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欧盟水框架指令的借鉴意义

发布日期:2021-11-20   


2009 9 EWRHI 30 9

文章编号: 1006- 0081( 2009) 09-0073- 02

欧盟水框架指令的借鉴意义

董哲仁

( , 100038)

摘要: 回顾了我国水污染防治面临的严重挑战, 比较了中国与欧盟在水资源管理领域的战略与政策指出了欧盟水框架指令值得我国借鉴的若干原则, 诸如水资源水环境一体化管理的主体立法; 水量水质和水域生态系统的一体化管理政策; 建立涉水政府部门的协调机制以及流域管理中的公众参与等

关键词: 欧盟水框架指令; 水量与水质; 水域生态系统; 水资源一体化管理; 河流恢复; 公众参与

中图分类号: T V 213. 4 文献识码: A


随着我国国民经济持续快速发展, 江河湖泊的水污染日趋严重。水环境污染已经成为制约我国社 会经济发展的瓶颈问题。国家十五"规划( 2001~ 2005 ) 的实施, 在经济发展方面获得了巨大成功, 但是规划中环境保护的目标没有实现, 环境治理重点项目三河三湖治理"( 淮河、海河、辽河与太湖、巢湖、滇池) 任务全部归于失败。在国家十一五"规划( 2006~ 2011 ) 中把建设资源节约型、环境友好型社会"摆在突出位置, 又明确提出了在十一五"间主要污染物排放总量减少 10% 等具体指标。但, 目前全国水污染形势仍然不容乐观。据官方公, 2006 年全国废污水排放总量 750 亿 t, 其中大部分未经处理直接排入江河湖库, 90% 以上城市水域污染严重。按照河流长度统计, 2007 年全国河湖水

质评价V类和劣V类水河长占27. 0%; 44 个大型湖泊1. 8km2 水面水质监测评价, 全年水质为V 类和劣V类的占34. 3% 。近年来, 几乎每年都发生全国关注的重大水污染事件。可以说水污染问题已 经成了我国当前社会的一个顽症。

当前我国水污染治理的症结不是技术问题,

术都是成熟的; 也不是投资问题, 中央和地方政府的环保投资水平近年大幅度提高。机制和体制问题是 症结所在, 这个问题不突破, 环境问题会像噩梦一样纠缠着我们。

我国目前的水环境形势大体相当于欧洲 20

60 年代的状况, 也就说是我国与欧洲的水环境质

收稿日期: 2009- 05- 18


量大约存在着 40~ 50 a 的差距。从重大水污染事件看, 2005 11 月发生的吉林市化工厂爆炸事故, 导致化学污染物流入第二松花江, 酿成威胁下游饮水安全的重大水污染事件, 引起了国内外的广泛关注。可以与此对照的是 1986 年莱茵河污染事件:

于莱茵河上游的瑞士施韦策哈勒化工厂失火, 10 t 有毒化学物质的污水流入莱茵河, 造成下游长达500 多公里严重污染。与此同时, 污染事故促进了莱茵河流域九国的合作, 制定了莱茵河鲑鱼- 2000 计划", 经过 13 a 的努力, 莱茵河又恢复了生机, 了一条生态良好的河流。莱茵河、多瑙河等欧洲大 型河流的治理成功经验, 成为制定欧盟水框架指令( WFD) 的背景和基础。当我们寻求欧洲治理水域环境成功的答案时, 就不能不研究WFD

WFD 是一部先进的水资源综合管理和水环境

保护的法律。从立法角度看其法理是严密的, 在科学性方面它吸收了现代生态学和环境学的新成果, 建立了科学的评估系统。同时, WFD 具有很强的操作性, 它明确了实现目标的步骤和时间表。

WFD 的重要特色是它的综合性, 或者说一体

"的思维方法。按水的自然属性, WFD 强调地表- 地下水- 湿地- 近海水体的一体化管理, 以及水量- 水质- 水生态系统的一体化管理; 按照水的社会属性, WFD 强调各行业的用水户和各个利益相关者的综合管理; 从科学技术角度强调多学科的综合与合作, 以保证立法的科学性。


作者简介: 董哲仁, , 全球水伙伴( GWP) 中国委员会常委副主席, 中国- 欧盟流域管理项目高级顾问组主席.



