Methodology for the development of river basin management plans:

1. Methodology for the development of river basin management plans: Land-use planning tools& Public participation J. Staes & P. Meire Ecosystem Management Research Group Department Of Biology Chair of Integrated Water Management Institute of Environmental Sciences University of Antwerp

2. Outline • Study area • Discussion use of models and participation • General Framework of methodology • Need for water system oriented spatial planning • Physical system • Anthropogenic system • Methodology of PPGIS-tool • Current and future research SPAN

3. Study Area: The Nete Basin

4. Study Area: Fact Sheet • 1673 km² - 2224 km of rivers* • Sandy Soils – freatic groundwater • Topography (6-70 m) – Aeolic sand-layer (dunes)* • Hydrology: • Basin Flow: 388 mn m³/year (1990-2000) • Avg year flow variation 89 mn m³ - 23 % • Discharges for year 2000 – total year flow 490 mn m³ • 84 mn m³ sewage treatment (63-70 % households connected) • 40 mn m³ industrial • ? mn m³ diffuse (est. 47 mn m³) • Groundwater extr: 110 mn m³ lisc / 60 mn m³ eff. • Canal irrigation and infiltration losses : 80 – 120 mn m³ (est.)

5. System complexity • Many basins have complex land-use patterns, resulting in a complex water system. • water management infrastructure and system manipulation in general increase overall complexity • Monitoring inadequate • Urban – rural interface is widespread • The assumptions within models are not accepted as they are questioned to be applicable to existing data and do not represent reality. • Models apply only to a specific state of the catchment or aspect of the water system. • The complexity is known tentatively by experts, but is not monitored or quantified • Peak flow models  low flow models • Urban areas and run-off assumptions • Exclusion of urban drainage – sewage systems • Parameter tuning does not feel like reality.

6. Decision Support? • Is quantitative modelling feasible and worthwhile for complex systems ? • Monitoring and modelling effort/cost  benefits of improved implementation of measures. • “Kicking in open doors?” - Best available knowledge • “disentangling” the system as a goal • Minimising interactions with water system • Ecohydrology: “Allowing self-optimisation and organisation” • Creating boundaries rural – urban systems • Uniformity of measures

7. Issues: Institutional Vast institutional fragmentation of water and land management… of which the roots reside in political and economical interests. GOAL for RBMP is to find commonly accepted… • Issues, problem definitions • Goals & shared vision • Actions and measures (responsability – timing - funding). Need for institutional participation First! • Stakeholder participation • Public participation Luxury problem Besides, stakeholders mock the participation efforts if they witness institutional disagreement.

8. Institutional complexity • The success of the RBMP depends on the many institutions for both planning and implementation. • The top-down approach does not work if the implementation is at the lowest levels. • International basin management (between countries) • Basin management (within one state or region) • Local management (provinces, municipalities) • Financial support to RBMP…. • The issues at the different levels are not the same… • A pragmatic approach is a necessity…

9. Participation? • Goal, means or obligation? • How far do we go? • information => participation => co-decision • Usefull? Added value? • Is a consensus decision a better decision? • A reflection of “the voter is always right”? (even if he doesn’t understand) • Practical organization of participation? = many problems!!! Participation can be abused to increase this problem. Putting the decision as a “participatory” increases the “shared” responsibility. A participatory decision is not necessarily a better decision! Shared responsibility is no responsibility at all!… Basin management is dependent on cooperation and has no authority. Institutions have no responsabilities for meeting specific goals. Shared responsibility is no responsibility at all!

10. “A general methodology for RMBP needs to provide a framework by which gathered information can be processed to policy relevant conclusions.” Why a general methodology?

11. “A general methodology for RMBP needs to provide a framework by which gathered information can be processed to policy relevant conclusions.” A general framework for RBMP? “A planning process that is based on a water system oriented management concept”

12. Provide legitimacy • Guidance for reflection and discussion • Basis for cooperation • Implementation strategies • Centralised & updated information • Open acces, free of charge • Good-quality Monitoring campaigns Declaration of Water Policy Intentions (off.) Environmental information & monitoring • Early stakeholder involvement • Impact of human activities on water system • Many tools and methods for stakeholder consultation Stakeholder & economic analysis Stakeholder Consultation • Issues and perception of stakeholders towards water system • Social learning, education, information campaigns Issues and opportunities EWFD Legal framework Indicators of water system health • International conventions, treaties and laws • Quantifiable, measurable commitments • Driving force to act!

