A systemic approach to managing multiple perspectives and stakeholding in water catchments: some findings from three UK case studies

As the EU-wide Water Framework Directive enters into public policy, the UK faces significant challenges in managing its water resources, including exceptional flood and drought events in recent years. New legislation is resurfacing existing conflicts and generating new debates among multiple stakeholders about managing water catchments. Existing policies and practices are under strain as a result. This paper reports how the SLIM project in the UK researched the role of a systemic approach to managing multiple perspectives and stakeholding in water catchments and the new challenges this presents to existing forms of knowledge and practice. The authors apply the conceptual tradition of systems thinking and practice, and the methodological approach of systemic co-researching inquiry to empirical studies in the Tweed, the Ythan, and the Eye Brook catchments, in the context of a review of policy and practice in the UK. The extent to which systems approaches to multiple stakeholding can lead to social learning for concerted action is considered. An assessment of the implications of the research findings for policies and practices in managing water catchments concludes the article.     

Integrating water management and principles of policy: towards an EU framework?

The EU Water Framework Directive requires Member States to organise the management of their water systems in an integrated manner, based on the natural boundaries of the water systems; the river basins. A river basin approach implies the integration of policymaking and management throughout a set of different functional uses and spatial scales. Another innovation of the Directive is the introduction of recovery of costs for water services, taking account of the polluter-pays principle. By 2010, water-pricing polices will have to provide adequate incentives for users to use water resources efficiently, and thereby contribute to the environmental objectives of the Directive. Other principles, such as the precautionary principle, are becoming increasingly important in the management of water resources as well. The translation of those principles into policy in the several Member States may however diverge. We present an overview of policy principles that play a role as basic assumptions in water management. Environmental policy principles have gradually been introduced in European legislation. From being part of a declaration of the Council, they have evolved to a basis for action in the environmental field and currently they also find wide application in the context of water management. While focusing on the EU Water Framework Directive, we investigate whether and how these principles can be reconciled with a framework for integrated water management.     

Towards the harmonization of water-related policies for managing drought risks across the EU

Drought is recognized as a major issue in the EU, particularly in the Mediterranean region, posing risks to the environment as well as to local and regional economies. The EU policy on water management is continuously evolving, particularly in relation to water scarcity and drought. Starting with the Water Framework Directive (2000/60/EC), which sets the general policy framework for water management across the EU, the EC Communication on Water Scarcity and Drought COM(2007) 414 final set the priorities for managing water scarcity and drought risks. Three follow-up reports (COM(2008) 875 final, COM(2010) 228 final and COM(2011) 133) highlighted achievements and yearly progress within the context of the implementation of the Water Framework Directive, whereas guidance has further been provided through the issue of Technical Reports (e.g. the EC Water Scarcity Drafting Group Technical Report 2008–023 on Drought Management, Including agricultural, drought indicators and climate change aspects). The 2012 EU Water Review (“Blue Print for Safeguarding European Waters” will assess achievements and identify further requirements towards long-term sustainable water use across the EU. However, a harmonized approach on drought risk management at the EU level is still lacking, whereas drought risk in several countries and regions has not been yet fully integrated in water management and relevant sectoral policies.This paper focuses on a proposed paradigm shift from crisis to risk management, which is currently gaining ground as a means of reducing societal vulnerability to droughts. The paper underlines the importance of engaging into risk assessment and management practices and identifies policy gaps and requirements for further improvement of the drought management policy framework at all levels of governance: at the EU, at the national and at the river basin and regional levels.     

《欧盟水框架指令》下的地表水环境管理体系及其对我国的启示

《欧盟水框架指令》是欧盟制定的水环境管理政策,为其成员国的水环境管理提供了共同的目标、原则、定义和方法.自2000年颁布实施以来,该指令致力于让欧洲的水环境能够同时满足人类自身的需求和动植物群落的需要,其先进的水环境评价体系、严格的污染管理标准、科学的水生态保护理念和法律效力都在水生态环境保护领域发挥了重要作用.该研究综述了欧盟水框架指令从关注生活生产到生态保护、从单一到整体的发展历程和地表水环境管理体系的主要内容,系统总结了欧盟地表水水质评价体系、水质监测和流域综合管理政策及其管理理念先进、标准制定严格和生态保护科学和法律效力优先的特点,并对比分析我国的地表水环境质量标准和水生态环境管理现状,以期学习、借鉴和吸收国际水生态环境管理的有益经验,为我国的水生态环境管理提供新思路和新方法.      

