Water Scarcity Outputseventh Bis Draft November 15Th 2005

Water Scarcity OutputsEVENth bis draft – NOVember 15th 2005

MED Joint Process WFD /EUWI

WATER SCARCITY DRAFTING GROUP

DOCUMENT:

Best practices on water scarcity

Executive summary

Because of the recent drought events, the informal meeting of Water Directors of the European Union (EU) held in Roma (Italy) in November 2003, agreed to take an initiative on water scarcity issue. A core group led by France and Italy has prepared a “best practice document” on drought management and long-term imbalances issues to be presented to the Water Directors meeting in June 2006.

The document at hand concerns the “best practice document”, which is the result of the water scarcity drafting group. It aims to describe measures and best practices in order to provide and share information, and possible actions to react on scarcity issues. It is a living document that will need continuous input and improvements as application and experience build up in all countries of the European Union and beyond. The best document consists of five parts. The introduction presents the more basic principles and approaches. In chapter I, the definitions and assessments of the different phenomena are described. Chapter II concerns how to manage and plan drought events. Chapter III deals with long-term imbalances in supply and demand. The conclusions are drawn in Chapter IV.

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Water Scarcity OutputsEVENth bis draft – NOVember 15th 2005

TABLE OF CONTENtS

INTRODUCTION...... 5

A - Values Brought about by Water Availability in Adequate Quantity and Quality

B - Quantitative and Qualitative Issues in the WFD Articles

C - Actions to Avert Water Scarcity in europe

C.1 - European research policies

C.1.1 - Directorate General of Research

C.1.2 – Directorate General Joint Research Centre

C.1.3 - ARID cluster

C.1.4 - European Environment Agency

C.2 - Regional policies towards Water Resources Management (WRM)

C.3 - Environmental policies and WRM

C.4 - International cooperation with mediterranean partners

D - Existing Gaps

E - Links with WFD Article 17 and Groundwater Daughter Directive

I - DEFINITIONS AND ASSESSMENT OF THE DIFFERENT PHENOMENA

A - Preamble

B - Definition and Assessment of Drought

B.1 - Drought definitions

B.2 - Drought causes

B.2.1 - Natural factors

B.2.1.1 - Global weather patterns

B.2.1.2 - High pressure

B.2.1.3 - Localized subsidence

B.2.1.4 - Absence of rainmaking disturbances

B.2.1.5 - Absence of humid airstreams

B.2.2 - Anthropogenic factors

B.2.2.1 - Population growth

B.2.2.2 - Climatic change and variability

B.2.2.3 - Land use

B.2.2.4 - Water quality

B.2.2.5 - Water demand

B.2.2.6 - Legislation and water resource management

B.2.2.7 - International waters

B.2.2.8 - Political realities

B.2.2.9 - Sociological issues

B.2.3 – Regional differences

B.3 - Drought indices and indicators

B.3.1 - Percent of normal

B.3.2 – Deciles

B.3.3 - Palmer Drought Severity Index (PDSI)

B.3.4 - Surface Water Supply Index (SWSI)

B.3.5 - Standardized Precipitation Index (SPI)

B.4 - Drought impacts per sector

B.4.1 - Economic impacts

B.4.2 - Environmental impacts

B.4.3 - Social Impacts

C - Definition and assessment of Supply and Demand Imbalances

C.1 - Definition of imbalances in water supply and demand

C.1.1 - Water shortage

C.1.2 - Water scarcity

C.1.3 - Water stress

C.1.4 - Water demand management

C.1.5 - Water conservation

C.2 - Background of water supply

C.2.1 - River runoff

C.2.2 – Groundwater

C.2.3 - Reservoir stocks

C.2.4 - Non-conventional resources

C.3 - Background of water demand

C.3.1 - Agricultural water use

C.3.2 - Domestic use

C.3.3 - Industrial water use

C.3.4 - Energy water use

C.3.5 – Tourism

C.4 - Impact and assessment of imbalances

II - DROUGHT PLANNING AND MANAGEMENT

A – Preamble

B - REGIONAL DROUGHT CHARACTERISATION

B.1 - Historical droughts characterisation

B.2 - Historical drought analysis: what has happened? What has been done?

B.3 - Drought diagnosis: what have we learned?