2009 9 EWRHI 30 9


对比我国的水资源管理和水环境保护工作, WFD 值得我国借鉴的方面可以归纳为以下几点。

1 水资源水环境一体化管理的主体立法

WFD 制定过程中, 对原有多项法律进行了清理, 通过简化、废除和取代等不同方式, 形成了水资源一体化管理最高层次的主体法律。WFD 涵盖了水资源( 含饮用水、地下水等) 利用、水资源保护( 含城市污水处理、重大事故处理、环境影响评价、污染防治等) 、防洪抗旱和栖息地保护等, 几乎涵盖水资源水环境管理的全部领域。我国涉水法律有 水法 、 防洪法 、 水土保持法 、 水污染防治法 、 环境评价法 等多部, 内容有所侧重, 但也有交叉、重, 局部内容有冲突。更重要的是不同法律的执法主体是不同的政府部门, 使水资源水环境的管理工作出现诸多脱节和分割现象。基于 WFD 经验, 长远看, 我国应该制定一部水资源和水环境管理的综合性的主体法律。从近期看, 可以考虑在 水法修订中, 大幅度增加水域生态环境保护和水资源一体化管理的内容。

2 水量水质和水域生态系统的一体化管理

目前, 我国水环境治理的重点放在污染控制上, 环保部门全力以赴抓排放总量控制。针对我国当前 污染的严重情况, 抓污染控制无疑是正确的。但是, 水环境治理不能单打一", 必须认真研究在水域环境保护方面的国际先进潮流, 不能墨守 20 a 前的陈

旧理念。近 20 余年欧洲的水域环境保护政策发生

了战略性的转变。莱茵河治理规划战略目标不再是 局限于污染控制, 而把目标定位在: 将莱茵河恢复成一条完整的生态系统中枢"。在WFD , 进一步明确了对于水质、水量和淡水生态系统实行一体化管理。河流湖泊的环境保护战略目标, 不仅包括污染控制和水质保护, 还包括水文条件的恢复, 河流地貌多样性的恢复, 栖息地的加强以及生物群落多样性的恢复, 也就是水量、水质和淡水生态系统全方位的综合管理。WFD 针对河流状况的评估体系中, 括生物质量、水文情势、物理化学指标三大类, 而我国当前对于水环境的评估体系还仅限于各项水质指标。欧洲的经验表明, 清洁的水不是孤立存在的, 是存在于健康的河流生态系统之中, 由此给我们的


启发是: 水环境治理和保护的尺度需要放大到淡水生态系统, 实施有效的综合管理战略。在十一五" 期间, 即使经过百倍努力达到了污染物排放总量减10% 的目标, 届时我国的大部分江河湖泊水质能够达标吗? 届时我国有多少比例的江河湖库算是健康的呢?

3 建立涉水政府部门的协调机制

实行水量、水质和淡水生态系统的一体化管理, 在我国还存在着体制方面的障碍。我国涉水的政府 部门涉及水利、环保、农业、交通、国土、林业等诸多 部门, 职能各有分工。

WFD 要求欧盟成员国指定有能力的主管机构

负责执法, 实施规划, 安排资金, 并且实行问责制。限于我国的具体国情, 由一个部门负责水资源水环境的一体化管理, 目前恐不具备条件。但是在中央层面上建立涉水政府部门的协调机制, 在制定法律、战略和水资源水环境战略规划中发挥协调作用, 前看来不是没有可能的。国家防汛抗旱总指挥部的架构和运行经验可供借鉴, 在流域层面上实行流域管理机构理事会制度也是值得探索的。

4 流域管理中的公众参与

WFD 对于流域管理的公众参与问题作了明确的规定, 指出公众参与是让公民影响规划结果和工作过程。WFD 规定了公众参与的基础是向公众提供信息, 通过咨询和更为积极的方式实现参与。公众参与的意义是多方面的, 既可提高公众的环境意识, 也可以利用参与者的知识和经验完善决策过程, 还可以化解矛盾以减少执法中的阻力。

