ࡱ> %` IbjbjNN .,,@%TTTTTTTh0%0%0%8h%&<h5L&L&"n&n&n&I'I'I'$hy^ږTI'I'I'I'I'ږTTn&n&])])])I'Tn&Tn&])I'])])TTxn&@& p^M0%(|J05Ҍכ}(כxxDכTI'I'])I'I'I'I'I'ږږ)XI'I'I'5I'I'I'I'hhhDhhhhhhTTTTTT Best Practice in Environmental Flow Science and Policy: Guiding Principles Rebecca Tharme The Nature Conservancy November 2008 Fully engage stakeholders in every aspect of e-flow assessment and decision-making. Be very clear about what the e-flows provisions are aimed at protecting. Use the full toolbox of available methods to determine e-flow needs rather than limiting flexibility and effectiveness by relying on a single approach. Focus on protecting whole, functioning ecosystems. Define e-flow needs using an holistic approach guided by natural flow characteristics. Engage inter-disciplinary diverse teams of scientists and other experts to make best use of available knowledge and tools. Identify opportunities for e-flows integration at a regional scale to most effectively avoid unacceptable ecological and social impacts. Assess e-flow needs before designing a dams structural features or operation plan. For existing dams and other water and energy infrastructure, seek to integrate elements of e-flows immediately and implement them opportunistically. Establish a sound hydrologic foundation to support e-flows determination and implementation. Include vulnerability and risk analyses as elements of an e-flows assessment. Adopt a precautionary approach. Practice adaptive ecosystem management. Address e-flows assessment as an integrated component of a national strategy, or equivalent framework or process for, integrated water resources management. Fully integrate rivers and other wetlands into basin planning and management for successful e-flows outcomes. Formally recognise and embed e-flows principles and provisions for e-flows assessment in national legislation, policy and regulatory frameworks. Use market mechanisms where appropriate for flow restoration. Invest in institutional and technical capacity-building, from local to national levels. Mainstream e-flows assessment into water resources investments and policy reforms.  Fully engage stakeholders in every aspect of e-flow assessment and decision-making. Stakeholders should be involved in providing support for environmental water provisions, prioritizing and setting ecological goals for waterbodies, defining e-flow needs and in negotiating which aspects of e-flow recommendations will be implemented (i.e., selection of implementation scenarios). An open, inclusive, transparent stakeholder process, and at the appropriate scale, should be used to identify ecosystem-related ecological and socio-economic values and needs. Such needs and values should be given due consideration when assessing trade-offs in the development and management of water resources infrastructure, including during dam siting, design, and operations. Be very clear about what the e-flows provisions are aimed at protecting. There are many management options to choose from for any given river, and while a scientific flow recommendation should be designed to maintain or restore a river to a desired condition, the determination of what that condition should be is a societal one that takes into consideration many divergent human needs and values. A societal vision and accompanying objectives should be set commensurate with the amount of ecological value needed from any river, and the consequent environmental flow regime specified. The goal for a largely intact, high conservation value river might be to achieve excellent ecological status, while the goal for an impaired river under intensive water abstraction might be to simply maintain its basic functions. The societal benefits from allocating river flows should be optimized and sustained by explicitly and comprehensively assessing the trade-offs between a rivers health and other human water demands. Differences in river types need to be understood, as not only do water withdrawals differ in their levels and types of impacts, but some water sources are more sensitive and vulnerable to withdrawals than others. Use the full toolbox of available methods to determine e-flow needs rather than limiting flexibility and effectiveness by relying on a single approach. It is more important to develop a scientific process or framework that provides sufficient flexibility for the scientists involved to be able to select the most appropriate tools for their purpose, rather than to try to identify any single or suite of tools to be applied in all situations. E-flow assessments should maximize the benefits of using the hierarchical, large and diverse array of methods and tools now available, as no single approach fits all situations. The methods chosen should be tailored to the specific uncertainties and priorities identified by stakeholders, and should match the level of information, resources, time available and degree of certainty required. Methods should be as ecologically-relevant as practicable and adequately tested in terms of their scientific defensibility and transferability to a local context. Focus on protecting whole, functioning ecosystems. The entire interconnected river system, from source to sea within the catchment, and its key ecological attributes should be considered in an e-flows assessment. To protect the health of the whole ecosystem and ecosystem-related values, adequate knowledge needs to be gained of the ways that river flows, in particular, affect not only individual species and populations, but also key habitats, processes and ecosystem