simon spooner university of macau 5th september 2011

中国中国——欧盟流域管理项目欧盟流域管理项目EU-China River Basin Management EU-China River Basin Management

ProgrammeProgramme

Water Allocation and Pollution Load Management … a very Chinese approach … Will it work?

Simon SpoonerUniversity of Macau5th September 2011

ObjectiveThe programme aims at supporting MWR, MEP and related Chinese partners to enhance integrated river basin management (IRBM) policies and practices through sharing EU experience and best practices.

TITLE RIVER BASIN MANAGEMENT PROGRAMME

Total Amount €186.5 M Project Duration 2007 – 2012

European CommissionGrant

€25 M:

- € € 88.3 M TA - € € 5.75.7 M Incidentals - €10 M Co-financing of CPRWRP

Chinese Contribution

€ 79 M (PRC budget)

€ 82.5 M (World Bank loan)

Consultants Consultancy Consortium

DHV BV (Netherlands) WS Atkins Int. Ltd (UK) COWI AS (Denmark) SWECO Int. AB (Sweden) Alterra BV (Netherlands)

Project Descriptive Data

Staffing: 4 EU Key Experts, 10 Support staff in 2 offices, YRCC, Zhengzhou and CWRC, Wuhan>250 short term experts from EU and China 5 months to 3 days each.

Contracting Agency: European

Commission Delegation

Executing Agency:

Ministry of Commerce

Implementing Agencies:

Ministry of Water

Resources

Ministry of Environmental

Protection

YRCC – Yellow River

Conservancy Commission

CWRC – Yangtze River Commission

Program area

Programme StructureProgramme Structure 项目结构项目结构

4.1 Awareness raising on EU WFD4.2 Testing of management practices4.3 Piloting of river basin management

mechanism5.1 Participatory sub-watershed

management, design and planning5.2 Participatory sub-watershed

implementation and replication5.3 CPRWRP MIS5.4 CPRWRP impact M&E

2.1IRBM Action Framework2.2Climate Change Adaptation3.1Institutional Strengthening Water

Pollution Control3.2Pollution Prevention and Control Plan3.3EWERS (Pollution incidents)3.4Clean Technology Promotion3.5Advanced Water Quality Monitoring

政策 / 中欧对话平台Policy/ EU-China dialogue platform

黄河Yellow River

长江Yangtze River

1.1 EU China Dialogue 1.2 Research Studies1.3 Capacity Building in IRBM1.4 Awareness Raising and Dissemination of Results

1.1 中欧对话1.2 研究1.3 流域综合管理能力建设1.4 意识提高和成果推广China - Europe

Water Platform

Yellow River

Main Factors:• Flooding: Raised river beds• Resource: Only 2% of National Total

- In 1997 ran dry 226 days- Now flows all year, but runoff reduced

• Quality: 55% worse than grade V- Only 20% of reaches grade III or better

•56 bm3 annual flow, •54 bm3 storage•1.6 BTons sediment flux

• 5400 km long• 795,000 km2 basin• 112 million people

Desiccated Yellow River

1683 60 74

122 136

226

142

420

50

100

150

200

250

1991年 1992年 1993年 1994年 1995年 1996年 1997年 1998年 1999年

days of the ri ver dryi ng i n Li j i n Stati on

1683 60 74

122 136

226

142

420

50

100

150

200

250

1991年 1992年 1993年 1994年 1995年 1996年 1997年 1998年 1999年

days of the ri ver dryi ng i n Li j i n Stati on

Changes of River Rhine 莱茵河的变化

Liao

Grade IGrade IIGrade IIIGrade IVGrade VWorse than Grade V

All Rivers

River Water Quality Grade:

River water quality in China

中国的流域水质As reported by MEP国家环保总局报告

96 97 98 99 00 01 02 03 04

96 97 98 99 00 01 02 03 0496 97 98 99 00 01 02 03 04

96 97 98 99 00 01 02 03 0496 97 98 99 00 01 02 03 04

96 97 98 99 00 01 02 03 04

96 97 98 99 00 01 02 03 04

96 97 98 99 00 01 02 03 04

96 97 98 99 00 01 02 03 04

96 97 98 99 00 01 02 03 04

96 97 98 99 00 01 02 03 04

96 97 98 99 00 01 02 03 04

96 97 98 99 00 01 02 03 04

MWR “Three Red Lines” 水利部三条红线

- water development and utilisation to control water quantity, 通过水资源开发和利用控制水质

- water use efficiency to curb waste of water提高用水效率杜绝浪费

- pollutant carrying capacity in water function zones to strictly control pollution discharge loads.通过水功能区纳污能力严格控制排污