不断扩大公众的知情权、参与权和监督权是我 国和谐社会建设的重要组成部分。我国水资源管理 领域的公众参与工作刚刚起步, 诸如灌区用水户协会制度的全国推广, 小流域参与式管理经验的推广等。在全国范围内迈开公众参与的第一步, 就是发布与水有关的信息, 及时、准确地向社会发布包括河流湖泊水质信息、自来水厂的饮用水水质信息、水污 染突发事件信息以及水资源和水环境保护规划等信 息。至于进一步集中社会各界的智慧, 吸收公众参与水环境保护行动等等, 还需要继续推动相关部门改善政策环境。


( 编辑: 孙 远)



September 2009 Ex pr ess Water Resources & Hydr opower Information V ol. 30, No. 9

WFD and Its Use for Reference to China

DONG Zhe-ren

Abstract In this paper, the challeng es o wing to water pollutio n in China ar e analyzed and the compari- son betw een China and the EU in terms of strateg ies and policies of w ater resources management is made. I t is pointed out that a number of pr inciples when taking Water Framework Directive( WF D) for use for reference to China should be follow ed, including the legislation on the integr ated management of w ater resources and aquatic environment; the policies for the integr ated management of w ater quantity, quality and hydrosphere e- cosystem; t he coor dinat ion mechanisms of wate-r related governmental agencies and the public par ticipation in r iver basin management and so forth.

Keywords EU Water Framew ork Directiv e; Legislation; Water Quantity and Quality; Hydrosphere E- cosystem; Integr ated W ater R esources M anagement; Riv er Resto ration; Public Participation


Over the past two decades of fast gro wth of the national e- conomy , China has been suffered from deteriorative water pollu- tion in rivers and lakes that curbed the social and economic de- velopment in this countr y. Although in t he 10th Five- Year ( 2001~ 2005) P lan per iod, the national social and economic development mar ked significant achiev ement in economy, the t arg ets of t he enviro nmental pr otection had not been realized. As a part of this plan, the key project Harnessing of the T hr ee

R ivers and T hree L akes" ( Huai River, Hai R iver and Liao Riv-

er; T aihu Lake, Chao Lake and Dian L ake) was totally a fail- ure. Yet, China has kept the dev elo pment of a r esourc-e con- serv ing and environmentally- friendly society" as high pr iority in its 11th F ive- Year ( 2006~ 2011) Plan that stressed to reduce t he to tal po llutant discharg e by 10% amidst five years. While fully recognizing these objectives, t he cur rent situation over w a- ter pollutio n in this countr y is obviously not optimistic.

A ccording to the official statist ics, the w astew ater dis- charg e in 2006 totaled 75 billion tons, most of which flew into r ivers and lakes w ithout proper tr eatment causing water pollu- tion in 90% of the cities in China. T he assessment of water quality o f the rivers and lakes in 2007 show s t hat, in the light of riv er leng ths, t he categ ory V River and categor y Inferior- V account for 27% of the total; they also take 34. 3% of total 18 000 km2 o f water sur face area based upon the river quality assessment of 44 large lakes. Dur ing r ecent y ears, the severe w ater po llutio n ev ents drawing nationw ide attent ion have been t aken place almost each year. T hus, the w ater pollution is one of stubborn so cial diseases in contemporary age. Someone might

question what is the crux of environmental problem?


I hold that the crux of w ater pollution control is neither technological problem since technology is mature; no r invest- ment problem considering that bo th centr al and local gov ern- ments raise their investment to environmental protection. T he current crux , in my v iew , is attr ibuted to the issue of mecha- nisms and systems. We would be haunted by the nightmar e of env ironmental problem unless it is rooted up.

Based upon my comparison betw een the pr esent aquatic en- vironment of China and that of the EU , China² s development reflects an identical status of the EU in the 1960s. In other wor ds, there is a gap of 40 to 50 years betw een China and the EU in the aspect of aquatic env ironment and qualit y. Let us take the major water pollut ion events fo r ex ample. Jilin Prov ince in China ex perienced a severe explosion at the Jilin Chemical Plant in November, 2005. Due to this accident, the dr inking water in the dow nstream of the 2nd Song Hua River was fatally threatened since t he chemicals were washed into the riv er attracting the attention both in the countr y and the abroad. For the compar ison, ther e w as a similar pollutio n inci- dent of Rhine River in 1986. Located on the up-stream of the Rhine, the Schweizer halle Chemical Factory caug ht fire, send- ing 10 tons of tox ic chemicals into the Rhine and polluting 500 kilometers long of t he waterway. How ever, a thing turns into its o pposite if pushed too far", as the saying goes. T he nex t chapter follo wed this accident w as an international cooperation of 9 countries bor dering the Rhine. T hey set up t he Prog ram

for Action- R hine" under the symbolic name Salmon 2000".