13. Water System Functioning • Reference situation • Carrying capacity • Goods and services Ecosystem & river Restoration land-use <=> water system Compatibility !!! Actual and Potential !! Restoration and land-use change opportunities • Study water system functioning • Determine reference situation(s) and confront with actual situation. • To Quantify potential goods and services.. • …for different restoration scenario’s… • Such as • adapted Land-use, wetland & river restoration. Declaration of Water Policy Intentions (off.) Experts / science Environmental information & monitoring Stakeholder & economic analysis Stakeholder Consultation Issues and opportunities EWFD Legal framework Indicators of water system health

14. Setting Basis of management plan • Application of legal framework and national water policy • Setting of goals and objectives • By interdisciplinary team (experts, institutions) • Water System Functioning • Reference situation • Carrying capacity • Goods and services Ecosystem & river Restoration land-use <=> water system Compatibility !!! Actual and Potential !! Restoration and land-use change opportunities Basin relevant goals & issues Declaration of Water Policy Intentions (off.) Experts / science • Clear goals and objectives for water system Environmental information & monitoring Goals and Objectives • Goals and Objectives: • Socio-economical • Water system • Provide a basis for discussion with objectives, goals, alternatives, scenario’s Stakeholder & economic analysis Elevation to structural problems Stakeholder Consultation Evaluation of issues & opportunities Issues and opportunities • Management Level: • International -Basin • Sub-basin -Local EWFD Legal framework • Taking care of stakeholder concerns and issues • Elevation to policy/structural problems • Appropiate level to deal with Indicators of water system health

15. Which information and tools are needed to asses the development scenarios? • Water System Functioning • Reference situation • Carrying capacity • Goods and services Ecosystem & river Restoration Exploration of implementation alternatives. land-use <=> water system Compatibility !!! • Political agreement/commitment on neccesity of water management and its goals and objectives • Official Basin management structures for decision making Actual and Potential !! Restoration and land-use change opportunities Scenario alternatives Implementation Alternatives Basin relevant goals & issues Declaration of Water Policy Intentions (off.) Experts / science Environmental information & monitoring Goals and Objectives 1. Long term vision 2. Management Plans 3. Action programmes Political Agreements • Goals and Objectives: • Socio-economical • Water system Institutional Cooperation Stakeholder & economic analysis Elevation to structural problems Stakeholder Consultation Evaluation of issues & opportunities Issues and opportunities - formulating thematic solutions - proposal of priority measures - integrated vision / viewpoint • Management Level: • International -Basin • Sub-basin -Local EWFD Legal framework Institutional cooperation for interdisciplinary capacity building and mutual understanding Indicators of water system health

16. Basin perspective: upstream/downstream relations Upstream potential for ecosystem service generation Downstream needs for humans and ecosystems • The basin perspective plays a central role to asses both development and implementation scenarios • Upstream potential to take measures for the increase of ecosystem goods and services are mirrored against the downstream needs • Water System Functioning • Reference situation • Carrying capacity • Goods and services Ecosystem & river Restoration • Integrated assesment • Restore WS functioning • Optimise land-use • Technical solutions (WWT) • Impact mitigation • Tools: • Expert judgement • Conceptual model • Hydrological model • Water allocation model • Coupled modelling • Ecosystem model • DSS-models • … land-use <=> water system Compatibility !!! Actual and Potential !! Restoration and land-use change opportunities Scenario alternatives Implementation Alternatives Basin relevant goals & issues Declaration of Water Policy Intentions (off.) Experts / science Environmental information & monitoring Goals and Objectives 1. Long term vision 2. Management Plans 3. Action programmes Political Agreements Not only technical and engineering solutions…. But also adaptation of activities on the water system characteristics… and restoration of ecosystems to provide goods and services • Goals and Objectives: • Socio-economical • Water system Institutional Cooperation Stakeholder & economic analysis Elevation to structural problems Stakeholder Consultation Truly integrated modelling is unachievable Application of different approaches, models and expert judgement safeguards a holistic approach and reveals knowledge gaps. Evaluation of issues & opportunities Issues and opportunities - formulating thematic solutions - proposal of priority measures - integrated vision / viewpoint • Management Level: • International -Basin • Sub-basin -Local EWFD Legal framework Indicators of water system health

