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Les Documents de travail Atelier 2 |
CONCEPT
OF SUSTAINABLE WATER USE IN THE RUSSIAN FEDERATION
(MAIN PRINCIPLES)
SUBMITTED BY THE RUSSIAN FEDERATION
N. Mikheev, Dr A. Tchernyaev, Dr S. Belyaev, A. Lvov
During the last twenty five years the mankind has been experiencing an environmental and economic crisis. The latter is a global phenomenon, but has different manifestations on different continents and regions. This crisis came to life in mid-seventies and was initially considered to be purely economic (energy crisis). Only after some time it became clear that it had an integral character, comprised economic, environmental and political features, upset the balance between nature and anthropogenic society, and manifested, on the one hand, in degradation of the environment, and on the other - in inability of the Federal structures to find a way out of the current situation. The causes of the crisis lie in exhausting natural resources, especially water resources, severe pollution of the environment, deterioration of people’s health, degradation of various ethnic groups of the population.
At present the crisis is escalating. Only coordinated actions of the world community can help to resolve it.
The energy crisis of the 70-s, being part of the global process, gave rise to a technological reconstruction in economically developed Western countries. Contrary to that, in the former USSR it generated unduly extensive production, export of resources to the Western countries, augmented the economic and environmental crises. Profound internal economic and political contradictions had a revolutionary outcome - disintegration of the Soviet Union and downfall of the Soviet social and economic model.
Peculiarities and complexity of the Russian situation are aggravated by the fact the Russian Federation is affected both by the global and post-Soviet crises. Finally, the water use have been badly affected: water resources are exhausted, watersheds are degrading, big technical breakdowns occur more and more frequently, natural calamities result in tremendous damages, the tension of the social and political situation continuously grows, etc.
The water use crisis in modern Russia origins in the totalitarian model of the former USSR economic system. The system crisis generated consequently a crisis in all sectors of the society and industry, including the water use. However, though the system ceased to exist, the principles of organisation, functioning and managing the water sector remained the same. They engender the principle causes of the critical situation. All the factors showed the necessity of development and implementation of a new Federal water management policy, the policy of sustainable water use.
The draft document being presented is the first attempt to develop a concept and highlight strategic objectives and tactics for improving the situation and step-by-step transition to the policy of sustainable water use.
Current Water Resources and Water management in Russia
The volume of the river flow, formed on the territory of Russia is 4043 km3 per year (10 % from the world flow) or 237 thousand m3 a year per 1 km2 of the territory and 27,82 thousand m3 a year per capita. Supplementary flow from bordering countries equals 227 km3 per year. Russia is washed by 13 seas, the total sea area under Russian jurisdiction amounts to 7 million km2. About 60 % of the total river flow is discharged into peripheral seas of the Arctic ocean, whose basin is generally less developed and populated in comparison to other regions of the country.
Diversity of the territory, considerable yearly and perennial fluctuations of the river flow hamper the necessary water supply of the population and economy of the country. This problem is being solved by regulating water courses by reservoirs. There are more than 2000 reservoirs with the volume exceeding 1 million m3, including 103 large reservoirs (volume of more than 100 million m3).Their effective volume amounts to 340 km3.
There are 37 inter-basin flow diversion systems with the volume of more than 15 km3 per year and total extension of 3000 km.
High-capacity water pipelines are used to improve water provision of arid agricultural regions. Sometimes they extend up to several hundred kilometers.
About 200 km3 of water per year are used for production and social purposes, out of which 70-75 km3 are taken from natural resources, 136 km3 (68%) - from recycled water.
Fifty three percent of water abstracted from natural sources are used for industries, 19% - for municipal and drinking water supply, 18% - for agricultural water supply and irrigation.
Integral industrial and municipal water supply systems of big cities are well developed, causing excessive use of potable water for industrial purposes (up to 30-40% of municipal pipelines’ daily supply).
Municipal economy provides water supply to the urban population, municipal, transportation and other needs. The main portion (84-86%) of water supplied to towns and cities is used for municipal and drinking need of the population. Average urban daily water consumption in Russia amounts to 367 - 369 litres per capita. About 99% of cities, 82% of towns, 19,5% of rural areas have centralized water supply systems. The volume of irretrievable water consumption average to 35% of the water abstraction from natural water sources.
Most rivers and lakes are highly contaminated by products of biological and economy activities, the quality of surface waters almost never meet sanitary requirements and standards. Ground water sources are becoming more and more polluted.
Water as a Key Resource in Social and Economic Development
The sphere of water management was always unduly neglected. In fact, it is a basic sector, a critical factor for successful functioning of the economy complex, population welfare and environment condition.
The current state of natural water resources and centralized water supply systems with their distribution networks do not allow to assure the necessary potable water quality. More than half of Russian population use water not meeting sanitary standards.