C - EARLY WARNING : FORECASTING AND MONITORING SYSTEMS

D - Indicators and Water Framework Directive

E - DROUGHT AWARENESS, PREPAREDNESS AND PROACTIVE MANAGEMENT. LONG-TERM DROUGHT PREPAREDNESS POLICIES

E.1 - Long-term resource management

E.2 - Educational programs. Social awareness

E.3 - Research

F . DROUGHT MITIGATION PLANS

F.1 Drought plan basic questions

F.1.1 - Evaluation of drought effects

F.1.2 - Legal framework

F.1.3 - Water auditing

F.1.4 - Water systems capabilities evaluation

F.1.5 - Establishment of drought management organisational structure

F.1.6 - Identify group of risk and its vulnerability for drought hazard

F.1.7 - Prepare drought plan

F.2 - Drought mitigation measures

F.2.1 - Measures selection to mitigate drought impact

F.2.2 - Demand management

F.2.3 - Operational changes

F.2.4 - Allocate strategic water reserves for drought conditions

F.2.5 - Water resources increase

F.2.6 - Environmental and water quality changes

F.2.7 - Timing

F.3 - Measures to take under prolonged drought to be stated in the River Management Plan

F.4 - Drought monitoring and networks

F.4.1 - Continuous monitoring and control of the water consumed and water lost

F.4.2 - Continuous monitoring of water status

F.4.3 - Continuous forecast of the expected water resources

G - DROUGHT PLANNING EXAMPLES IN DIFFERENT COUNTRIES

G.1 - Water allocation during drought

G.2 - Water allocation priorities

G.3 Other priorities for safety reasons

G.4 - Singular non conventional management measures for water conservation

G.5 - Continuous monitoring, prevention and evaluation of drought consequences

G.6 - Drought planning legal framework

G.7 - Other experiences in no EU countries: water harvesting with small dams and soil and water conservation in Tunisia

H - COMMON PRINCIPLES

H.1 - Drought is not permanent water scarcity

H.2 - Drought management instead of crisis management

H.3 - Need for drought preparedness

H.4 - Need for advances in drought research related to effective measures development

H.5 - Need for drought planning

III- LONG TERM IMBALANCES IN SUPPLY AND DEMAND

A – Preamble

B - Type of Management Measures for Fulfilling Demands Using Available Water

B.1 - Demand-side measures

B.1.1 - Technological approaches

B.1.1.1 - Water saving devices

B.1.1.2 - Water metering

B1.1.3 - Leakage reduction in distribution networks

B.1.1.4 - New technologies and changing processes in industry

B.1.1.5 - New technologies and changing processes in agriculture (examples of irrigation methods in some countries)

B.1.1.5.1 - Better control of irrigation

B.1.1.5.2 – Improvement of irrigation techniques : switching from gravity to pressurised irrigation and other technologies

B.1.1.5.3- Quota control

B.1.1.6 - Water reuse

B.1.1.6.1 - Applications

B.1.1.6.2 - Public health protection

B.1.1.6.3 – Technologies

B.1.1.6.4 - Water reuse benefits

B.1.1.6.5 - Enabling the growth of water recycling and reuse

B.1.2 - Economic approaches

B.1.2.1 - Impact of CAP policies on agricultural sector

B.1.2.2 - Examples of pricing methods for irrigation in different countries

B.1.2.3 - Economic incentives/fines

B.1.2.4 - Water bank and markets

B.1.3 - Social approach

B.1.3.1 - Users education and information

B.1.3.2 - Institutional aspects : conflict resolution and administrative settings

B.1.3.3 - Wider user participation

B.1.3.4 - Education and awareness campaigns

B.1.4 - Conclusion: integrated water management approaches on demand side measures

B.2 - Supply-side measures

B.2.1 - Natural catchment storage

B.2.2 – Aquifer recharge (Italy)

B.2.3 - Dams

B.2.4 - Use of basin-external water resources

B.2.4.1 - Technologies creating new resources

B.2.4.2 - Increasing availability of water resources (creation of new resources)

B.2.4.3 - Inter-basin water transfers

B.2.5 – Conclusion : integrated water management approaches on supply side measures

Water Conservation and water demand management in Emilia-Romagna is a good case study to illustrate integrated water management approach.

