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The Resilience of Transboundary Water Governance Within the European Union: A Legal and Institutional Analysis

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European Water Law and Hydropolitics

Part of the book series: Water Governance - Concepts, Methods, and Practice ((WGCMP))

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Abstract

The most commonly used legal/institutional indicators of hydropolitical resilience are water quantity management, water quality protection, cooperation over planned measures with transboundary impacts, variability management and interstate dispute settlement. The application of these indicators to all four layers of transboundary water governance within the EU reveals that despite the overall positive performance of the European regime in global comparison significant structural deficiencies can be identified. These shortcoming can turn into critical vulnerabilities should the prevailing hydrological conditions of transboundary cooperation continue to change as a consequence of increased climate variability. The most important gaps relate to the absence of water quantity management and water allocation mechanisms, the limited management of hydrological variability in a transboundary context and the inadequate mechanisms of co-riparian dispute settlement.

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Notes

  1. 1.

    Convention on the Law of Non-navigational Uses of International Watercourses, New York, 21 May 1997.

  2. 2.

    SADC Revised Protocol on Shared Watercourses, Windhoek, 7 August 2000.

  3. 3.

    Tripartite Interim Agreement between the Republic of Mozambique and the Republic of South Africa and the Kingdom of Swaziland for Co-Operation on the Protection and Sustainable Utilisation of the Water Resources of the Incomati and Maputo Watercourses, Johannesburg, 29 August 2002.

  4. 4.

    Agreement on the Cooperation for the Sustainable Development of the Mekong River Basin, Chieng Rai, 5 April 1995.

  5. 5.

    Charter of Waters of the Senegal River, 28 May 2002.

  6. 6.

    Agreement between the Republic of Kazakhstan, the Kyrgyz Republic, the Republic of Tajikistan, Turkmenistan and the Republic of Uzbekistan on Cooperation in the Field of Joint Management on Utilization and Protection of Water Resources from Interstate Sources, Statute of the Interstate Commission for Water Coordination of Central Asia, Alma-Ata, 18 February 1992.

  7. 7.

    Treaty between the United States and Great Britain relating to Boundary Waters, and Questions Arising between the United States and Canada, Washington, 11 January 1909.

  8. 8.

    Treaty between the United States of America and Mexico relating to the utilization of the Waters of the Colorado and Tijuana Rivers and of the Rio Grande, Washington, 2 March 1944.

  9. 9.

    Treaty between the Government of the Republic of India and the Government of the People’s Republic of Bangladesh on sharing of the Ganga/Ganges water at Fakarra, New Delhi, 12 December 1996.

  10. 10.

    Indus Waters Treaty, Karachi, 19 September 1960.

  11. 11.

    C-36/98, Spain v. Council, ECR 2001, I-00779.

  12. 12.

    When the EU ratified the Danube Convention by Council Decision 97/825/EC, Article 1302(2) of the Treaty establishing the European Community (predecessor of the TFEU) called for unanimity vote for the adoption of any measures “concerning the management of water resources”. As the relevant Council decision had been approved by qualified majority Spain brought an action against the ratification before the Court alleging that it was adopted on an inappropriate legal basis. Spain’s plea was based on a broad interpretation of “water management” and of the objectives and content of the Convention. Notably: water management is to be construed to encompass all measures that are designed to administer and rationalise the use of water (para 10). As the Convention affects various aspects of water management, it could have only been ratified through unanimity in Council. The European Court of Justice however—in line with the arguments of the Council, the Commission, Portugal and France—concluded that the term “management of water resources” had to be construed narrowly, covering only measures “which regulate the quantitative aspects of the use of those resources […], not those concerning the improvement and the protection of the quality of those resources” (para 52). Thus the adequate procedure for the ratification of the Convention must be determined in view of the primary purpose and the content of the measure (para 58). When water quantity aspects appear only “incidentally” in a complex water-related legislation—such as in the case of the Danube Convention—the measure must be regarded as an “environmental protection” rather than “water management” instrument. Consequently, it can be adopted through the ordinary (co-)decision procedure, rather than by unanimity in Council (para 74).