总量控制红线总量控制红线 Red line of total amount controlRed line of total amount control

红线红线 1 1 Red line 1Red line 1

国家国家 StateState

流域流域 BasinBasin 省级区域省级区域 Provincial areasProvincial areas

城市城市 CitiesCities

中国水资源管理形势及实践Water Resources Management Situation and Practice in China

Water Allocation• Set Total: water allocation regulations set amount of surface water users are allowed to abstract and how

reservoirs are to be regulated to balance supply and demand.• Seasonal Adjustment: yearly water allocation plan is implemented through monthly regulating schemes

and, in times of high water demand, ten-day water regulating schemes. • Indexes: Yearly total water abstraction indices of the main stream and tributaries are set by YRCC, which

controls abstractions and reservoir releases. Adjust index in time of drought• Stakeholder Process: YRCC Prepare plans and assessments working closely with the Provincial Water

Resources Bureaus.• Ratify: Final plan agreed by Provincial Governors, then submitted to State Council• FYP: Yearly water allocation planning to be incorporated into regional socio-economic development plans.

Water Allocation• Negotiations based on a fixed baseline of 1987• Does not fully account for the changes in development levels over time• Deciding the Baseline problem for all water Trading Schemes

58 bcm total - 37 useable, 14 for sediment transport, 7 for Ecological restoration

• Accounts for need for sediment flows• Not yet clear on calculation of environmental flows• Based on long term water resource of YR, now may be much less• Water Allocation fully Utilised

Water Rights Transfer - Ningxia, Inner Mongolia Pilot

• New water user cannot get water drawing permit• Must arrange transfer from existing user• Invest in agricultural water saving• Be allowed to draw that water• Direct transaction places individual value on the water transfer.

中国水资源管理形势及实践Water Resources Management Situation and Practice in China

红线红线 3 Red line 33 Red line 3 水功能区纳污红线

Assimilative red line of Assimilative red line of water functional zonewater functional zone

No 1 Document on Water Quality improvement1 号文件 - 水质改善

- The approach is of total load management (article 21)总量控制管理（第 21 条）

- linked to setting of performance targets for officials to be incorporated to the existing system of letters of responsibility (article 22). 考察官员的绩效目标，并将其与当前的责任相联系

This is a quite radically different approach to EU, and possibly to anywhere else in the world. It is highly ambitious in terms of the technical and institutional tools required for implementation.这与欧盟及世界上其他地方有很大的不同，从实施的技术角度和制度层面都是很有挑战性的。

Mechanisms of WFD: 水框架指令的机制

• Characterise River Basins 流域的特点• Establish water bodies at Risk

• Establish Reference conditions 建立基准条件

• Monitoring 监测• Chemistry, Biology, Morphology 化学、生物、形态• One out all out

• Prepare River Basin Management Plans 准备流域管理规划

• Implement Programme of Measures 实施项目方法• Check progress 检查程序• Repeat Cycle 重复循环

Europe‘s waterbodies should achieve ‘good status’ by 2015 欧洲水体在 2015 年前应达到良好状态

No 1 Document on Water Quality improvement1 号文件 - 水质改善

- The approach is of total load management (article 21)总量控制管理（第 21 条）

- linked to setting of performance targets for officials to be incorporated to the existing system of letters of responsibility (article 22). 考察官员的绩效目标，并将其与当前的责任相联系

Pollution load Management• Sounds straight forward • But how to actually make it work?

• There are discharge standards which have been tightened• But no real equivalent of BAT• Currently no proper discharge permitting system

• Plan is for Pollution Load Based system

• MWR have guidelines for how to Calculate the Carrying Capacity and Pollution Load allocations SL 348-2006

• But getting into the detail of these encounters many uncertainties and problems

Pollution load Management• River catchment defined into Water Functional Zones • Calculate Carrying capacity

• COD and Ammonia• Based on Upstream standard• 90 percentile low flow• Standard Decay coefficients• Effective discharge point calculation

Downstream WFZ

水功能区下断面

Upstream WFZ

水功能区上断面

Effective discharge point*

有效污染物排放点

Flow and decay of pollutants污染物负荷消减

WFZ assessment point

水功能区评价点

* Effective discharge point is calculated by taking an average position of all discharge points, weighted by pollutant load.有效污染物排放点的计算方法是，使用每个点源的污染负荷量，计算得出所有污染物排放点的平均负荷。

Pollution load Management• Calculate pollution load allocation

• Compare the known discharges to the Carrying Capacity• If less than Carrying capacity then leave as are• Apply industry standards, Still greater than CC?• If still greater then apply proportional reductions to meet Carrying capacity• Meets WFZ standard now?? … Doubt it!