Groundwater dependent ecosystems. Part II. Ecosystem services and management in Europe under risk of climate change and land use intensification

Groundwater in sufficient amounts and of suitable quality is essential for potable water supplies, crop irrigation and healthy habitats for plant and animal biocenoses. The groundwater resource is currently under severe pressure from land use and pollution and there is evidence of dramatic changes in aquifer resources in Europe and elsewhere, despite numerous policy measures on sustainable use and protection of groundwater. Little is known about how such changes affect groundwater dependent ecosystems (GDEs), which include various aquatic and terrestrial ecosystems above ground and inside the aquifer. Future management must take this uncertainty into account. This paper focuses on multiple aspects of groundwater science, policy and sustainable management. Examples of current management methods and practices are presented for selected aquifers in Europe and an assessment is made of the effectiveness of existing policies such as the European Water Framework Directive and the Habitat Directive in practice and of how groundwaters and GDEs are managed in various conditions. The paper highlights a number of issues that should be considered in an integrated and holistic approach to future management of groundwater and its dependent ecosystems.     

Stalled regime transition in the upper Tisza River Basin: the dynamics of linked action situations

In river basins transformation from traditions of reactive flood defense to more adaptive management regimes is difficult. How regime components reinforce each other to set its development path may induce inertia and path dependency. Transformation may require profound shifts in the institutions, technologies, and personnel as well as the ecological, economic and social processes they influence in setting the basin's trajectory. Regime change has become an issue in Hungary following repeated failures of conventional management policies to handle a series of floods on the Tisza river starting in 1997. Increasing public participation pushed water policy debate toward more experimentation with alternatives, but implementation appears stalled. In this paper we review hypotheses about what factors are bridges or barriers to transformation and then use the Management Transition Framework to examine how the interactions linking action situations, operational outcomes, knowledge and institutions influenced the river management policy debate in Hungary from 1997 to 2009. Specifically we examined which factors characteristic of conventional Control vs. progressive Adaptive management regimes influenced these interactions in ways that contributed to or hindered transformation. We found that governance and social learning issues predominated, with lesser roles played by factors related to integration of sectors and different levels in the science and policy of river management.     

Quantification and control of microbial pollution from agriculture: a new policy challenge?

Faecal indicator organisms (FIOs) are commonly used to quantify pollution of public health significance. Health protection, as indexed by FIO control, is a central aim of new ‘catchment-scale’ water quality management required in the USA by the Clean Water Act and in the European Union (EU) by the Water Framework Directive (WFD). Experience of the former, after a decade of implementation, suggests that the most significant reason for water quality ‘impairment’ is elevated FIO concentrations, mainly in recreational and shellfish harvesting waters. This provides an early warning of possible problems which the EU regulatory authorities are likely to face. To date, however, a surprising lack of EU attention has been given to prediction and control of catchment fluxes of this key parameter. This is likely to prove embarrassing if the experience of the US regulatory community is not acted upon with some urgency. There is a growing, though still partial, body of empirical science to form the ‘evidence-base’ for good regulatory practice. However, adoption of ‘best management practices’ (BMPs) to effect remediation of impacted waters will require close integration of water policy with policies on financial support for the farming community. This is likely to require enhanced communication and integration within the discrete policy communities addressing the agricultural sector through the Common Agricultural Policy and water regulation through the Water Framework Directive.     

Coping with change: responses of the Uzbek water management regime to socio-economic transition and global change

Water management in Uzbekistan (Central Asia) is facing tremendous challenges. They are rooted in past and present environmental degradation, the socio-economic transition after the breakup of the Soviet Union, and the impacts of climate change. The Uzbek government has initiated reforms in the agricultural and water sectors to steer the socio-economic transition and address the threats of increasing water scarcity and decreasing agricultural productivity. However, despite the urgency of the problems and massive international assistance changes to the water management regime have only been minimal so far. In this paper we identify major structural barriers for adaptation of the water management regime through an analysis of two recent policy processes. Both processes address pressing water management issues such as “coping with extreme events” and “providing water for ecosystems”. They were analyzed using the Management and Transition Framework as well as a group model building exercises with stakeholders on the national, regional and local levels. The analyses reveal a lack of vertical integration across administrative levels of the formal system and a still prevailing strong centralization of water management. Moreover the water management regime is strongly influenced by informal institutions that shape the outcomes of policy processes. The interactions guided by informal institutions provide an informal link between different administrative levels of the regime. However, those informal networks and the social capital embedded in them rather prevent needed changes. The resulting combination of top down institutional change initiated by socio-economic transition and bottom-up consolidation of the existing status quo via informal processes and networks prevents social learning. It also slows down an adaptation process that potentially could lead to a transition towards a more adaptive regime.     