  13. 13.

    Directive 2000/60/EC of the European Parliament and of the Council of 23 October 2000 establishing a framework for Community action in the field of water policy.

  14. 14.

    Directive 2007/60/EC of the European Parliament and of the Council of 23 October 2007 on the assessment and management of flood risks. This directive is analysed in the context of variability management below, see Sect. 10.4.3.

  15. 15.

    Convention on the Protection and Use of Transboundary Watercourses and Lakes, Helsinki, 17 March 1992.

  16. 16.

    https://www.unece.org/environmental-policy/conventions/water/envwatermeetings/water/workshops-water-convention-and-protocol-on-water-and-health/2017/global-workshop-on-water-allocation/doc.html (accessed 12 February 2019).

  17. 17.

    “Most significant water allocation decisions may be best considered at the transboundary or basin-wide level—agriculture, energy, ecosystems, infrastructure. Indeed, sustainable water resources management may be claimed by upstream countries but downstream ones may have a different opinion regarding the meaning of “an equitable and reasonable manner,” a designation that should take into account a set of relevant factors and circumstances, such as the ones listed in article 5 of the UN Watercourses Convention (United Nations, 1997)”, Task Force on Water and Climate, Seventh meeting, Draft Collection of lessons learned and good practices on climate change adaptation in transboundary basins, 2014, section 7.7, p. 30, http://www.unece.org/fileadmin/DAM/env/documents/2014/WAT/10Oct_13-15_Geneva/7th_Task_Force/TFWC_2014_3_Collection_of_lessons_learned_and_good_practices_first_draft_rev.pdf (accessed 12 February 2019).

  18. 18.

    Convention on Cooperation for the Protection and Sustainable Use of the Danube, Sofia, 29 June 1994.

  19. 19.

    Convention on the Protection of the Rhine, Bern, 12 April 1999.

  20. 20.

    https://www.iksr.org/en/international-cooperation/about-us/organisation/working-group-floods-and-low-water-wg-h/ (accessed 12 February 2019).

  21. 21.

    Framework Agreement on the Sava River Basin, Kranjska Gora, 3 December 2002.

  22. 22.

    Convention on the International Commission for the Protection of the Elbe, Magdeburg, 8 October 1990, Convention on the International Commission for the Protection of the Oder, Wroclaw, 11 April 1996, International Agreement on the River Meuse, Gent, 3 December 2002.

  23. 23.

    Convention on the Co-operation for the Protection and the Sustainable Use of the Waters of the Luso-Spanish River Basins, Albufeira, 30 November 1998.

  24. 24.

    Protocol amending the Convention on Co-operation for the Protection and Sustainable Use of the Waters of Luso-Spanish River Basins signed 30 November 1998, 4 April 2008.

  25. 25.

    Agreement between the Government of the French Republic and the Spanish Government relating to Lake Lanoux, Madrid, 12 July 1958.

  26. 26.

    Lake Lanoux Arbitration (France v. Spain) (1957) 12 R.I.A.A. 281.

  27. 27.

    Agreement between the Republic of Finland and the Union of Soviet Socialist Republics Concerning Frontier Watercourses, Helsinki, 24 April 1964.

  28. 28.

    Vuoksi Agreement on Discharge Rule in Lake Saimaa and the Vuoksi River, 1989.

  29. 29.

    Agreement Regulating the Withdrawal of Water From Lake Constance, Bern, 30 April 1966.

  30. 30.

    Case Concerning the Gabčíkovo-Nagymaros Project (Hungary v. Slovakia), Judgement, ICJ Reports 1997, 7, para 140.

  31. 31.

    Protocol for Sustainable Development of Lake Victoria Basin, Arusha, 29 November 2003.

  32. 32.

    International Boundary and Water Commission (IBWC), Minute No. 242, Permanent and Definitive Solution to the International Problem of the Salinity of the Colorado River, 30 August 1973.

  33. 33.