C - Efficiency of Proposed Measures per Catchment

C.1 - Environmental concerns (WFD)

C.1.1 - Integration of qualitative and quantitative aspects

C.1.2 - Quality and quantity in RBMP

C.1.3 - Quality and quantity and reference conditions

C.1.4 - Quality and quantity and river basin balance

C.1.5 - Quality and quantity in the programme of measures

C.2 - Social concerns

C.2.1 - Socio-natural dynamics in the context of water scarcity

C.2.1.1 - Affordability of water

C.2.1.2 - Public health

C.2.1.3 - The community cohesion

C.2.2 - Social impact of supply side responses

C.2.3 - Social impact of demand side responses

C.2.3.1 - Economic category

C.2.3.2 - Regulatory category

C.2.3.3 - Technological category

C.2.3.4 - Educational category

C.2.4 - Social vulnerability and adaptation

C.2.5 - The cultural significance of water

C.2.6 - Concluding comments

C.3 - Economic profitability

D - Common Principles (Conclusions and Recommendations)

D.1 - The link between water scarcity and environmental protection issues

D.2 - The link between WFD implementation and water scarcity management

D.3 - First elements for a drought management plan

D.4 - First elements of actions for long term imbalances management

INTRODUCTION

Freshwater is no longer taken for granted as a plentiful and always available resource. More and more people in more and more countries, among which EU is not an exception, are experiencing droughts – as individuals in their day-to-day lives and as communities and nations. Today, many European countries are subject to waves of water deficit that affect their inhabitants and the ecosystems they depend on. Recent 2003 events have further demonstrated how socio-economic factors, driving the demand for water, have even made the wettest parts of Europe vulnerable to drought.

In addition to drought impacts, an overexploitation of water resources in some European countries, especially for agriculture, increases the risk of water deficit and, consequently, environmental hazards. Unsustainable consumption and production patterns are degrading ecosystems and reducing their ability to provide essential goods and services to humankind. Reversing this threat and achieving sustainability will require an integrated approach to managing water and ecosystems, one that takes into account socio-economic and environmental needs.

The problem of water deficit resulting from resource overexploitation is further exacerbated by a global warming likely to make precipitation patterns more variable, changing the patterns of water availability in Europe on quantitative, temporal and/or regional basis. Alternative approaches have, therefore, to be found to meet water requirements for development activities. These new approaches are being driven by a growing awareness of the values brought by an adequate water availability both in terms of quantity and quality.

The document at end aims to be the “best practice document”, resulting from the Water Scarcity drafting group. The purpose is to describe measures and best practices in order to provide and share information and possible actions to react on scarcity issues.

This best practice document refers to different types of definitions, issues, and related actions treated through two phenomena leading to different actions and effects : drought events management and water scarcity resulting from supply-demand imbalances. It also deals with surface and groundwater resources.

The character of the best practice document is strategic rather than technical.

This chapter highlights the concerns of applying, in a global perspective, Water Framework Directive (WFD) articles that target drought issues. Integrating an ecosystem approach, the many values of freshwater echoed in our life are highlighted and the actions to deal with Europe’s vulnerability to water crises underlined. The existing gaps in the currently undertaken measures to mitigate drought impacts are then brought into focus. This consequently leads to an identification of what remains to be done to achieve a sustainable water management.

A - Values Brought about by Water Availability in Adequate Quantity and Quality

Many of the services water provides are irreplaceable and thus invaluable. For centuries, humankind has been enjoying an unlimited use of the “ever available” freshwater. Those days are over, as reflected by the recurrent water shortages and their impacts on ecosystems all around the world and notably in Europe. It is time to recognize the value of all the services that water provides, and to ensure that the services are sustainably enjoyed by humankind and ecosystems alike, based on a set of agreed values that should shape water institutions:

• Life-giving value : water may be well accepted as a basic human right, necessitating reliable water services for health and life-ensuring to everyone.
• Social value : water is central to socio-economic development and job creation. Good water resources development and management plus the establishment of sound water supply and sanitation systems is nowadays considered as a key foundation for growth and social stability.
• Value to ecosystems : the irreplaceable services provided by the ecosystems through their use of water include producing food, decomposing organic waste, purifying air, storing and recycling nutrients, absorbing human and industrial wastes and converting them into beneficial uses.
• Economic value : water enables agriculture, fishing, navigation and hydropower generation and is an input for many industries.

B - Quantitative and Qualitative Issues in the WFD Articles

There is a Europe-wide awareness of the full range of values water offers for the population’s well-being, from livelihoods to recreational, aesthetic and cultural values. This recognition is clearly reflected in the WFD, raising the issue of water floods and droughts in its article 1 which :

- promotes sustainable water use based on a long-term protection of available water resources.

- contributes to mitigate the floods and droughts effects.

- contributes to the provision of the sufficient supply of good quality surface water and groundwater as needed for sustainable balanced and equitable water use.

