多瑙河流域跨界管理.pdf.pdf

收稿日期 2009205218 作者简介 r 施塔德勒 男 奥地利联邦农业 森林 环境和水管理部国际关系司司长 文章编号 100620081 2009 0920012202 多瑙河流域跨界管理 r 施塔德勒 摘要 简要介绍了多瑙河保护公约及其组织机构 保护多瑙河国际委员会 icpdr 的历史 主要特 点和结构 阐述了管理如何定位 以及在遇到问题时如何落实管理目标 还介绍了取得的一些主要成果 最后对与icpdr目标 即多瑙河流域水体 包括三角洲地区及黑海近海水体 达到良好的生态状态有关的 主要问题进行了说明 关键词 多瑙河流域 水管理 国际合作 问题 成果 中图分类号 tv213 4 x522 文献标识码 a 多瑙河流域覆盖欧洲19个国家 其中14个国 家的领土大部位于流域内 是世界上最国际化的流 域 居住着8 100万不同语言 文化和历史的人口 多瑙河为欧洲第二大河 流域总面积约为80 8万 km2 全长2 863 km 平均流量为6 460 m3 s 迄今 为止是汇入黑海的最大河流 多瑙河沿岸的合作始于20个世纪80年代中期 布加勒斯特宣言 80年代末发生政治变革后 在 90年代初重新建立了合作关系 在多瑙河流域内 新建立的合作关系以双轨制持续多年 一方面是 1992年出台的多瑙河环境保护计划 dep 该计划 的援助机构 gef eu2phare tacis计划 发挥了独 特的作用 另一方面 根据联合国欧洲经济委员会 unece 赫尔辛基公约的有关内容起草协议之后 于1994年成功签署了多瑙河保护公约 标志着过渡 时期的合作进程启动 并成立了 临时委员会 但其 作用相当薄弱 dep最重要的成果是建立了多瑙 河环境事故紧急报警系统 aews 1996年启动 和 跨国监测网络 tnmn 1994年启动 以及分析质量 控制系统 aqcs 在交存批准书一段时间后 多瑙河保护公约自 1998年10月开始生效 为多瑙河流域水体 包括地 表流动水体 湖泊和地下水 及生态资源的保护及可 持续利用的跨界合作建立了法律框架 多瑙河保护公约目的如下 1 实现可持续的 公平合理的水管理 2 保持或改善多瑙河流域地表水 地下水以 及水生生态系统的状况 3 控制多瑙河流域水体的水质和有害物质排 放 特别是点源和非点源排放的营养物及危险物质 重点是控制跨界影响和减少排入黑海的污染物负 荷 4 对可能造成意外污染的危险源进行预防性 控制 并建立报警系统 在发生特大水污染事件时开 展互助 5 通过协调行动提高防洪能力 根据多瑙河保护公约开展合作之初 要取得专 家级的新成果看起来相当困难 多瑙河保护公约为 开展实际工作提供了非常大的空间 但没有提出在 其时间框架内要达到的明确目标 尽管如此 dep 与新成立的保护多瑙河国际委员会 icpdr 之间良 好的协调 确保了所有必要的管理及法律文件的实 施 icpdr在运作的最初2 a显示出来的不确定 性 促使其决定实施新出台的法律 欧盟水框架 指令 wfd 2000年12月通过的wfd使整个欧盟的水管 理立法现代化 为欧洲内外的许多非成员国树立了 典范 wfd的总体目标是到2015年所有水体达到 良好的生态和化学状态 wfd要求欧盟成员国与 21 2009年9月 水利水电快报 ewrhi 第30卷第9期 同一流域内的其他所有国家建立合作关系 还要求 根据生态参数 按确保所有参与国可比性的方式 对 水体的水质状况进行评价 wfd还进一步要求通 过制定专门的监测计划填补知识空白 并基于流域 方法及对管理决策中经济参数的认识 在利益相关 方及公众的参与下 制定流域管理规划 包括措施计 划 以应对无法达到良好状态的各种情况 在2000年12月的例会上 甚至在欧盟正式批 准wfd前 icpdr所有缔约国即已同意将共同实 施wfd作为icpdr未来工作的重中之重 还有5 个非欧盟成员国也同意共同实施wfd 并以其目标 指导本国的水管理工作 这一情况表明 这部欧洲重 要水法的重要性及意义得到了认同 提议将icpdr作为在全流域协调及编制多瑙 河流域管理规划的平台 该平台为充分交流信息 制定共同战略 协调性方法和分析机制 以及设定协 调远景及目标提供了基础 其作用非常重要 各国 政府保留其相应的机构 对于欧盟成员国 保留了直 接向欧盟提交本国报告的义务 值得一提的是 尽管多瑙河沿岸国家的成功合 作存在很多不利因素 包括战争 各国宗教 文化和 历史不同 经济及政治条件各异 水法立法及内部权 限分配存在差别 可利用水量及其使用价值各不相 同 语言障碍及对多瑙河公约使用语言 英语 的理 解差异等等 但多瑙河的水保护合作仍然出乎意外 地得到了加强 目前 包括奥地利 波黑 保加利亚 克罗地亚 捷克 德国 匈牙利 摩尔多瓦 黑山 罗马尼亚 塞尔 维亚 斯洛文尼亚及乌克兰在内的14个国家 以及 由于国内法律原因尚未加入欧盟的国家 由欧盟委 员会代表 以缔约方的名义在公约授权成立的各种 决策及工作机构内开展合作 以实施wfd 以缔约方的形式进行协调不仅是在icpdr一 级 国家事务的协调首先要依次与相关的下游国家 协商 在大多数情况下是签定双边合作协议 在某些 情况下 子流域一级的合作也需要签定合作协议 最后要说明的是 即使是多瑙河流域内国土面积小 于2 000 km2的5个国家 即阿尔巴尼亚 意大利 马其顿 波兰及瑞士 也正在展开协调 根据多瑙河保护公约成立的机构中 首先要提 到的是icpdr 该委员会是决策机构 负责确保多 瑙河流域各国在公约的框架下信守承诺 虽然该委 员会只有建议权 但如果其建议在1 a的质疑期内 没有被缔约方否决 其决定将具有约束力 涉及财务 的决策尤为如此 委员会每年12月份召开1次例 会 通常在秘书处所在地维也纳举行 各缔约方派代 表团参加会议 最多5名代表 其中包括代表团团 长 其次要提到的是 常设工作组首先由代表团团 长组成 其下几名成员自定 工作组每年召开1次 会议 通常在每年的6月份 在icpdr轮值主席 每 年轮流担任 所在国召开 解散工作组需经icpdr 批准 最后需要说明的是 委员会现下设6个常设专 家组及具有期限的特别专业领域的任务组 专家组的职责如下 1 流域管理专家组 rbm eg 负责汇总有 关实施wfd的报告 2 监测及评估专家组 m 3 压力及措施专家组 p 4 防洪专家组 fp eg 负责制作洪水淹没 图 提出改善预警系统的措施 5 信息及gis专家组 i 6 公众参与专家组 pp eg 负责考虑如 何让利益相关方及公众参与到规划过程中来 秘书处的工作由以下专家组的5名工作人员提 供支持 即rbm eg m 2 营养物污染 点源及面源的氮和磷 3 有害物质污染 点源及面源 4 河相交替 例如 水文过程情势的变化 水 体结构的改变 隔离湿地造成河流连续性中断及鱼 类洄游障碍等 造成的影响 根据2005年启动的运行和调查监测的结果 以 及迄今编制的4份重要水管理问题文件 正在编制 多瑙河流域管理规划 该规划为每个重要的水管理 问题设立了到2015年要实现的远景及管理目标 多瑙河流域管理报告在最后定稿之前就需要引 入公众参与 该过程包括咨询利益相关方 首先是 农业 水力发电及航运部门的代表 通过航运及水 资源保护双方的深入讨论 认可了基于生态保护的 规划导则以改善适航性 该报告的中心工作是编制 解决上述4个重要水管理问题 同时考虑共同发展 经济的措施计划 除了就执行wfd开展协调工作外 在icpdr 领导下 还开展了其他一些水管理合作的联合行动 1 签定了一项有关黑海的合作协议 作为联 合技术工作组评估黑海状况及多瑙河对其影响的基 础 2 2007年研究探险队驾驶3艘船 沿从德国 凯尔海姆到多瑙河三角洲及入海口处的2 400 km 河道进行了第2次科学考察 这次考察被称为 多 瑙河联合调查 此次调查广泛收集了多瑙河及其 主要支流的水生生态系统状况的相关信息 3 为了增进对多瑙河流域水体的了解 提高 对水资源价值及其可持续开发的认识 与icpdr的 发起国之一合作 编制了一本教师手册 其中专为儿 童设计了互动章节 该手册已译成所有缔约国的文 字 成为整个多瑙河流域的知识和教育工具 4 鉴于icpdr在河流管理上的突出表现及 在水管理合作方面取得的成果 2007年在澳大利亚 布里斯班 icpdr被授予享有崇高声望的国际舍斯 河流奖 奖金将主要用于加强icpdr与世界上其 他河流委员会的合作与信息共享 5 为纪念多瑙河保护公约的签署 每年的6 月29日 多瑙河流域各国都要举行庆祝活动 活动 特别针对年轻人 目的是使居住在多瑙河流域内 共 同受惠于多瑙河 同时也可能受到多瑙河污染或洪 水的不利影响的民众感受到团结一心的氛围 