Facing the water framework directive challenges: A baseline of stakeholder participation in the European Union

Public participation is a key element of Integrated Water Resources Management and, in the European Union (EU), is a major challenge in the implementation of the Water Framework Directive (WFD), which was adopted in December 2000. When new legislation enters into force it is essential to set a baseline against which to measure the progress towards the established goals at significant milestones of its implementation. This paper presents an assessment of the quality of stakeholder participation at the beginning of the WFD implementation in twenty countries belonging to or with close institutional relationships with the EU. The evaluation was completed by environmental non-governmental organizations and it shows that already in 2003 there were positive examples of stakeholder participation in several countries but that, in general, the WFD implementation will require significant efforts to improve on participatory practices throughout Europe.     

The Ythan Project: A Case Study on Improving Catchment Management through Community Involvement

Increased participation in resource management decisions by a wide range of stakeholders has been widely advocated, and has recently been formally incorporated into the European Water Framework Directive. However, achieving such participation has generally proved to be problematical. In response to locally perceived needs, a project was set up in the Ythan catchment in northeast Scotland, to undertake catchment management actions with increased public involvement. This paper outlines the methods used to increase public participation in such actions, and some preliminary assessments of the effectiveness of these. The experience of the project and the lessons learnt, including some of the difficulties of ensuring fully representative stakeholder involvement, are discussed in relation to published criteria for public participation in resource management.     

Integrating Swedish water resource management: a multi-level governance trilemma

This paper analyses proposals for new multi-level governance of Swedish water resources to implement the EU Water Framework Directive. The question is, do they satisfy the criteria for ecologically rational and democratically legitimate governance? The core of the analysis concerns an administrative 'trilemma' encountered in designing ecologically effective and democratically acceptable multi-level governance. This trilemma is characterised by tensions between effectiveness, participation and legitimacy, all core values of 'good governance'. The Swedish proposal constitutes an effort to achieve cost-effective implementation of the EU Directive through an ecosystem-based multi-level organisation. It also seeks to bring about democratically legitimate governance through stakeholder networks and negotiations at the sub-catchment level, and governance 'partnerships' among local governments and organised interests. In particular, the assessment addresses issues of integrating such 'super-local' and local alternatives within the larger web of multi-level water resource governance. Although intended to escape the 'trilemma', the proposed combination of formal government and informal governance is found wanting in terms of effectiveness as well as participation and legitimacy.     

The Achievement of a Decentralized Water Management Through Stakeholder Participation: An Example from the Drôme River Catchment Area in France (1981–2008)

Different water Acts (e.g., the European Water Framework Directive) and stakeholders involved in aquatic affairs have promoted integrated river basin management over recent decades. However, few studies have provided feedback on these policies. The aim of the current article is to fill this gap by exploring how local newspapers reflect the implementation of a broad public participation within a catchment of France known for its innovation with regard to this domain. The media coverage of a water management strategy in the Drôme watershed from 1981 to 2008 was investigated using a content analysis and a geographic information system. We sought to determine what public participation and decentralized decision-making can be in practice. The results showed that this policy was integrated because of its social perspective, the high number of involved stakeholders, the willingness to handle water issues, and the local scale suitable for participation. We emphasized the prominence of the watershed scale guaranteed by the local water authority. This area was also characterized by compromise, arrangements, and power dynamics on a fine scale. We examined the most politically engaged writings regarding water management, which topics of each group emphasized, and how the groups agreed and disagreed on issues based on their values and context. The temporal pattern of participation implementation was progressive but worked by fits and starts.     

Contrasting stories on overcoming governance challenges: the implementation of the EU Water Framework Directive in the Netherlands

The European Union Water Framework Directive (WFD) has provided the European Member States with a range of interacting governance challenges. This article studies three of these (the need for new administrative arrangements, public participation, and the enforced strict time frame). It questions how these interacting governance challenges were addressed in implementing the WFD in the Netherlands – a particularly interesting country since the European Commission assesses its implementation process in relatively positive terms, while an in-depth study reported on in this article tells a contrasting story. Based on this study, the article concludes that especially the interaction effects between the governance challenges may help us to better understand the outcome of the WFD-implementation process, and to provide more suitable advice as to how to improve the implementation process in future rounds.     

