ENVIRONMENTAL PROGRAMME FOR THE DANUBE RIVER BASIN
STRATEGIC ACTION PLAN
FOR THE
DANUBE RIVER BASIN
1995 - 2005
BY THE TASK FORCE FOR THE PROGRAMME
PREFACE
The Environmental Programme for the Danube River Basin, conceived in Sofia in September 1991 and started in 1992, following agreement between its parties on a Work Plan and establishment of a Task Force (Annex II), provides for joint action over a period of three years to commence the task of improving environmental management in the basin. The drafting of a Strategic Action Plan for the Danube River Basin was one of the main tasks of the Environmental Programme.
As Chairman of the Task Force, on behalf of the European Commission, I welcome the Strategic Action Plan which is an essential early step towards addressing the Danube Basin's environmental problems in a comprehensive way.
The drafting of the Action Plan has been the task of a special group, mandated by the Task Force, comprising experts from Austria, Bulgaria, Hungary, and Romania representing the Danubian countries; the European Commission; the United Nations Development Programme acting for the Global Environment Facility; the World Bank and the Danube Programme Coordination Unit. A special word of appreciation goes to the members of the drafting group for their essential work.
The Action Plan is based upon a number of reports available to the Programme from relevant studies undertaken in the Danube River basin as part of the process of preparing the Action Plan. National reviews of the environmental situation in the Danubian countries have also formed part of the basis for the Action Plan.
Wide consultations on the contents of the Action Plan took place in three stages and have served to safeguard full participation in the process of preparation. The Danube Programme Country Coordinators arranged open forum meetings at which there was broad participation of Government, district and local officials, and the public.
The Task Force approved the Strategic Action Plan at its meeting in Bled on 28 October, 1994. The Environment or Water Ministers of the Danubian Countries and the Member of the European Commission responsible for the Environment endorsed the Strategic Action Plan in the Ministerial Declaration of Bucharest, on 6 December, 1994.
It is my hope that this Strategic Action Plan will serve as an important tool for policy planners, decision- makers and other individuals concerned to improve the environmental situation in the Danube River Basin.
Tue ROHRSTED
Chairman of the Task Force
EXECUTIVE SUMMARY
The development of the Strategic Action Plan has been a major task of the Environmental Programme for the Danube River Basin, which started in 1992. The Action Plan makes a significant contribution to the effort to improve environmental management in the Danube Basin. It supports and complements the Convention on Cooperation for the Protection and Sustainable Use of the Danube River Basin (DRPC) which was signed last June, and contributes to the implementation of the Environmental Action Programme for Central and Eastern Europe.
This document consists of two parts. Part I introduces the Plan (chapter 1); describes the goals, targets and actions to be undertaken (chapter 2); and discusses the problems related to financing implementation (chapter 3). Part II contains a description of the environment in the Danube River basin (chapter 4) and examines these problems and solutions in relation to the goals of the Action Plan (chapter 5). A glossary of terms used in the Action Plan is given in Annex I, a list of the members of the Task Force and Programme Coordination Unit in Annex II, a bibliography of documents produced under the Danube Programme in Annex III, and a brief description of the Accident Emergency Warning System in Annex IV.
Background
The Danube River is 2 857 km long; the basin covers 817 000 sq. km in 17 countries in the heart of central Europe. This includes many important natural areas, including the Danube delta - the second largest natural wetland area in Europe. The basin supports the supply of drinking water, agriculture, industry, fishing, tourism and recreation, power generation, navigation, and the end disposal of waste waters. These intensive agricultural, industrial and urban uses have created problems of water quality and quantity, and reduced biodiversity in the basin.
The most important problems (not in order of importance) affecting the health of the Danube River ecosystems and the water users in the basin are the high nutrients loads (nitrogen and phosphorus), changes in river flow patterns and sediment transport regimes, contamination with hazardous substances including oils, competition for available water, microbiological contamination, and contamination with oxygen depleting substances.
Wastes from cities and industries, chemical fertilisers, and manure from intensive and large-scale livestock operations are polluting the river system and the groundwater, raising nutrient levels and causing eutrophication. Other highly polluting activities include petrochemicals processing, iron and metal processing, timber, paper and pulp, and municipal solid waste disposal. Microbiological contamination is a problem throughout the river basin; it is generally caused by the discharge of urban waste and storm waters, as well as by livestock and agricultural run-off.
Inadequate waste treatment and disposal mean that urban and industrial discharges contribute significant quantities of substances causing heterotrophic growth and oxygen depletion.
Practices and policies in different sectors can be a cause of environmental problems or a constraint to effective action. Most of the sources of the pollution problems and water quantity problems result from the activities of cities, rural towns and villages; industry, energy production and transport; and agriculture.
The key actors for change are the public authorities, public and private enterprises, non-governmental organisations (NGOs) and the general public. Governments at national, district and local level define and implement regulatory programmes; they can play an important role in providing incentives, removing obstacles, and creating a climate which supports effective integrated water management. Local and international financing institutions will play a key role in providing the large sums of money to bring about the necessary actions and improvement.
Significant progress towards reducing pollution has been made in Germany and Austria. The economic transition that the majority of the countries are now undergoing has caused industrial and agricultural production to decline, thus temporarily reducing pollution loads. This has created a breathing space and an opportunity to integrate environmental objectives into industrial and agricultural policies before economic activity picks up.
The countries of the Danube River basin and interested governments and international institutions met in Sofia, in September 1991, to draw up an initiative to support and reinforce national actions for the restoration and protection of the Danube River - the Environmental Programme for the Danube River Basin (known as the Danube Environmental Programme). The countries, as a result, set up a Task Force and a Programme Coordination Unit. The Danube Environmental Programme supports monitoring, data collection and assessment, emergency response systems, and preinvestment activities which provided for an analysis of 17 tributary catchments in the basin. Alongside these, the Programme supports institutional strengthening, capacity building and NGO activities. A number of reports have been prepared, which are listed in Annex III. The procurement of sampling and analysis equipment is under way. An Accident Emergency Warning System for the Danube River basin (AEWS) has been designed, and procurement of equipment and training are being contracted. A number of actions identified in the Preinvestment Studies are under preparation for financing.