2007 年庆祝活动的主题是赞美多瑙河文化 在每年的 多瑙河日 都会举行全流域儿童艺术比赛 陈桂蓉 张 兰 编译 72 s 克伦 欧盟水框架指令下斯洛文尼亚水资源管理的创新 cross border management in the danube river basin richard stadler abstract the presentation comprises as introductory part a short outline of the history main features and structure of the danube river protection convention and of the international commission for the protec2 tion of the danube river icpdr as its main operative instrument it describes how management orienta2 tions evolved and how they are set in practice mentioning the problems hereby encountered some of the main results achieved will be presented finally information on the main problems in relation to the goal the icpdr is striving for namely to achieve an ecological sound status of the waters in the danube river basin including the delta and the adjacent coastal waters of the black sea is given keywords danube river basin water management international cooperation problems encoun2 tered results achieved the danube river basin is composed by the territorial shares of nineteen countries fourteen of which with major parts of their territories over 81 million people with different lan2 guages cultures and histories inhabit the world s most interna2 tional river basin with a total basin area of around 808 000 km2 a total length of 2 863 km and a mean discharge of 6 460 m3 s it is the second largest river in europe and by far the largest tributary to the black sea cooperation along the danube started loosely in the mid 1980s bukarest declaration and became newly established at the beginning of the 90s after the political changes took place at the end of the 80s this newly established cooperation within the danube river basin remained for many years on a double2 track on the one hand side stood the actors of the danube environmental programme dep established 1992 in which the donor organisations gef eu2phare tacis programmes played the distinctive role the results achieved have been mainly money driven on the other hand after drafting ne2 gotiations along the contents of the unece helsinki water convention have been successfully concluded with the signing of the danube river protection convention in 1994 an interim cooperation process was started this led to the formation of an interim commission however regarded as rather weak the most important fruits of the dep were the set up of the danube accidentemergencywarningsystem aews launched 1996 and of the transnational monitoring net2 work tnmn launched 1994 together with the analytical quality control system aqcs with the deposition of the ninth instrument of ratification and the following required time2period the convention entered into force in october 1998 the convention constitutes the legal framework for the cross border cooperation for the protection and sustainable use of waters surface running waters lakes and groundwater and ecological resources in the danube river basin the danube river protection convention has inter alia the following objectives to achieve a sustainable rationale and equitable water management to conserve or improve the status of surface waters and ground waters and of the aquatic eco2systems in the danube river basin to control the in stream water quality of and detri2 mental discharges emissions into waters of the danube river basin most notably nutrients and hazardous substances from point and non2point sources with the focus on the control of transboundary effects and on the reduction of pollution loads fi2 nally reaching the black sea the precautionary control of hazardous installations which may pose danger of accidental pollution and the establish2 