Integrating Swedish water resource management: a multi-level governance trilemma

This paper analyses proposals for new multi-level governance of Swedish water resources to implement the EU Water Framework Directive. The question is, do they satisfy the criteria for ecologically rational and democratically legitimate governance? The core of the analysis concerns an administrative 'trilemma' encountered in designing ecologically effective and democratically acceptable multi-level governance. This trilemma is characterised by tensions between effectiveness, participation and legitimacy, all core values of 'good governance'. The Swedish proposal constitutes an effort to achieve cost-effective implementation of the EU Directive through an ecosystem-based multi-level organisation. It also seeks to bring about democratically legitimate governance through stakeholder networks and negotiations at the sub-catchment level, and governance 'partnerships' among local governments and organised interests. In particular, the assessment addresses issues of integrating such 'super-local' and local alternatives within the larger web of multi-level water resource governance. Although intended to escape the 'trilemma', the proposed combination of formal government and informal governance is found wanting in terms of effectiveness as well as participation and legitimacy.     

Integrating Wetland Management into Sustainable Water Resources Allocation: The Case of Akrotiri Wetland in Cyprus

This paper employs a contingent valuation (CV) study to estimate the value of the economic benefits generated by the Akrotiri wetland in Cyprus. It aims to show how CV estimation results can inform efficient, effective and sustainable wetland conservation policies, as required by the European Union's Water Framework Directive, and to suggest economic instruments that can facilitate the implementation of such policies. The results indicate that the design of these instruments require the capturing of both the use and non-use values generated by wetland services and functions.     

Quantitative catchment profiling to apportion faecal indicator organism budgets for the Ribble system, the UK's sentinel drainage basin for Water Framework Directive research

Under the EU Water Framework Directive (WFD) 20/60/EC and the US Federal Water Pollution Control Act 2002 management of water quality within river drainage basins has shifted from traditional point-source control to a holistic approach whereby the overall contribution of point and diffuse sources of pollutants has to be considered. Consequently, there is a requirement to undertake source-apportionment studies of pollutant fluxes within catchments. The inclusion of the Bathing Water Directive (BWD), under the list of 'protected areas' in the WFD places a requirement to control sources of faecal indicator organisms within catchments in order to achieve the objectives of both the BWD (and its revision - 2006/7/EC) and the WFD. This study was therefore initiated to quantify catchment-derived fluxes of faecal indicator compliance parameters originating from both point and diffuse sources. The Ribble drainage basin is the single UK sentinel WFD research catchment and discharges to the south of the Fylde coast, which includes a number of high profile, historically non-compliant, bathing waters. Faecal indicator concentrations (faecal coliform concentrations are reported herein) were measured at 41 riverine locations, the 15 largest wastewater treatment works (WwTWs) and 15 combined sewer overflows (CSOs) across the Ribble basin over a 44-day period during the 2002 bathing season. The sampling programme included targeting rainfall-induced high flow events and sample results were categorised as either base flow or high flow. At the riverine sites, geometric mean faecal coliform concentrations showed statistically significant elevation at high flow compared to base flow. The resultant faecal coliform flux estimates revealed that over 90% of the total organism load to the Ribble Estuary was discharged by sewage related sources during high flow events. These sewage sources were largely related to the urban areas to the south and east of the Ribble basin, with over half the load associated with the relatively small subcatchment of the River Douglas. The majority of this load was attributed to two WwTWs that discharge through a common outfall close to the tidal limit of this catchment. Budgets adjusted to accommodate the impact of proposed UV disinfection of these effluents showed that the load from these sources would be reduced significantly during base flow conditions. However, during high flow events loads would still remain high due to the operation of storm sewage overflows from stormwater retention tanks. The study identified untreated storm sewage spills from urban infrastructure and WwTW stormwater retention tanks as the dominant component of the high flow flux of faecal indicators to receiving waters of the Fylde coast and the associated bathing waters.     

POLICY AND PRACTICE: Planning and the European union water framework directive

This paper is concerned with stimulating debate amongst land-use planning practitioners and researchers in relation to the possible consequences of the European Union Water Framework Directive. The potentially far-reaching ramifications for the Town and Country Planning system in England and Wales are examined in detail, presenting the case that planning, at all spatial scales, may have to give both water and environmental concerns greater consideration than has hitherto been the case. Furthermore, in the imminent future the planning system will need to begin the process of formulating policies in line with the aspirations of the Directive.     