Furthermore, the Danube River basin countries and the European Union signed the Convention on Cooperation for the Protection and Sustainable Use of the River Danube (the Danube River Protection Convention) on 29 June 1994, in Sofia. The Convention is aimed at achieving sustainable and equitable water management. The signatories have agreed to cooperate on fundamental water management issues by taking: `all appropriate legal, administrative and technical measures to at least maintain and improve the current environmental and water quality conditions of the Danube River and of the waters in its catchment area and to prevent and reduce as far as possible adverse impacts and changes occurring or likely to be caused.'. (Art. 2.2) An International Commission will be legally established to provide a framework for regional cooperation under the Convention.
Purpose of the Strategic Action Plan
The Action Plan is an important result of the first three-year phase of the Danube Environmental Programme. It provides direction and a framework for achieving the goals of regional integrated water management and riverine environmental management expressed in the Danube River Protection Convention. It also aims to provide a framework in support of the transition from central management to a decentralised and balanced strategy of regulation and market-based incentives.
The Action Plan lays out strategies for overcoming the water environment related problems in the Danube River basin. It sets short, medium and long term targets and defines a series of actions to meet them. A short term target should be reached within a period of three years, that is by 1997. A medium term target should be reached within a period of ten years, that is by 2005. A series of actions to achieve these targets is described for each sector - public authorities at central, district and local level; municipal water companies and utilities; industrial enterprises; the general public and NGOs; and agricultural enterprises and the farming community.
These actions will be implemented through National Action Plans (NAPs) to be drawn up by the Danube basin countries assisted by the Danube Environmental Programme. The National Action Plans will be crucial in identifying projects that can be funded and implemented and their preparation is the first priority.
The Action Plan is primarily addressed to the officials of national, regional and local levels of government who share responsibility for implementing the Danube River Protection Convention and the national environmental action programmes under the Environmental Action Programme for Central and Eastern Europe. Industry, agriculture, non-governmental organisations and the public will also have important roles to play. The regional strategies set out in the Action Plan are intended to support national decision-making on water management, and on the restoration and protection of vulnerable and valuable areas in the Danube River basin.
Common principles
Despite the diversity of problems, interests and priorities across the Danube River basin, the countries share certain important values and have agreed on principles which underly the goals and actions of the Plan. They include the precautionary principle; the use of Best Available Techniques (BAT) and Best Environmental Practice (BEP) for the control of pollution; the control of pollution at source; the polluter pays principle; and a commitment to regional cooperation and shared information among the partners implementing the Action Plan.
The Action Plan covers both local and regional concerns and emphasises actions that have both local and regional benefits. Local needs and problems will normally be the most important criteria for actions and investments in each country, but by participating in the Danube Programme and by signing the Danube River Protection Convention, the Danube countries are also committed to addressing regional and basinwide problems.
Common goals
The Action Plan has four - equally important - goals:
Common strategic directions
The approaches to be taken are set out in a series of strategic directions covering key sectors and policies, including:
Common targets
Short term
Medium term
Long term
What must be done at once
The actions in this Plan express three approaches: capacity building, policy development and pilot programmes. The development of National Action Plans will be crucial in identifying projects that can be funded and implemented. The governments and organisations endorsing this Plan will need to take steps to support this activity by:
Common actions
The specific problems to be addressed are highly diverse and vary from country to country. A list of priority problems was established on a country basis, which are the basis of the short term actions given in chapter 2. They are listed according to the actors who should be responsible for developing and implementing solutions:
Coordination
Each country will appoint a national authority to take the lead for coordinating the implementation of the Action Plan. The Danube Programme Coordination Unit and the future International Secretariat under the Danube River Protection Convention have important roles to play in coordinating national and international activities.
Financing
Although the international community can help Danube countries in the financing of priority actions, long term financing will have to be met primarily from within the countries themselves.
Although no total estimates of the costs of the actions proposed in this Action Plan can be provided, it is clear that there is a significant resource gap between the proposed actions and the available funding. To address this, the following actions should be taken:
Action Plan Update
The Action Plan should be updated after three years when it is hoped that good progress has been made to implement the short term actions. It is envisaged that the most emphasis in implementation will focus on action at the national level as the Danube countries with their varying economies and environmental situations seek to make the progress required.
TABLE OF CONTENTS
ABBREVIATIONS & ACRONYMS
AEWS Accident Emergency Warning System
BAT Best Available Techniques
BEP Best Environmental Practice
BOD Biological Oxygen Demand
BOT Build-
Operate-
Transfer
CEE Central and eastern Europe
CEEC Central and eastern European countries
COD Chemical Oxygen Demand
CPC Country Programme Coordinator
DRPC Danube River Protection Convention
EAP Environmental Action Plan
EBRD European Bank for Reconstruction and Development
EC European Commission
ECE UN Economic Commission for Europe
ECU European Currency Unit
EIB European Investment Bank
EPDRB Environmental Programme for the Danube River Basin
EU European Union
G-
24 The group of 24 industrialized nations (members of the OECD)
GEF Global Environment Facility
GIS Geographical Information System
IBRD International Bank for Reconstruction and Development (The World
Bank)
IFI International Financing Institution(s)
IUCN The World Conservation Union
K Potassium
m metre
m3/s cubic metres per second
km kilometre
MECU Million European Currency Units
N Nitrogen
NAP National Action Programme
NGO Non-
Government
al
Organisati
on
NO3-
Nitrate
O&M Operation and maintenance
OECD Organisation for Economic Co-
operation
and
Developmen
t
P Phosphorus
PAH Polyaromatic hydrocarbons
PCB Polychlorinated biphenyls
PCU (Danube) Programme Coordination Unit
p.e. Population equivalent
PHARE EC Programme of assistance for economic restructuring in the
countries of central and eastern Europe
sq. km square kilometre
TACIS EC Programme of transfer of know-
how to
the New
Independen
t States
and
Mongolia
UNDP United Nations Development Programme
UNEP United Nations Environment Programme
UNESCO United Nations Educational, Scientific and Cultural Organisation
USAID United States Agency for International Development
USEPA United States Agency for Environmental Protection
WWF World Wide Fund for Nature
WWTP Waste water treatment plant(s)
PART I
CHAPTER 1 INTRODUCTION AND FRAMEWORK
1.1 The Danube River Basin
1.2 The regional response: the Environmental Programme for the Danube River Basin
1.3 The Danube River Protection Convention
13. The Danube River basin countries and the European Union signed the Convention on Cooperation for the Protection and Sustainable Use of the River Danube (the Danube River Protection Convention) on 29 June 1994, in Sofia. It will come into force on the 90th day after ratification by the ninth country. The Convention is aimed at achieving sustainable and equitable water management. The signatories have agreed:
on `conservation, improvement and the rational use of surface and groundwaters in the catchment area'
to `control the hazards originating from accidents involving substances hazardous to water, floods and ice- hazards'
to `contribute to reducing the pollution loads of the Black Sea from sources in the catchment area' (Art. 2.1).