17. Basin perspective: upstream/downstream relations Upstream potential for ecosystem service generation Downstream needs for humans and ecosystems • Stakeholder participation is needed… • Additional new insights • Scenario alternatives • Implementation alternatives • Compensations, transitions • Reconciling public interest of environmental sustainability with local interest and socio-economic considerations • Water System Functioning • Reference situation • Carrying capacity • Goods and services Ecosystem & river Restoration • Integrated assesment • Restore WS functioning • Optimise land-use • Technical solutions (WWT) • Impact mitigation • Tools: • Expert judgement • Conceptual model • Hydrological model • Water allocation model • Coupled modelling • Ecosystem model • DSS-models • … land-use <=> water system Compatibility !!! Actual and Potential !! Restoration and land-use change opportunities Scenario alternatives Implementation Alternatives Basin relevant goals & issues Declaration of Water Policy Intentions (off.) Experts / science Environmental information & monitoring Goals and Objectives 1. Long term vision 2. Management Plans 3. Action programmes Political Agreements • Goals and Objectives: • Socio-economical • Water system Institutional Cooperation Stakeholder Participation Public Participation Stakeholder & economic analysis Elevation to structural problems Stakeholder Consultation Evaluation of issues & opportunities Reconciling sustainability and public interest with local interest. Issues and opportunities - formulating thematic solutions - proposal of priority measures - integrated vision / viewpoint • Public participation to inform the public • Social learning • Education • Acces to information • Management Level: • International -Basin • Sub-basin -Local EWFD Legal framework Indicators of water system health

18. Basin perspective: upstream/downstream relations Upstream potential for ecosystem service generation Downstream needs for humans and ecosystems • Water System Functioning • Reference situation • Carrying capacity • Goods and services Ecosystem & river Restoration • Integrated assesment • Restore WS functioning • Optimise land-use • Technical solutions (WWT) • Impact mitigation • Tools: • Expert judgement • Conceptual model • Hydrological model • Water allocation model • Coupled modelling • Ecosystem model • DSS-models • … land-use <=> water system Compatibility !!! • Long term vision and goals • Medium term RBMP • Short term action plans Actual and Potential !! Restoration and land-use change opportunities Scenario alternatives Implementation Alternatives Basin relevant goals & issues Declaration of Water Policy Intentions (off.) Experts / science Each with clear goals that have to be met within a certain timeframe Environmental information & monitoring Goals and Objectives 1. Long term vision 2. Management Plans 3. Action programmes Political Agreements • Goals and Objectives: • Socio-economical • Water system Institutional Cooperation Stakeholder Participation Public Participation Stakeholder & economic analysis Monitoring of water system and policy effectiveness evaluation in order to adjust policy strategy and/or implementation. Clear indicators that measure the distance towards the goals Elevation to structural problems Stakeholder Consultation Evaluation of issues & opportunities Reconciling sustainability and public interest with local interest. Issues and opportunities - formulating thematic solutions - proposal of priority measures - integrated vision / viewpoint • Management Level: • International -Basin • Sub-basin -Local EWFD Legal framework Timeline for Meeting Policy Objectives Indicators of water system health Monitoring & Evaluation

19. Basin perspective: upstream/downstream relations Upstream potential for ecosystem service generation Downstream needs for humans and ecosystems • Water System Functioning • Reference situation • Carrying capacity • Goods and services Ecosystem & river Restoration • Integrated assesment • Restore WS functioning • Optimise land-use • Technical solutions (WWT) • Impact mitigation • Tools: • Expert judgement • Conceptual model • Hydrological model • Water allocation model • Coupled modelling • Ecosystem model • DSS-models • … land-use <=> water system Compatibility !!! Actual and Potential !! Restoration and land-use change opportunities Scenario alternatives Implementation Alternatives Basin relevant goals & issues Declaration of Water Policy Intentions (off.) Experts / science Environmental information & monitoring Goals and Objectives 1. Long term vision 2. Management Plans 3. Action programmes Political Agreements • Goals and Objectives: • Socio-economical • Water system Institutional Cooperation Stakeholder Participation Public Participation Stakeholder & economic analysis Elevation to structural problems Stakeholder Consultation Evaluation of issues & opportunities Reconciling sustainability and public interest with local interest. Issues and opportunities - formulating thematic solutions - proposal of priority measures - integrated vision / viewpoint • Management Level: • International -Basin • Sub-basin -Local EWFD Legal framework Timeline for Meeting Policy Objectives Indicators of water system health Monitoring & Evaluation