Downstream WFZ

水功能区下断面

Upstream WFZ


Effective discharge point*





* Effective discharge point is calculated by taking an average position of all discharge points, weighted by pollutant load.有效污染物排放点的计算方法是，使用每个点源的污染负荷量，计算得出所有污染物排放点的平均负荷。

Some Problems with Pollution load system污染负荷管理系统的问题

- Definition of Flow regime 定义流态- Not River basin approach – Reaches are disconnected

并非流域理念-河流是不连续的- Takes no account of actual river water quality data

不考虑实际的河流水质数据- Diffuse pollution is not considered 不考虑面源污染- Uncertainty in Data and models not managed数据和模型的不确定性- Abstractions and diversions not properly considered

没有适当考虑取水和调水- Problems of data sharing between sectors部门之间数据共享问题- Timetable for attainment not defined没有目标实现时间表- Flow and quality solutions not yet linked流量和质量不匹配- Mechanisms for translating pollution load for river reach to discharge control for factory / town and objective for official 将河段污染负荷分解到工厂、城镇排污口的机制以及官员目标

RBMP Contribution to PL Allocation

• Enhanced Pollution Load management system• Model and GIS based system for undertaking the calculations. Ability to:

• extend calculation procedure to different flow regimes• consider diffuse sources• account for unknown data and uncertainty• Account for river basin network effects• Use actual water quality data, predict outcome of strategies to meet WFZ• Quantitative methods for

comparing strategies and future horizons.• Support of integration of

calculations to administrative process

Upstream WFZ


Abstraction –remove flow and

load 取水—取走流量和污染负荷

Effective discharge point


Catchment and unknown flows and

loads面源和未知污染源




Where is this Going?• Water Allocation

• Scientific assessment process • Passes to a stakeholder political negotiation process• Allocation of a scarce resource• Mechanisms for trading of the Water allocation• Currently internally in Provinces• Potential to make inter province / region at multiple administrative levels• Link water allocation and pollution allocation through Water Permit

• Compare to Europe where abstraction and discharge only loosely linked in most cases

Where is this Going?• Pollution Load Management

• Requires improved Scientific assessment process that accounts for all sources and Basin Network effects• Yet to establish stakeholder political negotiation process• Allocation of an overabundant liability• No Mechanisms for trading of the Pollution allocation (possible?)• Currently internal in River reach• Potential to make inter province / region at multiple administrative levels across River basin• Link water allocation and pollution allocation through Water Permit

• Link to administrative personnel performance assessment of CPC

• But system as presently conceived will not actually achieve WFZ objectives in an efficient way

Where is this Going? …. Future• Integrated Quantity and Quality Management

• Water Functional Zones to include comprehensive river health assessment - Accounts for Biology, morphology, social status, hydrology

• Design system to actually meet these Targets• Flow regime basis of Pollution Load calculation could match with the Water Allocation and environmental flows requirement

• The statutory Pollution load allocation system based on simple local principles in WFZ supplemented with River basin Level planning for optimised investment

• Models and Pollution indices may be used as mechanism for optimised planning of pollution control and Benefit Cost analysis.

中国水资源管理形势及实践 Water Resources Management Situation and Practice in China

取水许可制度

Water-drawing permit system

水资源管理制度Water resources

management system

水资源管理制度Water resources

management system

水资源论证制度

Water resources argumentation

system

水功能区管理制度

Management system in water functional zone

计划与节约用水制度

Planning and saving water system

入河排污口管理制度

Management system of sewage drainage outlet to

river

总量控制与定额管理Gross amount control and quota management

Conclusions 结论- Integrated River Health monitoring is now being introduced in China, based on best international practice

前流域健康综合监测的方法已经引进到中国，这些方法基于国际上最好的实践经验- Better mechanisms for pollution Load management are being developed, based on Chinese administrative

systems.

更好的污染负荷管理系统目前只在开发，基于中国的行政体系- Together these can help drive change and improvement

这些工作将带来变化和改进- Much Technical development still required

依然需要更多的技术- May seem confused now, but so did WFD 10 years ago

- Supporting guidance very important to evolution

谢谢Thank You

谢谢Thank You

Very different from

EU

Will it Work??

Very different from

EU

Will it Work??