14. They agreed to cooperate on fundamental water management issues by taking:
`all appropriate legal, administrative and technical measures to at least maintain and improve the current environmental and water quality conditions of the Danube River and of the waters in its catchment area and to prevent and reduce as far as possible adverse impacts and changes occurring or likely to be caused.' (Art. 2.2)
1.4 The Strategic Action Plan
1.5 Related international agreements
1.6 Fundamental principles and approaches for environmental protection
31. Despite the diversity of problems, interests and priorities across the Danube River basin, the Danube countries share certain values and principles relating to the environment and to the conservation of natural resources. These values and principles underly the goals and actions for the restoration and protection of the Danube River basin set out in this Action Plan.
The precautionary principle
32. The precautionary principle states that planning and actions should take into account the possibility that adverse effects might occur, even when firm evidence is lacking. In other words, it is better to be safe than sorry. It may justify limits on the discharge of a hazardous substance even though adverse effects on human health or the environment have not been conclusively proven. The lack of information about the state of the environment in the Danube River basin and the general lack of understanding of the complex dynamics and relationships in the riverine and aquatic environment make this principle especially relevant to the Action Plan.
33. The CEE countries, in particular, will be taking many strategic decisions regarding industrial development and agricultural policy which could have far reaching effects on water and environmental quality. Use of the precautionary principle in making policy and investment choices which might affect the environment of the Danube River basin can help bring greater concern for the environment into decisions in other sectors.
Best Available Techniques/Best Environmental Practice (BAT/BEP)
34. Best Available Techniques (BAT) mean the latest stage of development (state of the art) of processes, of facilities or of methods of operation which indicate the practical suitability of a particular measure for limiting discharges, emissions and waste. It is applied to industrial and other point sources of pollution. Best Environmental Practice (BEP) means the application of the most appropriate combination of sectoral environmental control strategies and measures. It is applied to non-point sources of pollution such as agriculture. These approaches do not imply fixed, predetermined solutions to problems. The choice of BAT or BEP depends on practical and economic factors as well as technologies. The result should be the adoption of the most cost-effective solutions, taking into account the full value of environmental functions and processes, and biological diversity.
Control of pollution at the source
35. The Action Plan gives higher priority to preventive actions, such as the reduction of waste through cleaner technologies and processes, than to curative actions. It is generally less expensive to prevent the creation of harmful wastes or pollution than to repair the damage to the environment afterwards. Reduction of pollution at source can also be encouraged by changes in patterns of consumption, for example if consumers select environmentally benign products such as phosphate-free detergents or recyclable packaging materials. Reducing harmful materials in products lessens reliance on costly end-of-pipe control technologies and helps to reduce the generation of hazardous wastes. Environmental audits have proven to be a useful tool in identifying ways to control industrial pollution and wastes at the source.
The polluter pays principle
36. The polluter pays principle and the related `user pays' principle state that the polluter or user of natural resources should pay for the cost of maintaining the resources or repairing the damage done to them, usually through a fee or levy paid to government. These fees offer financial incentives to polluters and users of natural resources to reduce pollution and make more efficient use of resources. The fees can also provide much-needed revenues to water management authorities for maintenance and investment.
Regional cooperation
37. Regional cooperation means the full participation in and utilisation of regional mechanisms and structures for international cooperation, consultation and coordination on policy and action. Water quality and quantity and the health of the river's aquatic habitat and biodiversity depend on what all the water users in the river basin are doing. Regional cooperation can strengthen the efforts of the Danube countries to adopt and implement legal, administrative and technical measures to prevent and reduce transboundary impacts; to monitor water quality and resources; and to harmonise water quality standards and pollution controls.
Shared information
38. The sharing and exchange of data and information is fundamental to regional cooperation and to the understanding and solution of regional problems. The Danube countries should share information on, for example, sediment transport and erosion, nutrient balances, low flow and water quality control, legislation and integrated planning (see Article 12 of the Danube River Protection Convention).
1.7 Responsible sectors and actors
Sectors
39. Practices and policies in different sectors can be a cause of environmental problems or a constraint to effective action. Some of the sources of the pollution problems and water quantity problems result from the activities of:
40. Cities Many water management problems occur close to or downstream of urban population and industrial centres. Municipal waste water, storm water and seepage from improperly stored materials are important sources of surface and groundwater pollution. Waste water is a particularly important source of organic materials, nutrients and microbiological water pollution.
41. Rural towns and villages In rural areas, where infrastructure is rarely as well developed as in urban areas, water supply and sewerage and waste water treatment facilities are usually small and less well maintained. Abstraction of water for drinking is often from groundwater sources such as shallow hand-dug wells which are at risk from microbiological contamination derived from cesspits and leaking sewers. The lack of effective sewerage in small towns and villages also threatens shallow ground and surface sources of drinking water. Any uncontrolled solid waste disposal or poorly maintained storage of toxic and hazardous chemicals places groundwater at further risk of contamination.
42. Industry, energy production and transport The chemical, fertiliser, mining, food processing, metallurgy, tanning, and pulp and paper industries have been identified as giving rise to particular problems. River transport contributes to oil pollution. Coal-fired power plants are sources of pollutants from flue gases and ashes. Many of the hydraulic structures built for navigation and hydropower generation cause environmental problems.