20. A need to study the physical system • Reference situation is hard to define but...we can use indicators • Topography, elevation maps • Soil maps • Vegetation mapping • … • GIS – technology is indispensable Some examples

21. Urban–rural interface? • Land-use has become fragmented • Higher impact on system • Functions with different hydrological needs cannot co-exist without conflicts (e.g. wetland reserve and agriculture) • fragmentation increases the border-lenght • Higher costs for society • E.g. dendritic urbanisation and sewage infrastructure

22. Actual land-use

23. Example “topographic wetness index” derived from a detailed DEM

24. Mapping of wetland vegetation indicators to look for restoration opportunities Mapping of wetland vegetation indicators to look for restoration opportunities

25. Soil-map interpretation

26. Soil-map interpretation Indicative soil wetness - drainage classification

27. A need to study the impact of Land-use • Collect information on issues related to land-use and water system functioning • Interviews and questionnaires • Use exact formulation of stakeholder • What is the cause? Who is affected • Who benefits and who bears the burden? • If spatial => coordinates or polygon on map • Draw up interaction schemes for stakeholder communication. • Visual representation of interactions with the watersystem, including possible effects and mitigation measures • For each sector or stakeholder group that can be generalised

28. How can this be applied to improve land-use planning? • A participatory process to analyze land-use issues and opportunities • Comprehensible for the “outsider” • Transparent and straightforward

29. Practical Suitability Map (PSM) Claim of sector for type of land-use Map Of Opportunities (MOP) Physical suitability for type of land-use Selection of maps Selection of maps Combination tables Strong claim Combination tables Conflict claim evaluation Consensus Claim Low physical suitability High physical suitability Consensus Unclaimed Opportunities Weak / no claim • Actual land-use • Planned Land-use • Juridical restrictions Credibility Analysis (Cred) Juridical legitimacy for type of land-use • Water System Functioning Aspects • Infiltration, erosion & run-off • Water conservation (wetland management) • Water storage (flood risk management) • Negotiation strategy • Integrative (win-win) • Distributive (conflict) • Type of measures • -Protection • -Mitigation • -Restoration

30. Optimisation of land-use in relation to the watersystem • 4 sectors • Nature area and forestry • (high protection – low protection) • Agriculture • (extensive – intensive) • Urban development (suitability) • Industrial development (suitability) • 3 watersystem functions • Inundation areas (suitability) • Waterconseration areas (suitability) • Infiltration areas (suitability) Multifunctionality Multifunctionality SPATIALANALYSIS

31. Adaptions to canal system Discharge capacity • Adapting stream profiles • Dynamic water level control • Retention Regional level Streams Groundwater Canal system Reduction of water use Abstraction D essication Drainage Eutrophication Adaptation of drainage basis Drainage Dessication Eutrophication Inlet of external water Dessication Sprinkle - irrigation Ditch Bodembewerking Leaching >> Eutrophication Run-off >>Erosion + Eutrophication Infiltration compactation >> dessication Local level Run-off Eutrophication Field Fertilizer-use Eutrophication Drainage Dessication Pesticide-use Contamination Captation & irrigation • Run-off Nutrients & pesticides • Technology (eg fertilizer injection) • Quantity • Timing • Bufferstrips • Restoration of small-scale parcels • ( ditches, hedges & brushwood) Reduce external water supply: • Smart irrigation • Active water level control • Conservation of local water resources Waste water discharge Eutrophication Waste water treatment (reed) Farmyard, stables and accomodation Use of drinking water

32. Map selection & aggregation Physical Suitability Stakeholder Claim

33. Combination table Example of a combination-table: These tables combine multiple legend categories which can be valued by the stakeholder representatives. These tables are generated by an excel-macro and are linked to the corresponding GIS-layers. This table was used for the Stakeholder claim of agriculture.

