Transcript TWMcaseChina_fall09

Dorri te Boekhorst
TWM - fall 2009
River basin management in China
IRBM and the nine-headed dragon
- Problem definition
- Government and water management
- Where did we come from?
- Where are we now?
PROBLEM DEFINITION
GONGYI, China -- The flowers that
welcome visitors to the town of Gongyi in
China's Henan province have seen
better days. The stems that spell out the
greeting message are withered and
parched, the surrounding grass bleached
yellow from lack of water.
China's worst drought in 50 years is
taking a heavy toll here. It hasn't rained
in nearby Yaoling village for more than
100 days. Even the government's efforts
to fire cloud-seeding rockets into the sky
that brought minor relief to much of the
province haven't worked here.
Global Post 02-17-09
PROBLEM DEFINITION
DROUGHT
FLOODS
POLLUTION
SOIL EROSION
PROBLEM DEFINITION
Percentage of people with access to safe, clean water: 66%
(Chinese Ministry of Water Resources, 2006).
2007 SOE - MEP
PROBLEM DEFINITION
Water Quality of Major Large Freshwater Lakes
Index for
nutrition
state
Name
Nutrition
state
Levels of water quality
Major pollutants
2007
2006
Baiyangdian Lake
83
Serious
eutrophication
Worse than
Grade V
Worse than
Grade V
Ammnonia nitrogen, total phosporus, total nitrogen
Dalai Lake
64
Moderate
eutrophication
Worse than
Grade V
Worse than
Grade V
pH value, permanganate index
Jingbo Lake
59
Mild
eutrophication
IV
Bositeng Lake
57
Mild
eutrophication
III
III
Hongze Lake
56
Mild
eutrophication
Worse than
Grade V
Worse than
Grade V
Total nitrogen,toal phosphor
Nansi Lake
53
Mild
euthrophicatio
n
V
Worse than
Grade V
Total phosphorus,total nitrogen, oils
Dongting Lake
45
Mesotrophic
state
IV
V
Total phosphorus, total nitrogen
Poyang Lake
45
Mesotrophic
state
IV
V
Total phosphorus, total nitrogen
Erhai Lake
40
Mesotrophic
state
III
III
-
Xingkai Lake
-
IV
II
Volatile phenol
-
IV
Volatile phenol, total phosphorus
-
FACT SHEET
Rivers and River Basins
China has a large number of rivers with a total length of 420.000 km. There
are more than 50.000 rivers each with a drainage area of more than 100 km2
and more than 1500 each with a drainage area of more than 1000 km2.
The rivers are distributed very
unevenly over regions. Most of the
rivers are situated in the wet eastern
monsoon climatic zone, directly
flowing into the sea, with the major
ones including the Yangtze, Yellow,
Heilong, Pearl, Liaohe, Huaihe,
Haihe, etc.
Ministry of Environmental Protection: SOE 2007
FACT SHEET
Rivers and River Basins
The whole country may be divided into nine major river basins, including
Yangtze, Yellow, Haihe, Huaihe, Songhua-Liaohe, Pearl, Southeast Rivers
and Inland Rivers.
Figure 1. Per Capita Water Resources by Watersheds in
China, 1998. Source: Yang and Zehnder (2001)
Ministry of Environmental Protection: SOE 2007
FACT SHEET
Yangzte river
•
•
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China’s longest river: 6300 km
~ 700 tributaries
Basin covers about 19% China’s total land area
19 provinces, automnomous regions and municipalities
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Major inland waterway
Major source for irrigation, agriculture and hydro-electric power
17 dams, inlcuding San Ba
•
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Important ecosystem wich in biodiversity
370 fish species, birds (wintering area threatened japanese crane), flora
SOUTH-TO-NORTH TRANSFER
SOUTH-TO-NORTH TRANSFER
“the present conflicts caused by competitive water users of agricultural,
industrial, domestic and ecological shall be alleviated. Water demand of
agriculture and ecologic system shall be met and over-exploitation of
groundwater shall be controlled.”
MWR 2006 project proponent
COSTS: US$62 billion
BENEFITS: 45 billion (109) m3 water annually
STATUS: Construction on the eastern and central routes is underway. Western route in
planning stage. Entire project duration ~ 50 years to complete.