43. Agriculture This sector is an important source of pollution of surface and groundwater through fertiliser and agrochemicals. Pollution from manure from large livestock farms is a particular problem. Improper cultivation practices cause erosion and areal run-off. Irrigation makes heavy demands on water supply and drainage causes alterations in flows and water tables.
Actors
44. In all sectors, the key actors for change are the public authorities, public and private enterprises, NGOs and the general public as both citizens and as consumers. Key relationships between these actors and the principal sectors and sources of pollution of the Danube River basin are outlined in Table 1.2.
45. Public authorities Governments at national, district and local level define and implement regulatory programmes; they can play an important role in providing incentives, removing obstacles, and creating a climate which supports effective integrated water management.
46. Public and private enterprises Under the former economic system in the CEE countries, most enterprises were government-owned. Privatisation is making this view less important. It is proceeding slowly. Most power generation enterprises, water utilities and heavy industries are still owned by government.
47. The general public and non-governmental organisations (NGOs) Every person in the Danube River basin has several possible roles - as a consumer of goods and services; as a producer of waste at home and at their workplace; as a user of recreation facilities; and as citizens whose choices and actions express their spiritual, social, aesthetic and environmental values. NGOs are established by members of the public to promote public and governmental awareness of environmental issues and to assist in the development of appropriate policies.
1.8 Aspects of integrated and regional water management
48. Integrated water management concerns both minimising the conflicts between different water uses and users, and optimising the economic, health and environmental benefits from water resources on a sustainable basis. Some types of water use do not necessarily conflict. Other uses are exclusive or lead to conflicts about the quality or quantity of water available to other users. Although the surface waters of the Danube and its tributaries are constantly being renewed, user conflicts cannot be solved while the polluting emissions continue. The groundwater needs particularly careful management since the degradation or reduction of groundwater is often irreversible or requires an extremely long period, in some cases centuries, for renewal.
49. Every use of surface waters requires maintenance of a minimum flow at all times or during critical periods. Human activities can harm water quality by discharging pollutants and waste products into the rivers or underground aquifers of the Danube River basin. Hence, the water quality management objectives for a river reach depend on the water uses that will be maintained there. The ultimate criterion will be set according to the users with the need for the highest quality of water or to protect the ecosystems and biodiversity.
50. The water issues and problems of the Danube basin may have different regional or transboundary impacts. Some problems, like water shortage in smaller tributaries, heterotrophic growth, oxygen depletion and microbiological pollution, are normally confined to limited river reaches or water bodies. They may cause health, economic or ecological conflicts of local, national and even transboundary importance. On the other hand, the pollution load of nutrients will normally not cause severe local water quality problems. But, it is one of the most important problems of the Danube's wetlands and the Black Sea.
51. This Action Plan covers both local and regional concerns and emphasizes actions that have both local and regional benefits. Local needs and problems will normally be the most important criteria for actions and investments in each country. By participating in the Danube Programme and by signing the Convention, the Danube countries are also committed to solving regional and basinwide problems.
Table 1.2
Links between the sectors and water management problems
Sectors Cities Rural Towns and Industry Agriculture and
Villages Livestock
Problems BOD Nutrients BOD Nutrients BOD, COD and Nutrients BOD
Microbiological Microbiological hazardous Hazardous
Haz. waste Water shortage substances substances Water
Water shortage Nutrients Water shortage
shortage
Table 1.3
Links between the actors and the actions to water management problems
ACTORS ACTIONS
Cities Rural Towns and Industry Agriculture and
Villages Livestock
Public * Invest in * Manage * Regulate * Administer
Authorities infrastructure sanitation and hazardous waste training and
* Establish drinking water * Regulate extension
standards of protection waste water programmes *
drinking water programmes * discharges * Administer
service * Optimise water Administer effective water
Insure adequate allocation and effective water fees * Optimise
tariffs * distribution and pollution water
Optimise water fees * Optimise allocation and
allocation and water distribution
distribution allocation and
distribution
Public & * Operate waste * Control * Pre-treat * Adopt
Private water treatment seepage from industrial imported
Enterprises facilities * solid waste waste * Reduce practices for
Pre-treat disposal into and treat use of
industrial waste groundwater * industrial fertilisers and
Dispose of waste agrochemicals *
hazardous waste Manage
safely livestock manure
General Public * Pay for water * Pay to * Support water * Support water
& NGOs service * protect quality quality
Conserve water drinking water objectives * objectives *
* Adopt sources * Adopt Support Manage
environmental environmental effective livestock
consumption consumption regulations manure *
standards * standards * Promote organic
Manage Manage farming *
household household and Support
hazardous farm wastes * effective
wastes * Support regulations
Support effective
effective regulations
regulations
Chapter 2 The Strategic Action Plan
2.1 Introduction
1. The Strategic Action Plan describes a framework for regional action which will be implemented through National Action Plans (NAPs). It contains: four goals for the environment of the Danube River basin; strategic directions; a series of targets within a timeframe; and a phased programme of actions to meet these targets.
2. The goals set the priorities. The strategic directions explain the approach. The targets identify necessary policy and regulatory reforms, and key programmes and institutional measures that need to be taken. A sustained effort over the coming years will be necessary. Government, industry, agriculture and the public must cooperate to implement the phased programme of actions which meets these targets.
3. The nature, extent, sources and causes of each problem are discussed in Part II.
2.2 Goals
4. The four strategic goals of the Action Plan are derived from the objectives of the Convention and the principles of integrated water management:
* Improvement of aquatic ecosystems and biodiversity in the Danube River basin and the reduction of pollution loads entering the Black Sea
* Maintaining and improving the quantity and quality of water in the Danube River basin
* Control of damage from accidental spills
* Development of regional cooperation in water management.
These goals can only be achieved by means of integrated and sustainable management of the waters of the Danube River basin.
`Reduce the negative impact of activities in the Danube River basin and on the riverine ecosystems and the Black Sea'
5. The aquatic habitats of the basin are part of a single system, so that harmful activities in one section affect other sections. For example, the degradation of the delta and the north-west shelf region of the Black Sea is caused by eutrophication (to a great extent) from the cumulative inflow of nutrients from the Danube River. Nutrient and pollution loads coming from the river must be reduced if the health of the whole system, including that of the delta and Black Sea, are to be restored. In addition, this will lead to the restoration of the Danube River biodiversity.