深圳东部引水水源工程水量水质统一管理的可靠性分析

深圳市东部引水工程，是一项缓解深圳市水资源短缺、促进经济稳定发展、重要跨流域调水工程。工程的管理必须考虑水量、水质、社会经济等多方面的因素，基于水量，水质统一管理的可靠性计算，对工程的可持续发展决策与管理是必需的和有实际意义的，分析传统水资源系统可靠性准则的不足之处，结合工程实际，提出了基于水量、水质统一的水资源系统多准则可靠性评价准则，通过可靠性分析，为深圳东部引水水源工程提供了科学合理的运行管     

Forecasting the effects of EU policy measures on the nitrate pollution of groundwater and surface waters

We used the interdisciplinary model network REGFLUD to predict the actual mean nitrate concentration in percolation water at the scale of the Weser river basin (Germany) using an area differentiated (100 m × 100 m) approach.REGFLUD combines the agro-economic model RAUMIS for estimating nitrogen surpluses and the hydrological models GROWA/DENUZ for assessing the nitrate leaching from the soil.For areas showing predicted nitrate concentrations in percolation water above the European Union (EU) groundwater quality standard of 50 mg NO 3 -N/L,effective agri-environmental reduction measures need to be derived and implemented to improve groundwater and surface water quality by 2015.The effects of already implemented agricultural policy are quantified by a baseline scenario projecting the N-surpluses from agricultural sector to 2015.The REGFLUD model is used to estimate the effects of this scenario concerning groundwater and surface water pollution by nitrate.From the results of the model analysis the needs for additional measures can be derived in terms of required additional N-surplus reduction and in terms of regional prioritization of measures.Research work will therefore directly support the implementation of the Water Framework Directive of the European Union in the Weser basin.     

Forecasting the e ects of EU policy measures on the nitrate pollution of groundwater and surface waters

We used the interdisciplinary model network REGFLUD to predict the actual mean nitrate concentration in percolation water at the scale of the Weser river basin (Germany) using an area di erentiated (100 m 100 m) approach. REGFLUD combines the agro-economic model RAUMIS for estimating nitrogen surpluses and the hydrological models GROWA/DENUZ for assessing the nitrate leaching from the soil. For areas showing predicted nitrate concentrations in percolation water above the European Union (EU) groundwater quality standard of 50 mg NO3-N/L, e ective agri-environmental reduction measures need to be derived and implemented to improve groundwater and surface water quality by 2015. The e ects of already implemented agricultural policy are quantified by a baseline scenario projecting the N-surpluses from agricultural sector to 2015. The REGFLUD model is used to estimate the e ects of this scenario concerning groundwater and surface water pollution by nitrate. From the results of the model analysis the needs for additional measures can be derived in terms of required additional N-surplus reduction and in terms of regional prioritization of measures. Research work will therefore directly support the implementation of the Water Framework Directive of the European Union in the Weser basin.     

Headwater streams: neglected ecosystems in the EU Water Framework Directive. Implications for nitrogen pollution control

The European Union Water Framework Directive (WFD) aims to achieve the “good status” of waters by 2015, through monitoring and control of human impacts on “bodies of surface water” (BSWs), discrete elements for quality diagnosis and management. Headwater streams, however, are frequently neglected as they are not usually recognised as BSW. This poses limitations for the management of river catchments, because anthropogenic impacts on headwaters can constrain the quality of downstream rivers. To illustrate this problem, we compared nitrate levels and land use pressures in a small agricultural catchment with those recorded in the catchment in which it is embedded (Ega), and in the Ebro River Basin (NE Spain) comprising both. Agriculture greatly influenced water nitrate concentration, regardless of the size of the catchments: R² = 0.91 for headwater catchments (0.1–7.3 km²), and R² = 0.82 for Ebro tributary catchments (223–3113 km²). Moreover, nitrate concentration in the outlet of a non-BSW small river catchment was similar to that of the greater downstream BSW rivers. These results are of interest since, despite representing 76% of the length of the Ega catchment hydrographical network, only 3.1% of the length of the headwater streams has been identified as BSWs. Human activities affecting headwater streams should therefore be considered if the 2015 objective of the WFD is to be achieved.     

