Water resources allocation : sharing risks and opportunities. PDF
Preview Water resources allocation : sharing risks and opportunities.
OECD Studies on Water O E C Water Resources Allocation D S t u d ShARing RiSkS AnD OppORtunitiES ie OECD Studies on Water s o n Contents W Executive summary at Water Resources Allocation e r Chapter 1. Re-allocating in a water scarce world Chapter 2. A framework for water allocation ShARing RiSkS AnD OppORtunitiES Chapter 3. The current water allocation landscape Chapter 4. Reforming water allocation regimes Chapter 5. A “health check” for water resources allocation Glossary Annex A. Questionnaire for the OECD project on water resources allocation W a t e r R e s o u r c e s A llo c a t io n S h A R in g R iS k S A n D O p p O R t u n Consult this publication on line at http://dx.doi.org/10.1787/9789264229631-en. it iE S This work is published on the OECD iLibrary, which gathers all OECD books, periodicals and statistical databases. Visit www.oecd-ilibrary.org for more information. iSbn 978-92-64-22962-4 9HSTCQE*ccjgce+ 97 2015 04 1 p OECD Studies on Water Water Resources Allocation SHARING RISKS AND OPPORTUNITIES ThisworkispublishedundertheresponsibilityoftheSecretary-GeneraloftheOECD.The opinionsexpressedandargumentsemployedhereindonotnecessarilyreflecttheofficial viewsofOECDmembercountries. This document and any map included herein are without prejudice to the status of or sovereigntyoveranyterritory,tothedelimitationofinternationalfrontiersandboundaries andtothenameofanyterritory,cityorarea. Pleasecitethispublicationas: OECD(2015),WaterResourcesAllocation:SharingRisksandOpportunities,OECDStudiesonWater, OECDPublishing,Paris. http://dx.doi.org/10.1787/9789264229631-en ISBN978-92-64-22962-4(print) ISBN978-92-64-22963-1(PDF) Series:OECDStudiesonWater ISSN2224-5073(print) ISSN2224-5081(online) ThestatisticaldataforIsraelaresuppliedbyandundertheresponsibilityofthe relevantIsraeliauthorities.Theuse ofsuchdatabytheOECDiswithoutprejudicetothestatusoftheGolanHeights,EastJerusalemandIsraeli settlementsintheWestBankunderthetermsofinternationallaw. Photocredits:Cover©TaroYamada/Corbis;©iofoto/Shutterstock.com. 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FOREWORD Foreword T he intensifying competition for water resources is widely documented.The OECD Environmental Outlook to2050 highlights that water resources are already over-used or over-allocated in many places,withglobaldemandexpectedtoincreaseby55%between2000andmid-century.Thesituation iscompoundedbyclimatechange,withimpactsonwaterexpectedtobecomemorepronouncedinthe comingdecades.Thesepressureshavealreadymadewaterallocationanurgentissueinanumberof countriesandonethatisrisingontheagendainmanyothers.Withinthiscontext,theOECDundertook work on water resources allocation to strengthen the evidence base and develop policy guidance to improvethedesignofallocationregimesandmanagethechallengesofreform. ThisreportisanoutputoftheOECDEnvironmentDirectorate,undertheleadershipofDirector Simon Upton. The project co-ordinator and lead author of the report is Kathleen Dominique. The HeadoftheWaterUnitintheEnvironmentDirectorate,XavierLeflaive,providedsubstantiveinputs and advice. The OECD Secretariat project team, including Kun Wook Kim and Ignacio Deregibus, providedsubstantiveinputsandanalysis,inparticularinthedevelopmentoftheSurveyofWater Resources Allocation and the case studies of reform. The project was undertaken in collaboration with the Stockholm International Water Institute (SIWI) which provided in-kind support and expertise.TheauthorisparticularlygratefultoJohnJoyce,ChiefEconomistatSIWI,forhissustained engagementandvaluableinsights. CasestudiesonthereformofwaterallocationregimeswerepreparedbytheOECDSecretariat projectteam,aswellasIanBarkerofWaterPolicyInternational,ChibesaPensuloandJohannaSjödin of SIWI, Barbara Schreiner of Pegasys Strategy and Development, and Gavin Quibell, independent consultant.AbackgroundpaperpreparedProfessorMikeYoung,ChairinWaterandEnvironmental PolicyattheUniversityofAdelaideprovidedasolidfoundationforthework.Thefinancialandin-kind contributionsofthegovernmentoftheNetherlandsandthegovernmentofKoreahelpedtomakethis workpossibleandaregreatlyappreciated. The project benefitted from the discussions at two international workshops supported by the Netherlands. The first, held in November2012 in Wageningen, helped to frame the project. The second,heldinMay2014inTheHague,focusedontheanalyticalframeworkandthepolicyguidance reflectedinthe“HealthCheck”forWaterResourcesAllocation. Theauthorisalsogratefultocolleaguesandexpertswhoprovidedvaluablecomments,including Simon Upton, Anthony Cox, Jane Ellis, Guillaume Gruère, Jesus Anton, Julien Hardelin and DelphineClavreul (OECD Secretariat) and prominent water experts Ian Barker, of Water Policy International,JohnMatthews,oftheAllianceforGlobalWaterAdaptation,andProfessorMikeYoung. ThecontributionsofthedelegatesoftheOECDWorkingPartyonBiodiversity,Water,andEcosystems were instrumental in building a solid evidence basis for the analysis and in shaping the “HealthCheck”. Keen editorial guidance from JanineTreves and impeccable administrative support fromSamaAlTaherCucciarealsogratefullyacknowledged. WATERRESOURCESALLOCATION:SHARINGRISKSANDOPPORTUNITIES©OECD2015 3 TABLEOFCONTENTS Table of contents Preface .................................................................... 