ment of an alert system and of mutual help for cases of extraor2 dinary water pollution events the improvement of flood protection by coordinated ac2 tions 41 september 2009 express water resources monitoring and assessmentexpertgroup m pressures and measures expert group p flood protection expert group fp2eg elaborating harmonised inundation maps and measures to improve the early warning systems information and gis expert group i public participation expert group pp2eg deliberat2 ing on how stakeholders and the general public can best be inte2 grated in the planning processes from the secretariat s side their work is supported by five expert staff members namely one staff member for the rbm2eg one staff member for the m one staff member for the p one staff member for the i one staff member for the pp2eg in 2004 the coordinated work done for the implementation of the wfd had led to the publication of the danube river basin analysis report based on the division of the danube basin in eco2regions further developed in bio2regions surface water types and their ecological reference conditions had been i2 dentified by means of biological elements aquatic flora benthic invertebrate fauna and the fish fauna to assess the quality sta2 tus of surface water bodies the danube river basin analysis provides a basin wide overview whether surface running waters with a water shed larger 4 000 km2 lakes with a surface area larger than 100 km2and cross2border groundwater resources with an area larger than 4 000 km2may be at risk possibly at risk or not at risk to fail the goal of the wfd to be at good ecological chemical and quantity status it was based on the ex2 tent of available data which varied vastly throughout the coun2 tries of the danube river basin it reveals that a large part of the danube waters is at risk to fail the at least required good status the black sea coastal waters of romania were also found to be at risk in accordance with the regulations of the eu urban wastewater directive they have been declared as sensitive and in the whole danube basin wastewater treatment plants have to comply with the requirements for advanced treat2 ment concerning nutrient reduction the results of the danube river basin analysis have led to a re2tailoring of the transnational monitoring network to a deepened insight in the quality status of the water bodies and to the identification of 4 key water management issues pollution by organics organic carbon by point and dif2 fuse sources pollution by nutrients nitrogen and phosphorus by point and diffuse sources pollution by hazardous substances from point and dif2 fuse sources impact by hydromorphological alternations changes of the hydro2graphic regime changes of the water bodies struc2 ture breaksof river continuity by disconnection of wetlands and barriers for fish migration etc based on the findingsof operational and investigative moni2 toring established 2005 and on the 4 papers on significant wa2 ter management issues developed so far the danube river basin management plan is being compiled at this moment it entails for each significant water management issue visions and man2 agement objectives to achieve until 2015 a public participation process is required before finalisation of the danube basin management report this process includes the consultation of stakeholders in the first instance with the representatives of agriculture hydropower generation and of navigation an intensive discussion process between the naviga2 tion and the water protection sides has led to the acceptance of ecological based guidelines for the planning to improve the navi2 