Adapting regional eutrophication targets for surface waters—influence of the EU Water Framework Directive, national policy and climate change

Large amounts of waterborne nutrients are major problems for society since they can cause harmful algal blooms in surface water bodies. Consequently, there are a variety of national and international guidelines, e.g. Swedish National Environmental Quality Objectives and the EU Water Framework Directive, which include targets to be achieved within a certain time frame. This paper uses the example of a large Swedish lake to show that national and international targets must be adapted to the local situations. Despite decreasing nutrient concentrations, cyanobacterial blooms in the lake have increased over recent years. We found that these blooms coincide with depleted nitrate–nitrogen concentrations and increased water temperatures. We propose a simple model with water temperature, nitrate–nitrogen and total phosphorus concentrations as input variables as a basis for formulation of regional eutrophication targets. Political decisions should be preceded by open discussion between policymakers and scientists to differentiate between real knowledge, assumptions or feelings. For optimal results, recommendations for reducing nutrient load should consider all sources, including urban stormwater and wastewater from rural houses, and should be founded on a balanced reduction in emissions of algae-available nutrients. In addition, climate change calls for more effective environmental policy to protect surface water resources.     

Making water policy work in the United Kingdom: A case study of practical approaches to strengthening complex,multi-tiered systems of water governance

We propose a suite of actions for strengthening water governance in contexts with complex, multi-tiered arrangements. In doing so, we focus on the collective water policies and approaches of the United Kingdom (UK), including those of devolved governments, which confront a host of serious water-related challenges—from massive flooding of urban areas and agricultural lands, to pressure on aquifers from rising water demand and drought. Further complexity in addressing these challenges has emerged in the wake of the June 2016 vote to leave the European Union (EU), so-called ‘Brexit’, and the ensuing ‘separation process’ with uncertainties for institutional and governance arrangements to follow. We make ten proposals for improving and reinvigorating water policy in complex, multi-layered situations, and comment specifically on their application in the UK setting. These are: put in place a system-wide water policy; fully embrace community-led nested river basin planning and management; fully fund river basin planning and management; re-focus the policy framing; use best-available data and information; create conversational spaces and become a more water-literate society; mobilise people; support and sustain core community networks; underpin river basin plans with regulatory provisions and effective monitoring and enforcement; and address systemic institutional amnesia. Individually and collectively, we contend that these actions will have a marked effect on transforming the planning and management of water resources. A system-wide water policy that maintains and builds on the substantive biophysical and socio-economic benefits delivered through implementation of the EU Water Framework Directive, together with the more recent Floods Directive, will galvanise stewardship of water in the UK. We urge more active engagement with and empowerment of the multiplicity of system ‘actors’, and highlight the role of non-government actors in a post-Brexit world as conduits for reaching out to and connecting directly with a wide range of water-related actors, especially across the EU. While attention to-date has focused on a plethora of specifically water-related projects, initiatives, plans and regulations, what is really needed is a systemic, long-term view of water resource management.     

Governance of complex environmental situations through social learning: a synthesis of SLIM's lessons for research,policy and practice

This synthesis of the SLIM project findings deals with the development and deployment of knowledge and research that is useful for actions that transform at socially and ecologically meaningful scales. A diagnostic framework (DF) is elaborated that aims to transform the findings into a tool that could bring stakeholders, in other contexts, to understand better their own roles in complex natural resource management situations. The DF invites the user to engage in successive stages of comprehension by exploring: what are complex situations of change about? What are the main components involved? Why are these components important? How do they influence what we know and how we act? What could be our role in changing the situation? We identify five ‘variables’ that together can account systemically for transformation processes that are constituted in social learning and concerted actions. We show how the DF may be used in situations of complexity and uncertainty by researchers, acting variously as observer, facilitator or co-researcher, and how it may help to guide research practice. We conclude by consolidating key messages about the relationship between knowledge, research, and policy and the main implications for water managers of being open to social learning processes.     

Nitrate transport in Chalk catchments: monitoring,modelling and policy implications

Rising nitrate levels have been observed in UK Chalk catchments in recent decades, with concentrations now approaching or exceeding legislated maximum values in many areas. In response, strategies seeking to contain concentrations through appropriate land management are now in place. However, there is an increasing consensus that Chalk systems, a predominant landscape type over England and indeed northwest Europe, can retard decades of prior nitrate loading within their deep unsaturated zones. Current levels may not fully reflect the long-term impact of present-day practices, and stringent land management controls may not be enough to avert further medium-term rises. This paper discusses these issues in the context of the EU Water Framework Directive, drawing on data from recent experimental work and a new model (INCA-Chalk) that allows the impacts of different land use management practices to be explored. Results strongly imply that timelines for water quality improvement demanded by the Water Framework directive are not realistic for the Chalk, and give an indication of time-scales over which improvements might be achieved. However, important unresolved scientific issues remain, and further monitoring and targeted data collection is recommended to reduce prediction uncertainties and allow cost effective strategies for mitigation to be designed and implemented.     