9 Acronyms ................................................................. 11 Executivesummary......................................................... 13 Chapter1.Re-allocatingwaterinawaterscarceworld........................... 17 Keymessages.......................................................... 18 Growingpressuresonwaterallocationregimes ............................. 20 Changingpatternsofdemand ............................................ 21 Climatechangeimpactsonfreshwater..................................... 23 Deterioratingwaterquality............................................... 25 Wateruseefficiencygainsandchangesinratesofwaterconsumption......... 25 Shiftingsocialpreferences ............................................... 28 Conclusion............................................................. 30 Notes.................................................................. 30 References ............................................................. 30 Chapter2.Aframeworkforwaterallocation.................................... 33 Keymessages.......................................................... 34 Policyobjectivesofallocationregimes ..................................... 35 Water:Aresourcewithpublicandprivategoodcharacteristics................ 38 Legalstatusofwaterandclaimstousewater............................... 41 Transboundaryconsiderations............................................ 43 Policyinstrumentsandmechanismsforwaterallocation..................... 44 Conclusion............................................................. 53 Notes.................................................................. 54 References ............................................................. 54 Chapter3.Thecurrentwaterallocationlandscape............................... 57 Keymessages.......................................................... 58 Examiningthesurveyresultsincontext.................................... 61 Reformingwaterallocationregimes ....................................... 61 Generalcontextualinformationforallocation............................... 62 Understandingthephysicalfeaturesofthewaterresourceanddemand profile................................................................. 65 Definingtheavailable(“allocable”)waterresourcepool....................... 69 Howusersaccesswaterandhowthisworksinpractice ...................... 72 Waterabstractioncharges................................................ 84 WATERRESOURCESALLOCATION:SHARINGRISKSANDOPPORTUNITIES©OECD2015 5 TABLEOFCONTENTS Monitoringandenforcementofwaterwithdrawalsandallocationrules........ 86 SummaryofkeyfindingsfromtheSurveyofWaterResourcesAllocation ....... 87 Notes.................................................................. 89 References ............................................................. 89 Chapter4.Reformingwaterallocationregimes.................................. 91 Keymessages.......................................................... 92 Whyreform?Buildingthecaseforwaterallocationreform ................... 93 Policyoptionsappraisalforwaterallocationreform.......................... 100 Thewaterallocationreformprocess....................................... 105 Assessmentofwaterallocationreforms.................................... 111 Conclusion............................................................. 113 Notes.................................................................. 114 References ............................................................. 115 Chapter5.A“HealthCheck”forWaterResourcesAllocation...................... 117 Keymessages.......................................................... 118 Systemlevelelementsofawaterallocationregime.......................... 121 Userlevelelementsofawaterallocationregime ............................ 125 Notes.................................................................. 127 References ............................................................. 127 Glossary................................................................... 129 AnnexA.QuestionnairefortheOECDprojectonwaterresourcesallocation........ 131 Tables 1.1. Trendsaffectingwaterallocationregimes............................... 21 2.1. Generalpolicyobjectivesofwaterallocationregimes..................... 38 2.2. Waterasapublicandprivategood..................................... 40 2.3. Typesofpropertyownershipsystems................................... 