    Agreement on Great Lakes Water Quality, Ottawa, 22 November 1978.

  34. 34.

    https://www.iksr.org/en/international-cooperation/rhine-2020/salmon-2020/salmon-2000/ (accessed 12 February 2019).

  35. 35.

    Agreement between Finland and Sweden Concerning Transboundary Rivers, Stockholm, 11 November 2009.

  36. 36.

    Ethiopia diverts Blue Nile for controversial dam build, BBC, 28 May 2013, http://www.bbc.com/news/world-africa-22696623 (accessed 12 February 2019).

  37. 37.

    Case Concerning Pulp Mills on the River Uruguay (Argentina v. Uruguay), Judgement, ICJ Reports 2010, 14, para 204.

  38. 38.

    Procedures for Notification, Prior Consultation and Agreement (PNPCA), adopted by the Council of the Mekong River Commission, 2003.

  39. 39.

    Statute of the River Uruguay, Salto, 26 February 1975.

  40. 40.

    Council Directive 85/337/EEC of 27 June 1985 on the assessment of the effects of certain public and private projects on the environment.

  41. 41.

    Directive 2011/92/EU of the European Parliament and of the Council of 13 December 2011 on the assessment of the effects of certain public and private projects on the environment.

  42. 42.

    Convention on Environmental Impact Assessment in a Transboundary Context, Espoo, 25 February 1991.

  43. 43.

    See e.g. Article 2.1, Treaty Between the Hungarian People’s Republic and the Republic of Austria Concerning the Regulation of Water Economy Questions in the Frontier Region, Vienna, 9 April 1956; Article 3, Agreement between the Government of the Czechoslovak Republic and the Government of the Polish People’s Republic Concerning the Use of the Water Resources in Frontier Water, Prague, 21 March 1958.

  44. 44.

    Agreement between the Federal Republic of Germany and the European Economic Community, on the one hand, and the Republic of Austria, on the other, on cooperation on management of water resources in the Danube Basin, Regensburg, 1 December 1987.

  45. 45.

    Directive 2007/60/EC of the European Parliament and of the Council of 23 October 2007 on the assessment and management of flood risks.

  46. 46.

    Protocol on Flood Protection to the Framework Agreement on the Sava River Basin, Gradiška, 1 June 2010.

  47. 47.

    Convention between the Government of the Republic of Hungary and the Government of Ukraine on water management questions relating to frontier waters, Budapest, 11 November, 1997.

  48. 48.

    Exchange of Letters Constituting an Agreement between France and Spain Amending the Arrangement of 12 July 1958 relating to Lake Lanoux, 27 January 1970.

  49. 49.

    As information on individual infringement cases in the prejudicial phase of the procedure are disclosed by the European Commission only sporadically, this statement can be best corroborated by the general infringement statistics of the Commission and the case law of the European Court of Justice. These two sources do not identify a single case where the Commission voluntarily took over an explicit bilateral dispute between member states. Also see Sect. 8.3.5.

  50. 50.

    C-459/03, Commission v. Ireland, ECR 2006, I-04635.

  51. 51.

    The Rhine Chlorides Arbitration concerning the Auditing of Accounts (Netherlands-France), 12 March 2004, PCA Award Series 2008. Here, while the underlying treaty—the 1976 Convention on the Protection of the Rhine against Pollution by Chlorides—is concerned with a par excellence water pollution issue (thus subject to EU law), the actual dispute revolved around the correct interpretation of its 1991 Additional Protocol on the financial obligations of the riparian states. Therefore, it was recognised as a case that remained outside the remit of EU water law.

  52. 52.

    Convention between the Kingdom of Belgium and the Grand Duchy of Luxembourg relating to the Waters of the Sûre, Brussels, 17 March 1980.

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Baranyai, G. (2020). The Resilience of Transboundary Water Governance Within the European Union: A Legal and Institutional Analysis. In: European Water Law and Hydropolitics. Water Governance - Concepts, Methods, and Practice. Springer, Cham. https://doi.org/10.1007/978-3-030-22541-4_10

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