BENEFICIARIES: Cities and industries. Eastern route: domestic and industrial water use
for Shandong and Jiangsu provinces. Central route more than 20 cities, including Beijing
and Tianjin. Farmers will be the last to benefit from project water.
PROBLEMS: Decreased water quality in both channels (run-off factories) and Yangtze
river basin; water tariffs will be stiff, cities may pass this water; roughly 300,000 people
are to be resettled by the project.
GOVERNMENT AND WATER MANAGEMENT
People’s Republic of China
> 1.3 billion people
World third’s largest economy
1949: People’s Republic of China
Communist Party (CPC); One-party state
President Hu Jintao (Head of State)
Premier Wen Jiabao (Head of Government)
GOVERNMENT AND WATER MANAGEMENT
MAIN CHALLENGES
Economic growth
Rich urban and poor countryside
Population
Environmental challenges (Climate Change)
GOVERNMENT AND WATER MANAGEMENT
National People’s Congress
President of
P.R. China
GOVERNMENT AND WATER MANAGEMENT
Ministry of Water Resources (MWR)
GOVERNMENT AND WATER MANAGEMENT
1.
Ensure water resources are rationally developed and utilized; […]; provide draft legislations and promulgate water
administrative rules and regulations; make integrated river basin management plans and flood control plans for major
rivers and lakes […]
2. Take overall consideration and secure domestic, industrial and ecological water uses; undertake integrated water
resources management and supervision; formulate and supervise the implementation of national and inter-provincial
development plans of water supply and demand and schemes for water allocation […]
3. Take charge of water resource protection; organize and draft water resource protection plans, water function zoning in
major rivers and lakes and implementation supervision; review and verify the capacity of pollutant load of water bodies;
make proposals on the limit of total wastewater discharge; …
4. Take charge of flood control and drought relief, and undertake day-to-day work of the Office of State Flood Control and
Drought Relief Headquarters…
5. Take charge of water conservation; formulate water conservation policies, draft water-saving plans, develop relevant
standards and give directions and promote the water-saving society campaign.
6. Provide guidance to hydrological work, including hydrological monitoring of water resources,…
7. Provide guidance to the management and protection of water infrastructures, water bodies and shorelines, control and
development of major rivers, lakes, estuaries and coast beaches; …
8. Be responsible for control of soil and water losses by formulating soil and water conservation plans and supervision, …
9. Provide guidance to irrigation & drainage and rural water supply by organizing and coordinating construction of farmland
water facilities, construction and management of projects of safe drinking water supply and water-saving irrigation, …
10. Be responsible for investigating illegal cases that violating water laws, mediate and arbitrate inter-sector and interprovince water disputes, provide guidance to the enforcement and execution of water laws and regulations; …
11. Management of water science and technology and foreign affairs related to water issues, …
12. Other duties and responsibilities assigned by the State Council.
GOVERNMENT AND WATER MANAGEMENT
Ministry of Water Resources
Responsible for water quantity (and water quality)…
•
•
•
•
•
initiation of policy
implementation of policy
measuring
control
(int) cooperation and science
… at all levels of state organisation: national, provincial, regional and local
Through Water Bureaux and River Basin Commissions
GOVERNMENT AND WATER MANAGEMENT
7 River Basin Commissions
Changjiang Water Resources Commission
Yellow River Conservancy Commission
Huai River Water Resources Commission
Hai River Water Resources Commission
Pearl River Water Resources Commission
Songliao River Water Resources Commission
Taihu Basin Authority
GOVERNMENT AND WATER MANAGEMENT
1998 Water Law, 2002 revised
1)
2)
3)
4)
water allocation, rights, and permits;
river basin management;
water use efficiency
conservation and environmental
protection.
Law on Prevention and Control of Water Pollution (WPPC)
Water and Soil Conservation Law
Flood Control Law
other relevant laws and regulations
GOVERNMENT AND WATER MANAGEMENT
7 River Basin Committee’s …BUT:
- only MWR, not intersectoral
- limited stakeholder-dialogues
- limited NGO participation
- overlapping responsibilities
- overlapping laws
- no water trade systems
- no decent pricing mechanisms
D. te Boekhorst 04-07-2008
WHERE DO WE COME FROM?