42 2.4. Descriptionofkeysystemlevelelementsofawaterallocationregime ...... 47 2.5. Descriptionofkeyuserlevelelementsofawaterallocationregime......... 48 2.6. Frameworkforwaterallocationregimes ................................ 52 3.1. Examplesofwaterallocationregimes .................................. 60 3.2. Countrieswithrecentorongoingwaterallocationreforms................ 62 3.3. Examplesoflegalbasis/doctrineappliedtowaterresources ............... 64 3.4. Countriesrecentlyassessingwaterscarcity ............................. 65 3.5. Examplesofperiodoftimewaterentitlementsaregrantedfor............. 76 3.6. Summaryofvariousconditionsontrade,leaseortransfer ofwaterentitlements ................................................ 78 3.7. Summaryofexampleswherewaterentitlementscanbeused asafinancialinstrument............................................. 79 3.8. ExamplesofwaterabstractionchargesinselectOECDcountries ........... 86 3.9. SummaryofmainfindingsoftheSurveyofWaterResourcesAllocation..... 88 Figures 1.1. Globalwaterdemand,baselinescenariofrom2000-50.................... 22 1.2. FreshwaterabstractionsinOECDcountries.............................. 22 1.3. HistoricaltrendsinrainfallforJarrahdale............................... 24 6 WATERRESOURCESALLOCATION:SHARINGRISKSANDOPPORTUNITIES©OECD2015 TABLEOFCONTENTS 1.4. HistoricaltrendsinstreamflowintoStirlingDam ........................ 24 1.5. Effectofreductionofstreaminflowontheamountofwateravailable forconsumptiveuse ................................................. 25 1.6. Nitrogeneffluentsfromwastewater:2000to2050........................ 26 1.7. Projectedshiftsinwater-intensityofenergyproduction................... 28 2.1. Systemlevelelementsofawaterallocationregime ...................... 51 2.2. Userlevelelementsofawaterallocationregime......................... 52 3.1. Driversofrecentandongoingreformsofwaterallocationregimes ......... 62 3.2. Ownershipofgroundwaterresources................................... 63 3.3. Ownershipofsurfacewaterresources.................................. 63 3.4. PercentageofresponsesindicatingarolefortheMinistryofEnvironment... 64 3.5. Percentageofresponsesindicatingaroleforabasinauthority............. 65 3.6. Proportionofwaterallocationexamplesbycurrentstatusofwatersystems. 66 3.7. Degreeofregulationofwatersystem................................... 67 3.8. Proportionofwaterallocationexamplesaccordingtodominanttype ofwateruse,percategory............................................. 68 3.9. Proportionofwaterallocationexamplesindicatingsignificant non-consumptiveuse,bytype......................................... 68 3.10. Proportionofexamplesaccordingtotypeoflimitonwaterabstraction (ifany) ............................................................. 69 3.11. Proportionofexamplesthatdefinedenvironmentalflows................. 70 3.12. Proportiontakingfreshwaterbiodiversityintoaccountinthedefinition ofe-flows........................................................... 71 3.13. Proportiontakingterrestrialbiodiversityintoaccount .................... 71 3.14. Proportionofwaterallocationexamplestakingintoaccountvariousfactors inthedefinitionoftheavailableresourcepool........................... 71 3.15. Proportionofwaterallocationregimeswithlegallydefinedprivate entitlements........................................................ 72 3.16. Numberofwaterallocationexamplesbytypeofentitlement (individual,collective)................................................ 73 3.17. Natureofwaterusers’entitlements.................................... 74 3.18. Periodoftimewaterentitlementgrantedfor ............................ 75 3.19. Proportionofwaterallocationexamplespecifyingreturnflowobligations... 76 3.20. Consequencesofnon-useofwaterentitlements......................... 77 3.21. Proportionofallocationexamplesthatallowsomeformoftrade, leaseortransferofwaterentitlements ................................. 77 3.22. Pre-requisitestograntnewwaterentitlementsorexpandexistingones..... 80 3.23. Sequenceofpriorityusesinwaterallocation............................ 82 3.24. Proportionofwaterallocationexampleswithanabstractioncharge........ 85 3.25. Proportionofwaterallocationexamplesreflectingwaterscarcity inabstractioncharge................................................. 85 3.26. Proportionofallocationregimesmonitoringwaterwithdrawals............ 87 5.1. Waterscarcityspectrum.............................................. 120 WATERRESOURCESALLOCATION:SHARINGRISKSANDOPPORTUNITIES©OECD2015 7 Follow OECD Publications on: http://twitter.com/OECD_Pubs http://www.facebook.com/OECDPublications http://www.linkedin.com/groups/OECD-Publications-4645871 http://www.youtube.com/oecdilibrary OECD Alerts http://www.oecd.org/oecddirect/ 8 WATERRESOURCESALLOCATION:SHARINGRISKSANDOPPORTUNITIES©OECD2015
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