Benchmark Criteria: A Tool for Selecting Appropriate Models in the Field of Water Management

A milestone in the field of European water protection policy is the European Union’s Water Framework Directive (WFD), which came into force in December 2000 and which integrates the management of European waters in many ways. In this study, we start by focusing on management issues connected to the implementation of the WFD and pose a question: “what type of models would be the most suitable for use in the context of the WFD?” With this question in mind, we aim to establish a set of operational and functional selection criteria for (computer) models whose application is intended to support decision-making related to a particular water management issue. These so-called “benchmark criteria” should help water managers and other model users in choosing appropriate models, e.g., for the WFD implementation purposes. We first describe models and their use in general and then propose an approach for setting the benchmark criteria for models, basing it on the concept of uncertainty management, while keeping firmly in mind the important role of citizens and citizen organizations in water management. The suggested benchmark criteria are in the form of 14 questions through which each model can be evaluated. Finally, the process for testing and refining the benchmark criteria is highlighted.     

The potential role of stated preference methods in the Water Framework Directive to assess disproportionate costs

This paper examines the issue of disproportionate costs of Water Framework Directive (WFD) implementation using public surveys as a means to inform policy and decision making. Public taxpayers are asked their opinion regarding the implementation of the WFD and its costs. Taxpayers are expected to bear a large share of the cost of WFD implementation, be it through national taxation, local water pollution charges or higher market prices for water related goods and services. The paper's main objective is to illustrate the role of stated preference research to elicit public opinions and perceptions towards socially acceptable levels of water quality and public willingness to pay (WTP) for the expected environmental benefits of the WFD. Stated preference research can be used as a way to assess the concept of disproportionate costs to those who are expected to bear a large share of the costs of WFD implementation, and at the same time address the issue of public participation in the WFD. The survey results are used as a public consultation tool to inform policy and decision makers about public willingness and ability to pay for the implementation of the WFD. This measure can be used as one of the benchmarks to define disproportionate costs in a cost-benefit context.     

The economic value of water use: implications for implementing the Water Framework Directive in Scotland

The European Union Water Framework Directive (WFD) enshrines several economic principles in pursuit of 'good ecological status' for Europe's waters and rationalising water use in society. The implicit principle of maximising the social value from use of a scarce resource is reminiscent of the debate about treating water as an economic good, which has competing uses in society. This paper locates the debate about the economic value of water in the requirements of WFD. Specifically, we consider the implications of national reporting requirements for the economic characterisation report that stress the identification of relative value derived from use. As part of the Scottish contribution to the UK reporting exercise, we use a range of secondary data sources to derive economic values for water on a sector basis. We suggest whether the implications of different water values can be followed through in the WFD.     

Developing environmental quality standards for various pesticides and priority pollutants for French freshwaters

The French Ministry of the Environment and Water Agencies have derived environmental quality standards following the existing French framework called SEQ-Eau, for 28 pesticides and seven priority substances listed in the Water Framework Directive. Like other existing frameworks, SEQ-Eau relies upon the use of standard toxicity test results and assessment factors. This approach made it possible to derive the desired quality standards, but due to the lack of chronic toxicity data many of the standards are only provisional. In addition, emerging issues such as endocrine disruption should be taken into account in this framework. Depending on the available data, more flexible derivation approaches, such as the statistical distribution of NOECs, are recommended for future versions of SEQ-Eau. A comparison is made using SEQ-Eau and the methodology currently being discussed in Europe to develop environmental quality standards, showing that the European approach is more conservative. Conversely, the proposed approach under the Water Framework Directive does not cover the entire range of required quality classes.     

Estimating the economic value of improvements in river ecology using choice experiments: an application to the water framework directive

The Water Framework Directive is a major regulatory reform of water resources management within the European Union. Integrated catchment management plans must be prepared for all river basins, in order to achieve 'good ecological status' in all EU waters. Ecological status is a broader measure of water quality than the chemical and biological measures that were previously dominant. The Directive calls for a consideration of the economic costs and benefits of improvements to ecological status. In this paper, we use the choice experiment method to estimate the value of improvements in three components of ecological status. Given the high resource cost of valuation studies, benefits transfer methods will be needed in implementing the Directive. We thus also test the ability of choice experiments for benefits transfer across two very similar rivers in the UK.     

River Restoration in Spain: Theoretical and Practical Approach in the Context of the European Water Framework Directive

River restoration is becoming a priority in many countries because of increasing the awareness of environmental degradation. In Europe, the EU Water Framework Directive (WFD) has significantly reinforced river restoration, encouraging the improvement of ecological status for water bodies. To fulfill the WFD requirements, the Spanish Ministry of the Environment developed in 2006 a National Strategy for River Restoration whose design and implementation are described in this paper. At the same time many restoration projects have been conducted, and sixty of them have been evaluated in terms of stated objectives and pressures and implemented restoration measures. Riparian vegetation enhancement, weir removal and fish passes were the most frequently implemented restoration measures, although the greatest pressures came from hydrologic alteration caused by flow regulation for irrigation purposes. Water deficits in quantity and quality associated with uncontrolled water demands seriously affect Mediterranean rivers and represent the main constraint to achieving good ecological status of Spanish rivers, most of them intensively regulated. Proper environmental allocation of in-stream flows would need deep restrictions in agricultural water use which seem to be of very difficult social acceptance. This situation highlights the need to integrate land-use and rural development policies with water resources and river management, and identifies additional difficulties in achieving the WFD objectives and good ecological status of rivers in Mediterranean countries.     