With the efforts of 13 years, the R hine River rev ived its gr een ecosystem in good conditions. T he successful exper iences of



September 2009 Ex pr ess Water Resources & Hydr opower Information V ol. 30, No. 9


large r iver management, such as the Rhine and the Danube, lay foundation and develop background for the W FD. T herefore, by seeking fo r the key of successful manag ement of aquat ic env-i ronment in EU , we must analyze the WFD.

Since 2003, I hav e follow ed with interest of the WF D and

w ritten art icles to introduce its content to the scientific and t echnolog ical circles in China after wards. T he W FD is an ad- vanced leg islation for the integr ated water resources manage- ment and pro tection of aquatic environment. F irst, the legal principles of the W FD are rig id and reasonable from perspectiv e of legislation. Second, it ado pts the research results of modern ecology and environment from scientific perspective. T hird, it boasts a scientific assessment system. In particular, the W FD is strong ly operational w ith its settled objectiv es and implementa- tion timetable.

A nother characteristic of the W FD is integration, namely ,

its integration concept" . Based upon the natural distinct ions of w ater , the WFD plays emphasis on the integ rated management in the cycle of surface water, groundwater, wetland, coastal w ater , w ater quantity and quality and hydrosphere ecosystem. A ccording to its social distinctions, in order to make laws scien- tifically , the WFD str esses the integ rated management between w ater users of different industries and related stakeholders. T he r at ionality of leg islation is embodied in multidisciplinary integr a- tion and cooper atio n highlig hted in the WFD.

A ccording to the comparison in ter ms o f the water re- sources management and protection of aquatic environment in China, in w hat aspects is WF D w orthy o f use fo r r eference to China? I would like to share wit h you as fo llows:

1 Subject Legislation for the Integrated Management of Water Resources and Aquatic Environment

A midst the pro cess of legislating, the WF D has been de- veloped to be top class legislation fo r integ rated management of w ater r esources pr eceded to replacing a number of the ex isting w ater directives by means of simplification, abolishment and re- placement. T he scope of the WF D covers all pertinent to water r esources and aquatic env ironment management, including w a- ter use ( drinking w ater, ground water, etc. ) ; water protection ( urban wastew ater treatment, contingency plan, environment impact assessment, pollution prevent ion and contro l, etc. ) ; floods and droughts control; habitat protection and so forth. In China, the water related laws embrace China² s Water L aw" , F loods Contro l Law", Water and Soil Conservation Law" , Water Pollution Preventio n and Control L aw" , Environmen- tal Assessment A ct" and etc. Alt houg h these laws of China pos-

sess different targets, some parts o f these laws are ov erlapped or


contradictor y. Furthermore, the subjects of the administr at ive enforcement of the laws are various governmental agencies and consequently the implementation of water resources and aquatic env ironment management is disjointed and split into pieces. For this problem, what shall we adopt from the WF D? In a long perspectiv e, w e shall enact a compr ehensive law containing both water resources and aquatic enviro nment management. A s for a short term, w e can r evise t he China² s Water Law by adding pr inciples related to the protect ion of hydrospher e ecosystem and env ironment as well as the integrated manag ement of water re- sources.

2 Integrated Management of Water Quant-i ty, Quality and Hydrosphere Ecosystem

At pr esent, the aquatic environment manag ement in China aims at pollution control. T hus, the Chinese gov ernmental a- gencies of env ironmental protection completely engage in con- trolling the total quantitative of dischar ge and emission. T he current pollution status in China confirms it a r ight choice. N evertheless, I hold that the aquat ic environment manag ement cannot be undertaken by a single method. It is not wise to stick to outmoded conventions of over 20 years.