管理规定• 《建设项目水资源论证管理办法》 ( 修订 )• 《建设项目水资源论证资质管理办法》（修订）• 《建设项目水资源论证论证报告书审查工作管理规定》 ( 修订 )• 《建设项目水资源论证条例》（起草）• 《建设项目水资源论证表》（起草）技术标准• 《建设项目水资源论证导则》（修订）• 《水利水电建设项目水资源论证导则》（ 2011 ）• 《重点行业项目水资源论证》（在编） Administrative provisions• Administrative Measures for Water Resources Argumentation of Construction Projects (revision)• Administrative Measures for the Qualification of the Water Resources Argumentation of Construction Projects (revision)• Administrative Provisions for Examination of the Water Resources Argumentation Report of Construction Projects (revision)• Clauses of the Water Resources Argumentation of Construction Projects (draft)• Water Resources Argumentation Form of Construction Projects (draft) Technical standards • Guidelines for the Water Resources Argumentation of Construction Projects (revision)• Guidelines for the Water Resources Argumentation of Water Conservancy and Hydroelectricity Construction Projects (2011)• The Water Resources Argumentation of the Projects of Key Industries (being compiled)

论证制度政策和技术体系论证制度政策和技术体系 The argumentation system policies and the technical systemsThe argumentation system policies and the technical systems

II. 水资源论证制度的建立与发展II. The Establishment and Development of Water Resources Augumentation System

Compare to EU 与欧盟相比Combined approach 综合方法• Discharge Standards 排放标准

• Best available Technology 最佳可用技术

• River needs / Ecological outcomes 生态治河

Economically viable 经济可行

Trade Trade DischargeDischargeagreementagreementFlow & ConcentrationFlow & ConcentrationFlow & Concentration

DischargeDischargePermitPermit

Flo

w &

Lo

adF

low

& L

oad

Flo

w &

Lo

ad

To WWTWTo WWTWOr Or Direct to RiverDirect to River

River Reach河段

River Reach河段

Other Flow & LoadTotal Load

for Region

Total Load

for Region

WWTWWWTWWWTWWWTW

River BasinWQ Model

River BasinWQ Model

FactoryFactoryFactoryFactory

AbstractionAbstractionPermitPermit

Assimilative CapacityAssimilative Capacity

Allocation of Loads to Discharges


Economic Cost BenefitEconomic Cost Benefit

Domestic Wastewater


OrOrBAT ControlBAT ControlBAT ControlDischarge StandardsDischarge StandardsDischarge Standards

River Needs

River Needs

River Needs

River Reach 河段Pollution Load

Model污染负荷模型

Pollution LoadModel

污染负荷模型

企业企业


排放排放许可许可


排放排放许可许可

Other Flow & Load其他流量和负荷

Air DispersionModel

污染负荷模型

Air DispersionModel

污染负荷模型

DownstreamWater Functional Zone Target下游水功能区目标

Discharge Standards 排放标准

Best Available Techniques 最佳可行技术

Environmental Capacity

Environmental Capacity 环境容量

Discharge Standards 排放标准

Best Available Techniques 最佳可行技术

Environmental Capacity 环境容量

BAT ControlBAT ControlBAT ControlBAT ControlAcceptable Pollution Loadings可接受的污染负荷

Assimilative Capacity纳污能力

Assimilative Capacity纳污能力

Principles and Practice of IPPC Principles and Practice of IPPC 原则和实践的综合污染防治和控制

RBMP Contribution to PL Allocation• Enhanced Pollution Load management system• Model and GIS based system for undertaking the calculations. Ability to:

• extend calculation procedure to different flow regimes• consider diffuse sources• account for unknown data and uncertainty• Account for river basin network effects• Use actual water quality data and predict actual outcome of strategies to meet objectives• Provide quantitative methods for comparing strategies, outcomes and future horizons.• Support of integration of calculations to administrative process