环境安全与可持续发展

本文已经提出了如果将环境安全作为人类安全被实现。那就需要较好的环境治理。环境安全可以被理解为一系列的价值观、原则、政策、技术、体制和程序,由此,社区与社会管理环境和自然资源以透明、负责任的参与和公平的方式克服可持续发展的障碍。可持续发展与环境安全是否相互依存、相互促进还需要进一步论证。环境安全和可持续发展之间的关系也常常解释为实际的产出。社会性学习对于应对有关的不安全环境,并导致不可持续发展的挑战至关重要。社会必须利用信息共享、传播和共同的理解改进决策而发展适应改变的能力。这只有通过发展学习型社会才能成为可能。环境安全和可持续发展是社会性学习的产出,而且所有相关方利用创新方法的环境友好政策,是基于环境安全和环境治理的原则为基础的,大大地推动了生态系统的管理、性别公平、尊重人权、解决冲突、建立社区信任为应对未来的意外或潜在风险和新的挑战需要适应性管理,建立社会和生态系统恢复。应集中努力改进人们的生活质量,不要使用超过环境所能承受的自然资源能力。     

What kinds of knowledge,knowing and learning are required for addressing resource dilemmas?: a theoretical overview

This paper considers what kinds of knowledge, knowing and learning are required for addressing resource dilemmas in the context of sustainable development. It also explains why and how the SLIM project focused on social learning for managing water resources. The range of learning theories that informed SLIM are discussed, as is the historical pattern of lineages, relationships and discontinuities among these and other theories. Whilst conceptions of social learning are contested, most perspectives raise questions about the nature of knowledge and knowing. It is argued that becoming aware of our assumptions regarding learning, knowing and how we develop knowledge, can help us find out more about what we need to know.The nature of resource dilemmas, implications for learning, what learning involves, its interdisciplinary nature and its history of ideas are all considered. An overview of learning theories is given, explaining their potential relevance for researchers, policymakers and practitioners in environmental contexts. The discourse, theory and practice of social learning and factors that influenced the choice of social learning theories by SLIM researchers are discussed. The paper concludes by considering how understanding what social learning involves can contribute, in a practical way, to dealing with resource dilemmas.     

Harnessing expert-based information for learning and the sustainable management of complex socio-ecological systems

Human-used and managed natural resources, such as watersheds, represent complex socio-ecological systems where learning from different knowledge sources is essential for sustainable management. Guided by the advocacy coalition framework, the paper presents a set of propositions that help explain the different functional uses of expert-based information, the network position of scientific experts, and learning within and between coalitions. Most importantly, the paper investigates common assumptions about the superiority of consensus-based institutions for integrating science into policy-making by examining two collaborative and two adversarial policy subsystems. The findings show that the scientists’ centrality as coalition allies and opponents is lower in collaborative policy subsystems than in adversarial policy subsystems. The findings suggest a more hospitable setting for learning and sustainability in the management of natural resources in collaborative compared to adversarial subsystems. The paper concludes with suggestions for future research in sustainability and learning.     

Evaluating catchment-scale models for diffuse pollution policy support: some results from the EUROHARP project

The EU Framework V EUROHARP project evaluated the performance of a representative range of nutrient pollution tools used for policy support across a network of six representative catchments covering a north–south gradient in climate, hydrology, soils, and land use. The main objective was a detailed evaluation of model performance, strengths and weaknesses, and ranges of applicability. Model performance was assessed against measured data by an expert group. A range of models was tested and compared, including the EveNFlow model of daily flow and nitrate concentrations, and the PSYCHIC model of monthly total phosphorus loads.The outputs from the EUROHARP project have a number of important implications for the use of models to support diffuse pollution policy in the EU. The outcomes suggested that the policy support tools tested are capable of acceptable performance in modelling flows, nutrient concentrations and loads in five out of the six test catchments considered by the study. Results also demonstrated that diffuse pollution tools can be successfully applied to catchments where agricultural practices contrast markedly from those characterising the study areas underpinning the development of individual models. Such adaptability conveys significant benefits by demonstrating that some diffuse pollution tools have the flexibility required for demanding and strategic policy support purposes.