34. Examples: Physical suitability & sectorclaim

35. Watersystem opportunity maps Physical Suitability Suitability Maps Stakeholder Claim • Visualisation of the sectoral claim. • Map created by stakeholder representatives • Selection of Existing – new maps. • Valuing combinations of maps through the use of combination-tables • Physical suitability for sectoral claim • Physical suitability to satisfy sectoral needs and demands in a sustainable way • Does not take the actual situation or possible technical solutions into consideration. • Suitability maps showing: • Conflicts on claims • Opportunities for future claims • Consensus on claimed areas • Consensus on not-claimed areas • Subcategorised in function of matrix position.

36. MOP EVALUATION Low physical suitability Claimed LOW OPPORTUNITIES Low physical suitability Not claimed SCM SCM ongeschikt geschikt OPPORTUNITIES High physical suitability Not claimed • CONSENSUS • High physical suitability • Claimed MOP

37. Examples: suitability analysis

38. Development of maps for vision building Actual spatial situation Credibility Maps Juridical restrictions • Actual restrictions and limitations • Protected areas • Long-term policy plans • Combined into one map by a minimum-score overlay. • (only those that are relevant to the claim) • Actual spatial situation: • Land-use maps • Spatial destination plans • Three level classification • present/unknown/not present • destinated/unknown/not destinated • Credibility maps showing: the legitamacy of a claim. • Position of stakeholder in negotiation • Options for negotiation/land-use • regularization of illegitimate land-use • Land-use trading

39. Examples: Inputs for credibility analysis

40. Credibility-analysis • Actual spatial destination • Actual land-use • Actual juridicial limitations to sectoral activities The score can be used as an index for the conflict-solutions. A low credibility-score means that there are good possibilities to change the land-use.

41. Examples: Result of credibility analysis

42. Synthesis – sector analysis The synthesis of credibility and the suitability analysis is a powerfull tool for the water management. It can be used for a fast analysis of options and opportunities for both stakeholder and water managers.

43. Distributive negotiations Integrative negotiations Starts from positions Starts from vision and interests Incommunicative (closed) on revealing intentions Communicative (open) on revealing intentions No joint fact-finding Joint fact-finding High demands (high bets) No demand position Threats No threats Less mutual understanding More mutual understanding Low learning effect High learning effect No concern for others Concern for others

44. Examples: Result sector analysis

45. Current research Drawing up of a dynamic geographical database • Analyse upstream downstream relations • Actual situation • Land-use distribution, hydrology, sewage discharge, water budget, water quality, biodiversity • Desired situation • Functions of streams and riparian land + water users • Are conditions met? Conflicts ? • Review functions? • Actions and measures? • Future situation & Management opportunities • Waste water treatment, land-use transitions, re-meandering, floodplain & wetland restoration, infiltration restoration

46. Land-use Spatial analysis River and riparian zones Waste Water-treatment Captations and discharge points Indicators for water system vulnerability (measurements, model results, etc..) Potential measures and developments Actual and desirable functions of streams and riparian zones • waterquality • Waterquantity • safety etc… Conditions and aspired standards (safety, flooding frequency, river flows & water quality, anoxia) => per river segment Cost-effectiveness Achievability Multi-functionality Sustainability => Upstream region Vulnerability for not reaching desired objectives & conditions => per river segment (1) Total downstream need to reduce vulnerability levels Total upstream potential to reduce vulnerability levels Basin perspective (2) (1) Analyse internal conflicts & consistency (2)Apply from upstream to downstream Upstream efforts/costs  downstream benefits Geographically optimal implementation

47. 970 sub-basins 470 headwaters 6 strahler ordes 73 schreve ordes

48. Contact information: Jan Staes University of Antwerp Department of Biology Ecosystem Management Research Group Universiteitsplein 1 2610 Wilrijk tel.: +32 (0)3 820.22.68 fax: +32 (0)3 820.22.71 e-mail: jan.staes@ua.ac.be website: www.ua.ac.be/ecobe