6. The most important problems affecting the health of the Danube ecosystems are:
* High nutrient loads (nitrogen and phosphorus) and eutrophication
* Organic matter causing heterotrophic growth and oxygen depletion
* Changes in river flow patterns and sediment transport regimes
* Contamination with hazardous substances, including oils.
`Maintain and improve the availability and quality of water in the Danube River basin'
7. The surface and groundwaters of the Danube River basin should be managed to ensure their availability and quality for a wide range of socially and economically important functions such as drinking water, fisheries, industry, irrigation, recreation and biodiversity.
8. These water uses are facing problems, in particular caused by:
* High nutrient loads and eutrophication
* Contamination with hazardous substances, including oils
* Microbiological contamination
* Contamination with organic matter causing heterotrophic growth and oxygen depletion
* Conflicts for available water.
`Establish control of hazards from accidental spills'
9. Accidental spills of pollutants into rivers and lakes can cause sudden changes in surface water quality which can lead to emergency shutdown of drinking water intakes, fish kills, and serious damage to ecosystems. In the longer term, it can render water resources unusable for other uses such as irrigation over days, weeks or months. A particularly serious incident could have severe impacts for a considerable distance downstream, increasing the economic losses caused by the accident. However, the effects of accidental spills are rarely irreversible. Effective monitoring, emergency response and the speed with which it can be organised can limit its effects.
`Develop regional water management cooperation'
10. Governments in the Danube River basin have agreed to cooperate in developing joint management policies and actions. Critical areas include the exchange of data, information about agreements, laws and measures on water management; the adoption and implementation of laws, regulations and technical measures to prevent and reduce transboundary impacts of pollution; the monitoring of water quality under Article 9 of the Convention; and the harmonisation of requirements, common emission limits, environmental quality standards and objectives.
11. To achieve these goals, it is necessary to:
* Introduce a regional approach to Danube water management problems
* Provide a framework within which the Danube River basin countries can identify common and shared problems and coordinate national objectives and priorities
* Establish a regional framework for action that is agreed by all Danube River basin countries and international institutions.
2.3 Strategic directions
12. The strategic directions outlined below give the approach to be taken. For example, the Action Plan contains a phased approach to investment in municipal waste water treatment which emphasises the upgrading of existing infrastructure in the short term. Some of these strategic directions apply to several sectors.
2.3.1 Priority sectors
Phased expansion of sewerage and municipal waste water treatment capacity
13. Initially, the policy would concentrate on rehabilitation and modernisation of existing facilities to achieve their full functional performance, and on strengthening and building up management and operational capacity. It would also introduce proper sewage sludge handling. During the medium term period, the highest priority capacity expansion would begin. Waste water treatment would initially focus on BOD/COD, suspended solids, and phosphorus. An immediate need is to begin strengthening the financial condition of local governments and water companies.
Reduction of discharges from industry
14. The imposition of emission limits on new industrial sources, and on new production technology, should be consistent with the best waste minimisation and management practices (BAT). A strong regulatory and enforcement programme should be developed.
15. Compliance agreements with existing industrial plants can achieve progressive emission reductions, e.g. by phased introduction of pre-treatment conditions before discharge which respect water quality objectives and criteria over the medium term. The priority industries are tanning, fertiliser, metals, and major producers of oxygen depleting substances.
Reduction of emissions from agriculture
16. Environmentally sound national agricultural policies should be introduced to control nutrients and hazardous substances. Key actions are erosion abatement, nutrient balancing, proper manure and fertiliser handling including storage, and a decrease in the input of pesticides (BEP).
Conservation, restoration and management of the wetland and floodplain areas of the tributaries and main stream of the Danube River basin
17. The natural systems of the Danube basin, including wetlands, should be treated as water users, along with people, industry and agriculture. A network of wetlands throughout the basin provides the most effective means of utilising their functions. Wetland management and restoration should be seen as key elements of river basin management. All existing wetlands in the basin should be conserved and wetland rehabilitation should be promoted.
2.3.2 Policies
Integrated water management
18. Integrated water management means covering water allocations, water use and water discharge permits on the basis of integrated and comprehensive plans developed by means of a broad-based participatory planning process. It focuses on the tributary river basin or sub-basin.
Environmentally sound sectoral policies
19. A clear and consistent legal and economic framework is needed to encourage investment in waste reduction and control, to introduce environmentally sound products and practices, and to mobilise financial resources for water and environmental management. This should focus on incentives (implementing a more effective pollution fee and fine system), and on financing actions (developing a viable funding mechanism for project investment).
Control of risks from accidents
20. An Accident Emergency Warning System (AEWS) in the Danube catchment is being set up. Preventive measures should be introduced for industrial sources, including registers of substances stored and used, site contingency plans, and harbour reception facilities for receiving bilge oil, sludges and waste water from ships.
Investments
21. Investment policy should focus on the rehabilitation and expansion of drinking water systems, on municipal waste water and solid waste management systems, on industrial pre-treatment plants and on the replacement of industrial process technology to minimise and eliminate waste. The clean-up and restoration of polluted sites are also important. Planning and project preparation, particularly the feasibility study, is vitally important for developing affordable financing plans and implementation plans.
2.4 Targets
22. A number of short and medium term targets will be identified in the National Action Plans (NAPs) to reach the four goals of the Strategic Action Plan. Preparation of the NAPs is the first priority. A short term target should be reached within a period of three years, that is by 1997. A medium term target should be reached within a period of ten years, that is by 2005. Most actions related to these targets will be included in the NAPs, with adjustments of the timescale where appropriate.