In addition to providing a mechanism for development and implementation of a European drought policy, the WFD requires the conservation of the quantitative status of groundwater bodies (balancing abstractions with recharge), thus supporting sustainable water abstraction regimes, even in water stress and shortage situations. It will also be essential to encourage participatory ecosystem-based management, to provide the minimum flow of water to ecosystems for conservation and protection, and to ensure sustainable use of water resources.

C - Actions to Avert Water Scarcity in europe

There are many challenges for European water management but also many solutions. Much is happening at the community level to the extent that it seems that, for every water problem, someone in the continent has devised a solution or is developing one. Though not necessarily applicable in other environments, these solutions can demonstrate the capability of individuals to adapt to the rising challenges of drought and water allocation.

C.1 - European research policies

C.1.1 - Directorate General of Research

The Directorate General’s mission evolving as a work on the European Research Area (ERA) is going on. It can be summarized as follow :

• to develop the European Union’s policy in the field of research and technological development and thereby to contribute to the international competitiveness of European industry
• to coordinate european research activities with those carried out at the level of the Member States
• to support the Union’s policies in other fields such as environment, health, energy, regional development, etc
• to promote a better understanding of the role of science in modern societies and stimulate a public debate about research-related issues at European level.

One of the instruments used for the implementation of this policy is the multi-annual Framework Programme which helps to organize and financially support cooperation between universities, research centres and industries - including small and medium sized enterprises.

C.1.2 – Directorate General Joint Research Centre

The Joint Research Centre is a Directorate General and an integral part of the European Commission. The mission of JRC is to provide customer-driven scientific and technical support for the conception, development, implementation and monitoring of EU policies. As a service of the European Commission, the JRC functions as a reference centre of science and technology for the Union. Close to the policy-making process, it serves the common interest of the member states, while being independent of special interests, whether private or national. The Joint Research Centre is providing scientific advice and technical know-how to support EU policies.

With regard to drought and water scarcity, the Joint Research Centre is a leading European research partner with activities in the fields of forecasting and monitoring of weather-driven natural hazards such as floods, droughts, and forest fires, in water quality research as well as in climate change and climate change impact research. Policy support is provided – among others – by producing bulletins of agricultural yield forecasts and supporting the implementation of the Water Framework Directive.

C.1.3 - ARID cluster

ARID is a cluster of research projects funded by the European Commission, and is dealing with water resources use and management in arid and semi-arid regions. It operates by linking thematically complementary projects via:

• project web pages
• cross-representation
• exchange of data
• joint meetings
• workshops

The ARID cluster includes three research projects about integrated and sustainable Water Resources Management:

• Water Strategy Man : developing strategies to regulate and manage water resources and demand in water deficient regions
• Medis : towards sustainable water use in Mediterranean islands; addressing conflicting demands and varying hydrological, social and economic conditions
• Aquadapt : strategic tools to support adaptive, integrated water resource management under changing utilisation conditions at catchment level, a coevolutionary approach

ARID is supported by the European Commission under the Fifth Framework Programme and contributes to the implementation of the key action "Sustainable Management and Quality of Water" within the Energy, Environment and Sustainable Development.

C.1.4 - European Environment Agency

The European Environment Agency (EEA), through its Eurowaternet Quantity Surveillance Network, complements the information related to freshwater resources and water availability across the European countries. The main aim of such a network is to quantify pressures and impacts, to give answers to specific policy questions or mitigation measures, and to provide comparable and reliable information on the quantitative aspects of freshwater resources.

The EEA goals are achieved through the use of data on water flows and additional information from the gauging stations network. Data compilations on european water resources are provided by the WMO, the Unesco IHP, the FAO Aquastat, and the Statistical Office of the European Commission (Eurostat). Eurostat has the responsibility of providing the EU information based on a regular data collection on water statistics, eventually making recommendations for freshwater resources estimation.

C.2 - Regional policies towards Water Resources Management (WRM)

At the continental scale, Europe shelters abundant resources, but they are very unevenly distributed. The european countries have realized that water, as a limited resource, must be carefully managed for the benefit of everybody and for the environment, in order to ensure water security now and in the future. This concept of water security, which considers the future of water in present-day planning, also implies to empower the different countries in order to represent their interests and share their best practices. This is envisaged through a series of guidelines that will allow them to adopt a common policy regarding specific problems related to drought.

C.3 - Environmental policies and WRM

The Water Framework Directive (WFD), adopted on October 23rd 2000, by the Council and the European Parliament, defines a european framework for water management and protection at each hydrological basin level. Aiming to preserve and restore water status at both level (surface and underground) by 2015, the WFD gives priority to environment conservation through participatory and consultative programs.