components. A wealth of socially-valued ecosystem services for human well-being are provided by healthy river ecosystems, which can become severely compromised or lost when river flows are excessively altered for other human purposes. Every effort should be made to maintain or restore, to the greatest extent possible, ecological and geomorphological functions and processes similar to those exhibited in the rivers natural or unaltered state. By focusing on the river ecosystem in its entirety, sound scientific recommendations for flow protection can be made in the absence of complete understanding of all aspects of system functioning by building up, piece-wise, understanding of indicative component parts or processes of the ecosystem into a cohesive recommendation thought to adequately support the proper functioning of the whole ecosystem. Define e-flow needs using an holistic approach guided by natural flow characteristics. The native biota in a river ecosystem have evolved life history strategies that respond to natural flow regimes, and are adapted to and reliant on specific hydrological events. The natural hydrologic regime and its inter- and intra-annual variability, in terms of the magnitude, frequency, timing, duration and rate of change of different hydrologic conditions, from high to low flows, therefore should be mimicked to the greatest extent possible. Hydrologic regimes that are protective of the full range of species, communities and ecosystems that naturally occur or that could be expected to naturally occur in the catchment should be maintained or restored. Single minimum flow recommendations provide a wholly inadequate basis for flow-based ecosystem maintenance or protection. Environmental flow prescriptions, standards or targets, should as far as possible directly link flow alteration to ecological response and be based on mechanistic (but not necessarily site-specific) relationships between flow and ecology that can be field tested and validated. Engage inter-disciplinary diverse teams of scientists and other experts to make best use of available knowledge and tools. The process of defining a rivers flow needs should be as inclusive and transparent as possible. E-flows should be derived based on best available information and the professional judgment of as diverse and inter-disciplinary a team of natural, physical, and social scientists as possible, and supplemented with the traditional ecological and socio-cultural knowledge of local communities and other experts. It is entirely possible to derive e-flow recommendations even in data deficient situations, using conceptual models to frame scientific knowledge and uncertainty regarding important roles that hydrologic variation may play within the ecosystem, so a lack of data is not an acceptable rationale for not explicitly considering ecosystem values and e-flows in development schemes for water and energy (hydropower). Identify opportunities for e-flows integration at a regional scale to most effectively avoid unacceptable ecological and social impacts. The optimization of water management to provide for sectoral water demands, generate hydropower, and sustain ecosystem health and social benefits is best achieved at a regional scale through integrated regional planning and dam siting. It involves identifying rivers that must be permanently protected from dam development to ensure that broader social and environmental goals are met, as not all of the impacts of dams on ecosystem values and services can be potentially mitigated through design and operation. To avoid inadvertent trade-offs, to maximize certainty, and to minimize costs, e-flow regimes should be systematically specified for whole regions or river basins. Effective use must be made of both strategic environmental assessment (SEA) and project environmental impact assessment (EIA) procedures in setting directions for e-flows assessment. Options for implementation of the full wetland mitigation hierarchy (avoid, minimise, compensate) should be considered. The results of site-specific e-flow assessments should be used, wherever available, to better inform the setting of regional e-flows targets or standards. Assess e-flow needs before designing a dams structural features or operation plan. At least a preliminary assessment of e-flow needs should be undertaken before designing a dams structural features (e.g., turbine and outlet sizes) or operating plan. It is always far easier and less costly to integrate e-flows needs early on, rather than to retrofit later. For existing dams and other water and energy infrastructure, seek to integrate elements of e-flows immediately and implement them opportunistically. While other e-flow components may need to await more favorable structural, political, social, or economic enabling conditions, those components of e-flow recommendations that can be implemented immediately should be explicitly identified by fully integrating e-flow objectives into regular operations (and associated rules governing water use). Innovative solutions should be sought to address multiple objectives and collaboratively with other water management sectors, including flood control, floodplain management, and water supply, to enhance the socioeconomic or technical feasibility of implementing e-flows. Establish a sound hydrologic foundation to support e-flows determination and implementation. Specification of environmental flows for regions and river basins should be underpinned by a sound, current hydrologic information system that includes all relevant parts