2.4.1 Short term targets
- Elaboration of NAPs for implementation of the Strategic Action Plan
- Completion of integrated tributary river basin plans and revised water allocations and water use permits
- Completion of wetland inventory conservation and management programmes
- Adoption of consistent water quality objectives and criteria for all Danube tributaries and the main river
- Completion of regulatory and permitting reform programme for water use and industrial enterprises
- Adoption of emission limits for fertiliser plants
- Adoption of emission limits based on Best Available Techniques (BAT) for new industrial sources and adoption of emission limits for livestock enterprises
- Completion of a comprehensive system of information on the state of the riverine environment
- National assessment of critical loads and load reduction targets for the highest priority river reaches
- Evaluation of the critical load of nutrients from the Danube into the Black Sea
- Completion of effective and comprehensive monitoring, warning and laboratory systems, including systems for the exchange of information
- Development of technical and management capacity building programmes for all actors and sectors
2.4.2 Medium term targets
- Completion of pollutant emission inventory
- Adoption and implementation of hazardous substance control legislation, including for transport
- Introduction of regulations for fertiliser storage, handling, and application
- Preparation of waste water and sewerage investment priorities for cities, rural towns and villages
- Completion of the rehabilitation and modernisation of existing municipal waste water treatment plants
- Completion of projects on the conservation and restoration of priority wetlands
- Investment in highest priority sewerage and municipal waste water treatment capacity expansions
- Introduction of environmentally sound agriculture policy reforms
- Demonstration of Best Environmental Practice (BEP) for the use of fertilisers, pesticides, and other agrochemicals in agriculture
- Completion and application of pilot and demonstration projects for manure handling, storage, and disposal
- Introduction of phosphate-free detergents and ban on phosphate-containing detergents
- Phased application of emission limits and incorporation of emission limits into permits for industries affecting critical reaches and sites
2.4.3 Long term targets
- Completion of the construction of municipal and industrial waste water treatment plants
- Change to sustainable agricultural practices
- Restoration of natural purification capacity of the Danube River and its tributaries
2.5 Short and medium term actions
23. The Strategic Action Plan emphasises three approaches: capacity building, policy development and pilot programmes. Most actions will be included in the National Action Plans, with adjustment of the time scale where appropriate. National Action Plans will be crucial in identifying projects that can be funded and implemented. Several things must be done immediately to launch their development. The governments and organisations approving this Action Plan will need to:
- Prepare a list of costed, immediate priority actions addressing major health, ecological and economic risks; indicate who should undertake the priority actions, how the financing will be obtained, and the timescale
- Identify a mechanism and the necessary resources to support the production of the National Action Plans
- Assess the risks and implications for public health and the protection of ecosystems of not meeting the short and medium term targets in the Strategic Action Plan.
24. The activities identified in the Action Plan to be carried out during the short term period of 1995 - 1997 lay the foundation for the successful implementation of the medium-term targets. The end of this period seems to be an appropriate time to prepare the first update and revision of the Action Plan.
25. The problems to be addressed are highly diverse and vary from country to country. They include: investments in the control of point source pollution, measures to control non-point source pollution, management improvement in the operation of hydraulic structures, and the restoration and protection of wetlands, river banks, etc. For the short term activities a list of priority problems was established on a country basis. Taking all relevant studies into account, they are the basis of the short term actions presented in the following paragraphs. In addition, a table is presented in section 2.5.6. summarising these priority problems, that focuses on immediate needs, including investments in point source pollution control (`hot spots').
26. The Action Plan provides guidance on what is needed in the Danube River basin. The activities are listed according to the actors who should be responsible for developing and implementing solutions. These actors are:
* Public authorities at central, district, and local levels
* Municipal water companies and utilities
* Industrial enterprises
* The general public and NGOs
* Agricultural enterprises and the farming community.
2.5.1 Public authorities at central, district and local level
Strengthen monitoring and information systems
27. A high priority is to strengthen monitoring capabilities, including laboratory capacity and quality, and the development of water and environmental information systems. This should be within an integrated system to meet management and decision-making needs at the regional, national, and local level. Important issues include tributary basin level nutrient balances, microbiological contamination, organic micro-pollutants, and pesticides and toxic metals. Actions to be undertaken include:
short term
- Carry out training programmes in sampling and analytical procedures, laboratory management, etc.
- Improve laboratory equipment and facility standards and implement Danube intercalibration and quality control programme
- Complete nutrient balances for pilot river basins
- Complete sediment quality inventory
- Harmonise monitoring and assessment methods between the countries
- Harmonise and put into operation the first phase of the joint monitoring system and start a programme for monitoring water quality, quantity, sediments and riverine ecosystems
- Adopt harmonised methods for transboundary impact assessments of pollution and damage to riverine regions
- Adopt harmonised monitoring and assessment methods for waste water discharges
- Complete inventory of the emissions and main point sources of pollution and estimate the water pollution from non-point sources
- Adopt harmonised methodology for preparing water balances
- Complete water balances for pilot river basins
- Design and implement information system for data base management and for exchange of information on river conditions, emissions, monitoring data, measures, regulations and accidents
- Develop environmental education in primary and secondary schools
- Develop public awareness campaigns to encourage changes in public behaviour.
medium term
- Complete nutrient balances for the Danube River basin
- Complete water balances for the Danube River basin.
Improve water quality management objectives and criteria
28. Water quality objectives aim at protecting multiple uses of water including the needs of aquatic ecosystems. In particular, they provide a better basis for regulation, give a clear message on water use priorities, and, when tailored to meet local needs and capability, provide a more flexible basis for developing a consensus on strategy and multi-stage action at the tributary basin level. Actions to be undertaken include:
short term
- Complete water quality and hydrological assessment in pilot river basins
- Determine water uses and establish water quality objectives and criteria in pilot river basins
- Determine critical reaches and critical loads and load reduction targets in pilot river basins.