A Methodology for the Evaluation of Water Policies in European Countries

Periodic assessment of progress toward established policy goals is crucial to understanding whether the applied efforts are effective. In Europe, the Water Framework Directive (WFD) adopted in year 2000 set ambitious environmental objectives to be achieved by the end of 2015 through the implementation of Integrated Water Resources Management (IWRM) principles. While at this stage it is premature to measure the impact of this Directive in terms of environmental outcomes, it is nonetheless important to develop indicators in order to monitor whether water management practices throughout Europe are aligning towards IWRM. This article presents the methodological development of the Water and Wetland Index, a comparative water policy assessment by environmental NGOs that was carried out in 2002–2003, and highlights the interest of repeating it in 2015, when the first WFD planning cycle will be completed.     

Will participation foster the successful implementation of the water framework directive? The case of agricultural groundwater protection in northwest Germany

The Water Framework Directive (WFD) calls for various modes of public. These participation and involvement. These are judged as key factors to support the successful implementation in terms of attaining a good water status. This paper aims to explore the role of the 'active involvement' of stakeholders for the effective implementation of the WFD regarding the specific problem of reducing agricultural nitrate pollution of groundwater. Our case of reference is the Hase river catchment in northwest Germany, which is a paradigmatic example of an intensive livestock farming region with high nitrate intakes in groundwater. Emphasis is placed on the various forms of involvement that have recently been or will soon be established in northwest Germany at different spatial and administrative scales. We argue that although the WFD refers to whole river basins as the central unit of governance, it is particularly the regional and local scales that will strongly influence the implementation process. We identify different influencing factors and scenario paths, demonstrating both the uncertainties at stake and the range of possible effects that different outcomes of participatory processes will have. These, in turn, are closely linked to the interests, perceptions and strengths of different actors. Identification of critical paths and decision points enables corridors to be mapped out regarding the anticipated success or failure of regional public participation to reduce diffuse agricultural groundwater pollution.     

Competition,Sustainability and Packaging Policy in the UK

This paper examines the use of economic instruments in the implementation of environmental policy, based upon a recent study into the European Union Packaging and Packaging Waste Directive (94/62/EC). It explores the introduction of competitionbased models in the UK implementation of the Directive, and assesses their ability to achieve positive environmentaloutcomes in a cost-efficient manner. Several problems for the competition model are discussed, particularly the fear of profiteering within marketbased systems by some economic operators; the behaviour of economic operators towards non-profitable market segments; the ability of free-market models to engender public participation in recycling programmes; and the failure of private sector solutions to consider the full environmental costs of packaging. Neo-liberalist competitive models do not address such problems convincingly, and therefore continued government intervention is required if the UK is to meet its targets under the EU Directive. Whilst economic instruments and competition provide avenues for a more effective environmental policy, there is a continuing need for government regulation rather than unquestioning faith in the benefits of the free market.     

Impacts of changes in water quality on recreation behavior and benefits in Finland

The implementation of the European Union Water Framework Directive (WFD) requires nationally generalizable estimates of the benefits of protecting inland and coastal waters. As an alternative to benefit transfers and meta-analyses, we utilize national recreation inventory data combined with water quality data to model recreation participation and estimate the benefits of water quality improvements. Using hurdle models, we analyze the association of water clarity in individuals' home municipalities with the three most common water recreation activities – swimming, fishing and boating. The results show no effect on boating, but improved water clarity would increase the frequency of close-to-home swimming and fishing, as well as the number of fishers. Furthermore, to value the potential benefits of the WFD, we estimate the consumer surplus of a water recreation day using a travel cost approach. A water policy scenario with a 1-m improvement in water clarity for both inland and coastal waters indicates that the consumer surplus would increase 6% for swimmers and 15% for fishers. In contrast to previously estimated abatement costs to improve water quality, net benefits could turn out to be positive. Our study is a promising example of applying existing national recreation inventory data to estimate the benefits of water quality improvements for the purposes of the WFD.