In view that ther e has been str ategic transformation in the pro tection policy of aquatic environment in Europe for the last two decades, we have to keep pace with the inter national mod- er n trend of aquatic environment protect ion. T he governance pro gram of the Rhine in my given example sets up its strateg ic target at a backbone of ecosystem" rather than pollution con- trol only. T he WFD deliv ers a concept of t he integrated man- agement of water quantity, quality and hydrosphere ecosystem. Specifically, the strategic t arg et of environmental protect ion of riv ers and lakes covers not only pollution control and water qual- ity protection, but also restor atio n of hydrological conditions, diversity of river and g eomorphologic landscape, habitat im- provement and biological diversity. I n other words, it requir es an al-l round and integ rated management of w ater quantity, quality and hydrosphere ecosystem.

One of the assessment systems of river status in the WF D

illustrates three categories, namely, bio logical quality, hydro- logical regime, and physical and chemical index. By contrast, the assessment system of aquatic environment in China barely restricts itself to water quality index so far. T he European ex- periences show t hat clean water ex ists in the cycle o f sound river ecosystem inst ead of being isolated beyond the cycle, w hich suggests to us that it must extend the scope of management and pro tection of the aquatic env ironment to the freshwater ecosys- tem for the effective implementat ion of the int egr ated manage-

ment strategy.



DO NG Zhe- ren WF D and Its U se for Reference to China


When we get to this point, I have to raise a concern. Even t hough the 11th Five- Year Plan could reduce the total pollutant dischar ge by 10% by 2011, could the water quality of most r ivers and lakes liv e up to t he standard? How many of them could be deemed as in good conditions?

3 Establishment of the Coordination Mecha- nism Between the Wate-r Related Govern- mental Agencies

T he practice and implementat ion of integrated manage- ment of water quantit y, quality and freshw ater ecosystem have to face the obstacles of institutions and others. T he w ater- relat- ed sectors, involving w ater r esources, env ironmental protec- tion, ag riculture, transportation, state land and resour ces, play differ ent functions.

A ccording to t he WF D, the member states should appoint a competent authority to be responsible for enforcement, imple- mentation of the directiv e and financial operation under the ac- countability system. T his measure of integrating the manage- ment of w ater resources and aquatic environment can be hardly adopted into China immediately in view of its basic state cond-i tions. However, it is feasible for the centr al government to es- tablish a coordination mechanism between all w ater- related gov- ernmental sectors in or der to coordinate and give full play of t heir role in setting up legislation, strategies and plans of water r esources and aquatic env ironment. T he case of State Flood Control and Droug ht Relief Headquarter , including its structure and operation, is wor thy of use for reference.

4 Public Participation in the River Basin Management

In aspect of so cial participation in t he riv er basin manage-


ment, the WFD identifies t his term as enabling people to make impact on planning, the implementation and the r esult o f each pro gram. T he information tr ansparent to the public is the foun- dation of t he social participat ion, and the measures for achieve- ment are public consultation and other interactive ways. T he public par ticipation is able to raise the public awareness of envi- ronment on the o ne hand, and overcoming obstacles in enfor ce- ment based upon knowledge and exper iences of stakeholders on the other.

One of cr ucial elements in building harmonious society in China relies on enhancing the public right of know ing , partic-i pation and superv ision. T he public par ticipation in w ater re- sources management in China is still at its starting stage. T he related cases w orthy for pro mot ion in our country include water users association in irrig atio n areas, par ticipatory manag ement of catchment and etc. T he further nationw ide pursuit of public participation is to release the up- to- date and accur ate water in- fo rmation to the society, including the infor mation of w ater quality of riv ers and lakes as well as that of drinking water of waterwor ks, any w ater pollution incident, plans of water re- sources and aquatic envir onment protection and etc. In add-i tion, we can move forw ard to optimize our policy status t hrough collective intelligence of the w ho le so ciety, public participatio n, pro tective actio ns of aquatic env ironment and so for th.

T o conclude my presentation, I would like to thank you for your attention and patience, hoping that my r emarks serve as a spur to induce you to come fo rward w ith better ideas.

About the Author:

M r. DONG Zhe-r en, Standing V ice Chair of G lobal Water Part- nership China, Chairman of Advisor y Group for the EU - China Riv er Basin M anagement Progr amme.


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