Reform regulations, permitting and enforcement
29. The Action Plan is based on the integration of industrial permitting and economic incentives. Regulatory reform should include comprehensive training of personnel in planning, permitting, and enforcement. It should also include the provision of necessary equipment for field investigations and monitoring. A critical problem in the development and implementation of effective waste water management activities is the practice of industrial plants discharging their waste waters with little or no pre-treatment into the municipal waste water system. Actions to be undertaken include:
short term
- Adopt regulations governing the permitting of waste water discharges into water courses and drainage systems
- Adopt emission limits for point sources based on BAT and harmonised according to the provisions of the Convention
- Adopt provisions for preventing and reducing non-point source pollution from agriculture based on BEP
- Adopt a harmonised methodology for environmental impact assessment based on international conventions and experience
- Complete installation of and training in new equipment for field investigations and monitoring
- Establish training programmes for local and regional permitting and enforcement staff
- Review legal and policy arrangements affecting the storage, handling and disposal of hazardous waste
- Review environmental protection regulations concerning international shipping and river harbours
- Complete management information system to support administration of enforcement and permitting system.
medium term
- Ban the manufacture and sale of phosphate-containing detergents
- Adopt hazardous waste legislation and administrative structures
- Complete implementation of hazardous waste management legislation.
Reform sectoral policies and economic incentive framework
30. Policies and economic and fiscal measures should be introduced to encourage water conservation, better water and waste management, and the shift to phosphate-free detergents. Price policies that eliminate subsidies on fertilisers and agrochemicals harmful to water quality should be continued and strengthened. Priority should be given to improvement of the present system of discharge fees and pollution fines that encourage pollution prevention and compliance, and water charges and tariffs that encourage water conservation and efficiency. Actions to be undertaken include:
short term
- Revise pollution fee and fine systems
- Establish water conservation programmes
- Revise water user charge systems
- Develop environmentally sound agricultural practices with emphasis on reducing erosion, and on nutrient balancing, manure handling and land use management.
medium term
- Strengthen or establish new water and environmental management financing mechanisms.
Adopt integrated investment and operation planning at river basin and project level
31. Management plans for water systems should be developed or revised to optimise water allocation and distribution, including to aquatic habitats, where necessary. They should take into account downstream impacts (erosion, disruption of habitat, water quality changes, water shortages, and low assimilative capacity during low flow periods).
short term
- Establish training programmes in integrated river basin planning and public participation
- Initiate pilot integrated river basin plans for selected tributaries
- Develop decision support systems for integrated planning in pilot river basins
- Work undertaken in pilot river basins should be jointly selected and coordinated within the framework of both the DRPC and the Environmental Programme for the Danube River Basin
- Select and coordinate work undertaken in pilot river basins, jointly by the PCU and the interim secretariat, as long as the DRPC is not in force; afterwards according to chapter 1, para. 16.
medium term
- Complete integrated river basin plans for the tributaries.
Establish effective institutional arrangements to protect drinking water sources
32. A focused effort is needed for the serious problems of maintaining and restoring the quality of drinking water sources. Pollutants include nitrate, persistent organic micro-pollutants, and heavy metals. Actions to be undertaken include:
short term
- Identify and make an inventory of areas requiring protection for raw drinking water sources
- Make an inventory of and assess degraded groundwater sources, especially shallow groundwater areas
- Make an inventory of rural sanitation needs, including assessment of low-cost technology options
- Establish legal and institutional framework for the monitoring and protection of raw drinking water sources.
medium term
- Implement rural sanitation programme in groundwater protection areas
- Implement programme to restore degraded groundwater sources, and if necessary develop new sources for areas affected by degraded supplies
- Rehabilitate surface water reservoirs for drinking water supplies.
Conserve and restore wetlands and other environmentally sensitive areas
33. Conservation, restoration and management of riverine habitat and biodiversity is important for maintaining the natural capital of the basin (its biodiversity) and to reestablish its natural purification and assimilative capacity (Table 2.1). Measures must be based on the principle of `wise use' of the Ramsar Convention, and should concentrate on priority sites. Integrated management and restoration plans should be prepared in collaboration with other concerned governments, local authorities, international organisations, and NGOs. Training and capacity building programmes at local level should be given a high priority. Programmes, inventories, legislation and policies should be realistic and integrate environmental concerns in the development process. Actions to be taken include:
short term
- Prepare an inventory of important riverine habitats and biodiversity
- Initiate legislative and management actions to prevent the loss of wetlands and to promote wetland rehabilitation
- Establish criteria and guidelines for identification of critical areas and sites, complete identification, and begin pilot management and restoration programmes.
medium term
- Complete pilot riverine habitat management programmes
- Implement new institutional and legal arrangements for permanent habitat and biodiversity management, including staff development and training.
2.5.2 Municipal water companies and utilities
Restructure and strengthen municipal water management
34. The priority is the need to improve the efficiency and effectiveness of water company management and operation so as to support investment in the rehabilitation, modernisation, and expansion of existing water services, including waste water treatment. This includes improving the technical and managerial competence of the staff of the water enterprises, restructuring water enterprises, and supporting the financial independence of the enterprises. Actions to be undertaken include:
short term
- Establish training programmes for water company personnel in modern management practices (e.g. accounting, financial management and budgeting, billing and collection, maintenance and operation, capital budgeting and planning)
- Complete studies on the restructuring of water companies and take necessary steps to begin restructuring
- Complete restructuring and programme for water companies to become financially independent and self-sustaining, and establish cost recovery and tariff policies.
Rehabilitate and modernise facilities to improve safety, reliability and performance
35. The first priority is to upgrade existing facilities and to complete partly constructed facilities for municipal and industrial water supply, sewerage and waste water treatment, since in the short and medium term, this approach is likely to be the most cost-effective means of reducing waste water pollution loads. Priority should be given to facilities that are routinely bypassed or are heavily overloaded, that are not meeting design functional or performance standards, to completing partly constructed facilities and to replacing any substandard civil works. Actions to be undertaken include:
short term
- Complete inventory and assessment of sewer systems and municipal waste water treatment plants performance and loads.
medium term
- Complete priority investment programme for rehabilitation and modernisation of sewer systems and waste water treatment plants
- Introduce measures to achieve optimal use of water consistent with maintaining public health and minimal wastage of water.
long term
- Complete rehabilitation and modernisation programme.
Phased expansion of sewerage and waste water treatment capacity
36. Phased expansion involves the development of treatment capacity in stages that are based on known and proven technology and cost-benefit analysis. It allows investments to be targeted at the most serious problems in line with available resources. Actions to be undertaken include:
medium term
- Complete priority investment programme for sewer systems and municipal waste water treatment capacity expansion
- Implement a programme for increasing the capacity of the highest priority municipal waste water treatment plants.
long term
- Complete priority investment programme for the construction of new sewer systems and waste water treatment plants.