Catchment Model

流域模型

Point

点源Diffuse

面源

Abstractions

取水

Catchment Model

流域模型

Point

点源Diffuse

面源

Abstractions

取水 River Flows

河流流量

River water quality

河流水质

River Flows

河流流量

River water quality

河流水质

GIS / Database GIS

数据库GIS / Database GIS

数据库

Model模型校正Model模型校正

Scenarios管理与干预方案的模拟

Scenarios管理与干预方案的模拟

River Basin Indexing河流流域指数

River Basin Indexing河流流域指数

Monitoring Data监测数据

Monitoring Data监测数据

Data processing 数据处理

Discharge / Abstraction

Impact取水/排水影响

Discharge / Abstraction

Impact取水/排水影响

Intervention Ranking

采取的措施排序

Intervention Ranking

采取的措施排序

Economic Cost of Projects

项目经济成本

Economic Cost of Projects

项目经济成本

Schematic of River Basin Water Quality Calculations and Model

河流流域水质模型示意图

River ReachAssimilative

Capacity analysis流域纳污能力分析

River ReachAssimilative

Capacity analysis流域纳污能力分析

Plan to meet River objectives达到河流水质目标的计划

Plan to meet River objectives达到河流水质目标的计划

Time of travel

时间

Decay Coefficients

衰减系数

Time of travel

时间

Decay Coefficients

衰减系数

Transport FactorsTransport Factors

WFZ ComplianceSituation

水功能区符合情况

WFZ ComplianceSituation

水功能区符合情况Water Function

Zoning objectives水功能区目标

Water Function Zoning objectives水功能区目标

Total Load Allocations总量分配

Total Load Allocations总量分配

Point 点源

Diffuse面源

Trans-jurisdiction Reach Planning跨界河段规划

Trans-jurisdiction Reach Planning跨界河段规划

Catchment and reach Data

Flow Scenarios (Ave, 75%ile, Dry etc)

流量模拟(平均,75%保证率,旱季等等)

Water Allocation Plan水量调度方案

Flow Scenarios (Ave, 75%ile, Dry etc)

流量模拟(平均,75%保证率,旱季等等)

Water Allocation Plan水量调度方案

Joint pollution control

Planning

联合控制污染规划

Joint pollution control

Planning

联合控制污染规划

EPB

Discharge Permit Controls环保局排污控制

许可

WWTP污水处理厂

WWTPWWTP污水处理厂污水处理厂

？

BOD, DO, NHBOD, DO, NH4, 4, N, P N, P

O2OO22

River Ecosystem zone河流生态区Abstraction取水Discharge排水

Urban城市UrbanUrban城市城市I ndustry工业I ndustryI ndustry工业工业

Livestock家畜LivestockLivestock家畜家畜

Agriculture农业AgricultureAgriculture农业农业

Fishery渔业FisheryFishery渔业渔业

Nature自然NatureNature自然自然

Reaeration/ Decay再曝气/衰减

ReaerationReaeration/ Decay/ Decay再曝气再曝气//衰减衰减

Groundwater地下水GroundwaterGroundwater地下水地下水

Groundwater地下水GroundwaterGroundwater地下水地下水

HydraulicStructures水文建筑物

HydraulicHydraulicStructuresStructures水文建筑物水文建筑物

AtmosphericDeposition大气沉降

AtmosphericAtmosphericDepositionDeposition大气沉降大气沉降

Permits许可 :Abstraction抽水Discharge排放

Monitoring监测

DataData数据数据

ControlsControls控制控制

ObjectivesObjectives目标目标

GIS

Model模型

StrategyStrategy战略战略

Water Resources水资源

Water qualityFunction Zones水质功能区

Planning / investment计划/投资

Enforcement执行

Integrated Water Resources Integrated Water Resources Protection PlanningProtection Planning加强水污染控制规划加强水污染控制规划

Integrated Water Resources Integrated Water Resources Protection PlanningProtection Planning加强水污染控制规划加强水污染控制规划

Flow & ConcentrationFlow & Concentration

估算的流量和浓度估算的流量和浓度

Flow & ConcentrationFlow & Concentration

估算的流量和浓度估算的流量和浓度


Flo

w &

Lo

ad

Flo

w &

Lo

ad

流量

和负

荷流

量和

负荷

Flo

w &

Lo

ad

Flo

w &

Lo

ad

流量

和负

荷流

量和

负荷

To WWTWTo WWTWOr Or

Direct to RiverDirect to River

River Reach 河段

Total Load

for Region区域排放总量

River BasinWQ Model

流域水质模型

River BasinWQ Model

流域水质模型

AbstractionAbstractionPermitPermit

取水许可取水许可

Assimilative CapacityAssimilative Capacity


工厂间的总量分配


工厂间的总量分配

Economic Cost BenefitEconomic Cost Benefit


BAT BAT ControlBAT BAT Control Discharge StandardsDischarge Standards排放标准

Discharge StandardsDischarge Standards排放标准

River Needs

River Needs

河流需求River N

eeds

River Needs

河流需求 WWTWWWTW

污水处理厂污水处理厂

企业企业

simon spooner university of macau 5th september 2011

Documents