gability the heart of the work on the danube basin manage2 ment report will be the programme of measure addressing the four mentioned key water management issues where also joint2 ly developed economic reasoning will be under consideration besides the coordinated work on the implementation of 下转第21页 61 september 2009 express water resources hydropower information vol 30 no 9 sent large numbers of independent businesses other options being explored include the establishment of catchment restoration funds with direct government funding supported by matched funding from other sources in addition it is clear that overcoming barriers to fish migration immediately improves the ecology of damaged rivers some 2 500 schemes are needed to remove the most significant abstractions and these deliver a positive benefit cost ratio the abstraction of water is controlled through a system of abstraction licences overseen by theenvironment agency about one quarter of all catchments are over committed as a re2 sult of historic unsustainable abstractions and flows in some rivers are severely depleted because abstraction rights are viewed as property rights compensation is due if licences are a2 mended or revoked the environment agency is just embarking on a programme of making the changes necessary to achieve a sustainable abstraction regime but this will be an expensive and protracted process an alternative approach is better manage2 ment of demand this is being addressed through improved standards in water fittings fixtures and appliances homeown2 ers and industries are slowly recognising that there are financial benefits from reducing water use and associated energy use however only one third of all households are metered and so the incentives are limited increasing meter penetration would help to address this issue 5 conclusion the wfd builds upon the integrated approach to catch2 ment management taken by the environment agency in its reg2 ulatory role however it has also highlighted that many of the issues which jeopardise the ecology of rivers are not resolvable through traditional regulatory approaches working in partnership with co2deliverers is the preferred way forward but limited funding and an unwillingness or in2 ability to play equal parts means that progress will initially be limited however the first hurdle is to have recognised the dif2 ficulties now that these are clearer it is likely that they will drive the innovation and partnerships required to deliver the aims of the wfd about the author mr ian barker head of water environment agency of eng2 land and wales 上接第16页 the eu wfd some other joint undertakings and events of the water management cooperation under the roof of the icpdr should finally be mentioned in regard to the black sea a cooperation agreement has been signed being the basis for a joint technical working group to assess the status of the black sea and the influence the danube exerts in 2007 the second time a research expedition with three vessels along a 2 400 km course of the river danube from kel2 heim in germany till the danube delta and the mouth of the danube into the black sea was performed known as joint danube survey it produced highly comprehensive and homoge2 neous information on the status of the aquatic ecosystem of the danube and its major tributaries in partnership with one of the sponsors of icpdr a hand2 book for teachers with interactive sections for pupils has been developed to enhance knowledge on the waters of the danube basin and to raise awareness for the values of water resources and their sustainable development it was translated into the national l