2.5.3 Industrial enterprises
Strengthen environmental management for pollution control and waste reduction
37. Environmental management in industrial enterprises needs to be strengthened to reduce pollution and waste. Industrial managers should carry out environmental audits and use them to identify win-win projects and waste reduction measures (measures that pay for themselves in improved productivity and provide substantial environmental benefits). Within this effort, priorities will need to be established in relation to critical river reaches and loads. Actions to be undertaken include:
short term
- Complete a training programme in industrial auditing, waste reduction and management for industrial staff, consulting firms, and regulatory staff
- Introduce good housekeeping practices in industrial plants
- Develop training programmes for plant managers to improve environmental management.
medium term
- Implement win-win projects (e.g. the elimination of chromium emissions from tanneries, reduction of nitrogen emissions from fertiliser plants).
long term
- Complete investment in low waste technology and/or waste water treatment facilities.
Hazardous waste management
38. An effective system of monitoring and tracing the production and disposal of hazardous and toxic substances should be developed that would enable controls to be enforced. Low-waste processes and practices which encourage the reuse of hazardous wastes and reduce the total volume of discharges should be supported. Priority should be given to investments in solid and hazardous waste management in cases where existing disposal is unsafe, including sites presenting significant documented risk of pollution to surface and groundwater. Actions to be undertaken include:
short term
- Complete hazardous waste inventory, identification and assessment of priority sites
- Prepare a programme for the clean-up of contaminated sites.
medium term
- Implement programme of clean-up of priority sites
- Introduce low-waste production technology.
long term
- Complete clean-up of contaminated sites.
2.5.4 The general public and NGOs
Increase public awareness and participation
39. The participation of the public and NGOs in environmental awareness and education programmes will be important in developing and sustaining a consensus on actions to be taken. The media should be used extensively. Actions to be undertaken include:
short term
- Participate in public awareness programmes in pilot river basins
- Enhance public participation in decision making by establishing national working groups for specific projects
- Enhance public participation in the development and implementation of environmental legislation.
- Develop and implement a 3-year programme of small projects to increase public awareness and participation.
2.5.5 Agricultural enterprises and the farming community
40. Control of run-off from agricultural enterprises and livestock operations is a critical element in the short and longer term strategy to restore the balance and health of the Danube riverine habitats and biodiversity. What is needed is a change to sustainable agriculture with minimisation of erosion and optimal use of fertiliser and pesticides. Pilot and demonstration projects for improved storage and application of chemical and natural fertilisers, construction of model storage and treatment facilities, and testing of new equipment for manure spreading have to be set up. Priority should be given to strengthening agricultural extension services concerning the application of chemical fertiliser, manure and pesticides. Actions to be undertaken include:
short term
- Develop training programmes for sustainable agriculture practices.
medium term
- Complete pilot and demonstration projects of Best Environmental Practice for the use of fertilisers, pesticides and other agrochemicals; manure handling, storage, and disposal; and water and soil conservation. Disseminate information about these practices
- Phased elimination of significant manure discharge into surface water.
long term
- Change to sustainable agriculture practices.
2.5.6 `Hot spots'
41. The Danube countries have drawn up a comprehensive list of sites of `hot spots'. A `hot spot' may be a local land area, stretch of surface water or specific aquifer which is subject to excessive pollution from an identifiable source and which requires particular action to prevent or reduce the degradation caused. These are set out in the following table, in relation to the source and type of pollution, and in some cases, the estimated clean-up cost.
42. No hot spots are listed in Germany or Austria, due to their longstanding water quality legislation and investment in municipal and industrial waste water treatment facilities. In Germany, the occasional increased levels of contaminants and nutrient loads are being reduced by current measures. In Austria, although the quality of groundwater in general is good, problems have been recorded in the eastern and southern regions which are more intensively used for crop production and cattle breeding. Nitrate and the pesticide atrazin are found in excess of EU drinking water limit values, and intensive efforts have been made to reduce these to acceptable levels under Austrian law.
2.6 Keeping the Action Plan relevant
Responsible Bodies
43. National authorities Each country should appoint a national authority to take the lead for coordinating the implementation of the Action Plan. To do this they should set up national focal points.
44. The International Commission, and its Secretariat The International Commission, and Secretariat, is the body responsible for ensuring the implementation of the Danube River Protection Convention. It will be formally established when the Convention comes into force. Until then, an interim secretariat will be established in Vienna.
45. The Danube Programme Coordination Unit (PCU) At present the PCU reports on the Strategic Action Plan to the Task Force. It supports national ministries in implementing the Environmental Programme. When the Convention enters into force, responsibility for the Environmental Programme will be transferred to the International Commission and its secretariat for those topics in the framework of the DRPC.
46. Donors, International Financing Institutions and International Organisations International organisations, bilateral donors and the European Commission will play a significant role in the implementation of the Action Plan by providing funds and technical assistance.
47. National Plans for implementing the Action Plan Each Danube country should prepare a National Action Plan containing a detailed programme timed to meet the targets listed above. The National Action Plans need to indicate the role and responsibility of each sector, including NGOs, the public and the media, and describe the programme of implementation, financing and coordination.
Chapter 3 FINANCING PLAN IMPLEMENTATION
3.1 Resources needed
1. The types of actions proposed under the Plan include: policy and regulation, public awareness, institutional strengthening and capacity building, and public and private sector investment. The level of required financial resources will be stipulated within the context of the preparation of the individual National Action Plans. Outlined below are the types of expenditures and sources of funds available for implementation.
2. Policy and regulation, public awareness Funds will be needed for preparatory activities and development, including data collection and analysis, studies, pilot programmes and training. Laboratory and monitoring equipment and facilities will be needed. These actions are primarily the responsibility of public authorities at central, district, and local level.
3. Institutional strengthening and capacity building Funds will be needed to develop institutional strengthening and capacity building programmes. In some cases this will involve a major investment in upgrading training infrastructure.
4. Financing Possible projects include the rehabilitation and expansion of drinking water systems, and municipal waste water and solid waste management systems; t