Where do we come from?
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Extremely severe pollution
Frequent floodings due to impoldering
Unbridled cutting of forests upstream
Hydrolic mission thinking
… Unsustainabel practices that ultimately
pose a serious threat to the economic
development of the country…
World Bank 1997
A CHANGE was needed…
Lake Taihu, blue-green algae
WHERE DO WE COME FROM?
1998: 32 Character Policy
1. Stop logging and promote forestation (the National Logging Ban).
2. Stop agricultural use of mountain slopes and reintroduce forest & grass (Grain
for Green).
3. Return reclaimed land to the river (make room for the river).
4. Convert cultivated land to wetland and lakes (wetland restoration).
5. Resettlement of people who live in flood prone areas.
6. Reinforce the primary flood defense structures.
7. Dredge river sections that have silted up.
8. Give people work instead of relief subsidies.
WHERE DO WE COME FROM?
WHY does change happen when it happens?
Shock event: Floodings in the Yangtze
+
32 Character policy
provided a window of opportunity for change agents
WHERE DO WE COME FROM?
WWF (1998): “Partnership for a Living Yangtze”
bottom-up process to shift from rice cultivation on impoldered
land towards alternatives such as organic farming and returning
polder to lake (Dongting Lake, Hong Lake, Zhangdu area)
 processes aimed at combining nature restoration goals with
safety measures and sustainable livelihoods.
CCICED (2004): Task Force on Integrated River Basin Management
High-level, ‘top-down’ implementation of IRBM as an answer to
technocratic river management.
 Aimed at formally accepting IRBM as a new way of
managing water in China.
1992 China Council for International Cooperation on Environment and Development (CCICED), in the wake of the UNCED
conference in Rio
IRBM
IRBMco-chairs:
co-chairs:
Prof.
Prof.Chen
ChenYiyu
Yiyu
Prof.
Prof.Toine
ToineSmits
Smits
Meeting of the CCICED co-chairs with premier
Wen Jiabao (October 2004)
CCICED = China Council for International
Cooperation on Environment and Development
IRBM Institutional arrangements
流域管理机构安排
在国家层面成立流域综合管
理委员会
Establishment of the IRBM
commission at the national level
国家流域综合管理委员会
Coordination & control of
regulations, policies and
planning with respect to
IRBM of MoWR, SEPA
and NDRC
IRBM
commission
NDRC
MoWR
SEPA
国家发改委
水利部
国家环保总局
统一协调水利部、国家环
保总局和国家发改委有关
流域性的法规、政策与规
划
Legislation
-Eliminate contradictions of
existing Laws, including,
Environmental Protection Law, Water
Pollution Prevention and Treatment
Law, Soil Erosion Control Law, Flood
Control Law, Fishery Law, National
Reserves Management Regulation
修订已有法律中不协调的条款,包
括《环境保护法》、《水污染防治
法》、《水土保持法》、《防洪法
》、《渔业法》、《自然保护区管
理条例等》。
Stakeholder and public participation
利益相关方与公众参与
- Access to information
-信息发布与共享
- Establishment of a Development
and Conservation Forum
-建立流域发展与保护论坛
- Community engagement in
IRBM implementation
-社区参与流域管理项目实施
- Education
-教育与公众意识
Economic and incentive measures
经济手段与激励机制
-Implementation of the “polluter
pays” principle and “nature
compensation” principles
-贯彻实施“污染者付费”与
“生态补偿”原则
-Compensation mechanisms at
the river basin level
-建立流域尺度生态补偿机制
-Valuation of ecosystem services
-生态系统服务功能评估
-Develop new market
mechanisms for alternative land
use
-From “water pricing” towards
“environmental pricing”
-开发新的市场机制
-从“水资源价格”到“水环
境价格”
Suggestions how to proceed
推进流域综合管理的近期工作
At National Level:
在国家层面:
-Integrate IRBM into next national
five year plan (2006-2010)
将流域综合管理理念与行动纳入
国家十一五计划
-Stimulate international academic
co-operation focusing on filling
knowledge gaps when IRBM is
put into practice
开展进一步研究，弥补实施建议
的科技与知识差距
WHERE ARE WE NOW?