of the water cycle. The foundation should transparently account for all other current water demands, be able to factor in future demands, alternatives for meeting such demands, and the effects of climate change on system hydro-patterns. The hydraulic interconnectivity of groundwater and surface water quantity and quality should be explicitly recognized. Include vulnerability and risk analyses as elements of an e-flows assessment. Address and plan for wetland ecosystem vulnerability and risk in light of current and potential future anthropogenic impacts. Explicitly consider climate variability and change and their implications for both water resource availability and ecosystem response. Adopt a precautionary approach. E-flows recommendations should be iteratively refined as new information or opportunities become available, to secure greater confidence in long-term outcomes. A margin of safety needs to be included in hydrologic regime management programs, particularly for low resolution or low confidence e-flows estimates. Practice adaptive ecosystem management. Baseline conditions must be carefully documented, outcomes of e-flow implementation monitored and evaluated, and e-flow management adjusted accordingly to achieve the goals of protecting or restoring ecological integrity. Institutionalized long-term monitoring of ecological responses to flow alteration is necessary to properly inform adaptive management of environmental flows and safeguarding of ecological values that are difficult to replace. Ecological and social indicators, and their linkage to specific e-flow conditions, should be explicitly identified so as to evaluate the effectiveness of e-flow management in achieving its desired outcomes. Water management is a long-term process, the accuracy and effectiveness of which for water resources protection needs to be continually enhanced with scientific information through ongoing monitoring of streamflows, water levels, aquatic ecosystems, and related mapping and analysis. Address e-flows assessment as an integrated component of a national strategy, or equivalent framework or process for, integrated water resources management. Adoption of an ecosystem approach, including through the provision of e-flows, contributed to environmentally sustainable IWRM. Water resource sustainability involves the use of scientific analysis to balance the economic, social and environmental demands placed on the resource to ensure that the needs of current and future generations are not compromised by current usage. Fully integrate rivers and other wetlands into basin planning and management for successful e-flows outcomes. Comprehensive water resource planning includes recognition of e-flows as an essential water use. E-flows assessments must be clearly linked with the full cycle of water resource planning and development, and from scheme pre-feasibility to post-development stages. E-flows should form an integral part of basin water and land management plans, and should be considered explicitly within existing basin water rights and allocation systems to sustainably meet the full suite of future water demands. Attention should be given to both recovery of water for the environment in over-allocated systems and protection of e-flows in systems not yet under stress. Formally recognise and embed e-flows principles and provisions for e-flows assessment in national legislation, policy and regulatory frameworks. Legal recognition of e-flows is needed with, ideally, at least equal legal standing to consumptive water uses. Legal authority is needed to reserve and/or appropriate e-flows, to legally protect such e-flows from downstream diversions, and to close over-allocated basins to new appropriations. A legal framework is required for water transactions (leasing, trading, banking water). Mechanisms and/or a process should be in place to reallocate water to environmental needs where it has been over-allocated to meet other goals or to re-direct water savings from sector demand management to e-flows. Consistency of regulation and predictability between state and local units of government are essential for effectively managing the water resource and associated e-flows provisions. Sectoral ministries need to be re-oriented institutionally to the need to include e-flows provisions in their policies and practices, and their policies harmonized. Significant institutional capacity, along with continued political will and support, are required for proper implementation of e-flows policy. Use market mechanisms where appropriate for flow restoration. Where the goals for environmental flows and all other water demands cannot be met at first, market mechanisms should be used to enable the re-allocation of current water demands or the goals for environmental flows and other future water demands should be re-visited. Invest in institutional and technical capacity-building, from local to national levels. Every e-flow assessment should be used as an opportunity to build awareness of e-flows principles and concepts, and to develop both technical and cross-institutional capacity from local to national levels. The better the collective understanding of e-flows concepts and of ways to effect e-flow implementation from the outset, the more successful the result is likely to be in the long term. Mainstream e-flows assessment into water resources investments and policy reforms. Rivers and other wetland ecosystems should be considered a fundamental part of water infrastructure.     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