. 中国水资源管理形势及实践Water Resources Management Situation and Practice in China 水资源 论证制度 Water resources argumentation system 水功能区 管理制度 Management system in water functional zone 取水许可 制度 Water-drawing permit system 水资源管理制度 Water resources management system 总量控制 与定额管理 Gross amount control and quota management 计划与节约 用水制度 Planning and saving water system 入河排污口 管理制度 Management system of sewage drainage outlet to river

28. Conclusions结论 • Integrated River Health monitoring is now being introduced in China, based on best international practice 前流域健康综合监测的方法已经引进到中国，这些方法基于国际上最好的实践经验 • Better mechanisms for pollution Load management are being developed, based on Chinese administrative systems. 更好的污染负荷管理系统目前只在开发，基于中国的行政体系 • Together these can help drive change and improvement 这些工作将带来变化和改进 • Much Technical development still required 依然需要更多的技术 • May seem confused now, but so did WFD 10 years ago • Supporting guidance very important to evolution

29. 谢谢Thank You

30. Very different from EU Will it Work??

31. 管理规定 《建设项目水资源论证管理办法》(修订) 《建设项目水资源论证资质管理办法》（修订） 《建设项目水资源论证论证报告书审查工作管理规定》(修订) 《建设项目水资源论证条例》（起草） 《建设项目水资源论证表》（起草） 技术标准 《建设项目水资源论证导则》（修订） 《水利水电建设项目水资源论证导则》（2011） 《重点行业项目水资源论证》（在编） Administrative provisions Administrative Measures for Water Resources Argumentation of Construction Projects (revision) Administrative Measures for the Qualification of the Water Resources Argumentation of Construction Projects (revision) Administrative Provisions for Examination of the Water Resources Argumentation Report of Construction Projects (revision) Clauses of the Water Resources Argumentation of Construction Projects (draft) Water Resources Argumentation Form of Construction Projects (draft) Technical standards Guidelines for the Water Resources Argumentation of Construction Projects (revision) Guidelines for the Water Resources Argumentation of Water Conservancy and Hydroelectricity Construction Projects (2011) The Water Resources Argumentation of the Projects of Key Industries (being compiled) II. 水资源论证制度的建立与发展 II. The Establishment and Development of Water Resources Augumentation System 论证制度政策和技术体系 The argumentation system policies and the technical systems

32. Compare to EU 与欧盟相比Combined approach 综合方法 Discharge Standards 排放标准 Best available Technology 最佳可用技术 River needs / Ecological outcomes 生态治河 Economically viable 经济可行

33. River Reach河段 Principles and Practice of IPPC 原则和实践的综合污染防治和控制 Air Dispersion Model 污染负荷模型 Discharge Permit 排放 许可 Discharge Standards 排放标准 Best Available Techniques 最佳可行技术 企业 Environmental Capacity 环境容量 Acceptable Pollution Loadings 可接受的污染负荷 BAT Control Environmental Capacity Discharge Standards 排放标准 Discharge Permit 排放 许可 Best Available Techniques 最佳可行技术 Environmental Capacity 环境容量 Other Flow & Load 其他流量和负荷 Pollution Load Model 污染负荷模型 Downstream Water Functional Zone Target 下游水功能区目标 Assimilative Capacity 纳污能力

34. RBMP Contribution to PL Allocation • Enhanced Pollution Load management system • Model and GIS based system for undertaking the calculations. Ability to: • extend calculation procedure to different flow regimes • consider diffuse sources • account for unknown data and uncertainty • Account for river basin network effects • Use actual water quality data and predict actual outcome of strategies to meet objectives • Provide quantitative methods for comparing strategies, outcomes and future horizons. • Support of integration of calculations to administrative process

35. Flow & Load WWTW River Reach河段 Flow & Concentration 估算的流量和浓度 Discharge Standards 排放标准 BAT Control Discharge Permit Abstraction Permit 取水许可 企业 Economic Cost Benefit Flow & Load 流量和负荷 Allocation of Loads to Discharges 工厂间的总量分配 Integrated Water Resources Protection Planning加强水污染控制规划 River Needs 河流需求 Discharge Permit 污水处理厂 River Basin WQ Model 流域水质模型 To WWTW Or Direct to River Assimilative Capacity