Yangtze Forum (2005)
In response to the new challenges confronting the protection and
development of the Yangtze, the relevant departments and
agencies under the Central government together with the
governments of the 11 provinces, autonomous regions
and unicipalities along the Yangtze mainstream, as well as
domestic and international organizations, have jointly
launched, in February 2005, the initiative of the First Yangtze Forum
themed with "Protection and Development".
This initiative aims to create a dialogue and exchange platform to
promote active participation of all the stakeholders and the whole
society as well as international organizations in collaborative
efforts to protect, manage and develop the Yangtze River and to
ensure the healthy Yangtze for our future generations.
WHERE ARE WE NOW?
Yangtze Forum – Organising comittee
Advisor General
Qian Zhengying, former Vice-Chairwoman, Chinese People’s Political Consultation Conference (CPPCC),
Academician of Chinese Academy of Engineering
Advisors
Qu Geping, Vice Chairman of CCICED, former Chairman of the NPC’s Environment and Resources Protection
Committee
Yang Zhenhuai, former Minister of Water Resources, Vice Chairman of the NPC’s Agricultural and Rural
Committee
Honorable Chairmen
Wang Shucheng, Minister of Water Resources (MWR)
Xie Zhenhua, Minister of State Environment Protection Administration (SEPA)
Zhou Shengxian, Minister of State Forestry Administration (SFA)
Chen Yiyu, President of National Natural Science Foundation of China
Claude Martin, Secretary General, WWF
Chairwoman
Cai Qihua, Commissioner, CWRC
Vice Chairmen
Gao Bo, Director, Department of International Cooperation, Science & Technology, MWR
Liu Hongzhi, Deputy Director, Department of Pollution Control, SEPA
Wei Diansheng, Director, Department of Afforestation, SPA
Jim Harkness, Country Representative, WWF China Programme
Dong Zheren, President, GWP (China) Technical Advisory Committee
Ma Jianhua, Chief Engineer, CWRC
WHERE ARE WE NOW?
Yellow River Forum (2003)
ORGANIZER
Yellow River Conservancy Commission (YRCC), Ministry of Water Resources, P.R. China
SPONSORS
WWF (World Wide Fund For Nature)
Australian Agency for International Development (AusAID)
EU-China River Basin Management Program
International Network of Basin Organizations (INBO)
Global Water Partnership (GWP)
International Water Resources Association (IWRA)
International Economic Technical Cooperation and Exchange Centre, MWR (IETCEC, MWR)
Yellow River Research Association(YRRA)
China Institute of Water Resources and Hydropower Research (IWHR)
Nanjing Hydraulic Research Institute (NHRI)
WHERE ARE WE NOW?
WHERE ARE WE NOW?
Firm set of laws…
strengthen the administrative rights
of river basin management
organizations in order to improve
the implementation of water
conservation and management
measures
…but regulation and
implementation…
WHERE ARE WE NOW?
Yangtze and Yellow river Fora:
dialogue with
stakeholders and sciences
MEP:
Public hearings
But…
WHICH stakeholders?
WHAT science?
…pressing need for social
sciences to get involved and
create dialogue but government
less anxious…
WHERE ARE WE NOW?
Means are allocated
BUT…
NRDC still holds sway over large
hydropower projects
MWR still technological fix thinking
…
WHERE ARE WE NOW?
Much cooperation and exchange
BUT…
Will it be swift enough? Will it be
robust enough? …
WHERE ARE WE NOW?
The role of both fora is influencial
but advising. Basin Commissions
still unisectoral although
comprehensive integral plans are
drafted for Yellow, Yangtze and other
basins and lake systems – Dongting
Lake
A major challenge will be effective
cooperation and involvement of civil
society  how to organise civil
stakeholders in a non-democratic
governing system
WHERE ARE WE NOW?
Major challenges
-
Accountability and transparency
Coordination capacity
Education of staff
Water pricing mechanisms
WHERE ARE WE NOW?
DIFFERENT…
… BUT ALSO THE SAME
Snacks at Beijing food market
Students looking for a room, work, …