It is clear that to ensure national and regional water safety, and as a result of that continuous social and economic development, it is essential to rehabilitate and protect natural water sources (rivers, lakes, aquifers, etc.) and put the water use on a sustainable basis.
Political, Economic and Legal Basis of the Transition to Sustainable Water Use
Social, Environmental, Economic Objectives of the State and Water management Policy
Russia is a Federation, comprising territorial and ethnic entities - Constituents, which have certain legal and political independence. Issues of ownership and use of water resources pertain both to the Federation and its Constituents.
Water is an inherent component of a geo-ecosystem, social and economic complex and the foundation of human welfare. Use of water resources for economic development and social well-being greatly depends on water management policy. As the population grows and economy develops, the number of Russian regions undergoing water supply crisis constantly increases.
Integral approach to using water as a limited resource requiring protection, combination of regional and basin water use programmes/plans within the Federal water management policy are critical for guiding Russian economy out of the crisis. Transition to a model of successful development, ensuring a balance between implementing social and economic tasks and resolving problems of environmental protection for future generations need a new sustainable water management policy as well. Understanding the key role of the water factor in the biosphere existence is a step toward keeping the water management activities in line with the ecological requirements, which is to protect the natural mechanism of environmental regulation.
Economic and Legal Basis
Introducing a model of sustainable water use in Russia presupposes creation of a legal basis, providing improvement of the current legislation, implementing economic mechanisms of water use. Growing political independence of the Constituents of the Russian Federation is becoming vitally important. Water management activities should become a key component of the Federal economic and social policy. The Government should guarantee the balance of interests between the Federal and regional levels, when mechanisms regulating social, environmental and economic development are formed.
Independence of the Federation Constituents in terms of water use allows them to form regional mechanisms and legislation basis, regulate water management activities in line with the Federal tasks of transition to sustainable water use. Conceptual documents on the Federal level must determine only strategic, conceptual approaches to resolving water management problems and principles of water management including interregional transboundary problems.
Water management policy, reinforced by the water legislation and implementation of sustainable water use in the regions will result in sustainable water use in the country in general. Part of this work has been completed: for example, several principle laws were already issued: "On Private Property", "On Privatizing Federal and Municipal Enterprises", "On Local Government", "On Private Enterprises", Water Code of the Russian Federation and others. This shows that a new legislative and legal basis for regulating water relations is being developed. It focuses on protection of human life and health, favorable environment conditions for work and recreation of the population. New Governmental policy in the field of water use and protection has a humanitarian emphasis. The role of the State and Federal Law as a mechanism of coordinating various interests in the society and their arbitration has become more prominent.
Federal legislation having a framework character presupposes drawing up and issuing by the Federation Constituents certain regional/local laws "On Coordinating Water Relations on the Territory of a Republic, Region, etc.". The latter would specify many articles of the Russian Federation Water Code, take into account the social, economic, environmental and other peculiarities of the region, and nullify the provisions of the water legislation which do not agree with the constitution of the Russian Federation.
All economic activities should closely interact and represent an integrated economic mechanism.
Sustainable water use must feature a correspondence of economic, social and environmental aspects, water user economic interests, which includes introducing charges/tariffs for water use (economic aspect), efficient water use (social aspect) and augmentation and protection of water resources (environmental aspect). Water legislation should allow to implement these three aspects of water management activities (rational water use, augmentation and protection of water resources) and the economic mechanism of water use.
GOALS AND OBJECTIVES OF SUSTAINABLE WATER USE POLICY
The principle goal of water management is meeting the demand of the population and industry in standard quality water with minimum damage to the environment.
The objectives are as follows:
Implementation of the described objectives allows to reach and maintain economically optimal and environmentally safe water use level, improve the population rate of life, realize the rights of the extant and future generation to use the water potential and ensure national prosperity of Russia on the ground of augmentation, rational and efficient use of water and protection of water resources. This way the sustainable water use phase is attained.
The Federal water management policy is based on the key principle of the future humanity - "harmonic development of humans is impossible in a contaminated environment". Consequently, sustainable water use is a strategic goal of the Federal water management policy.
There is a considerable incompliance between the proclaimed objectives and the actual situation. This is why a transition period will be essential (10-15 years), during which a series of strategic issues will be implemented.
METHODOLOGICAL PREREQUISITES FOR TRANSITION TO SUSTAINABLE WATER USE
The policy of implementing the strategic objectives of the water management is based on the following prerequisites.
1. Consequences of irretrievable water abstraction from natural sources are not fully known. The same is valid for the overall pollution effect. Moreover, we will never know the actual content of waste waters, containing hundreds of thousands of dissolved and suspended substances and compounds. Policies, aimed at limitation (limits of water consumption, Maximum Permissible Load, Maximum Allowable Concentration) do not guarantee safety of natural water bodies.
2. As water management measures take long to implement, they are difficult to forecast. When selecting parameters of constructions and technologies, it is essential to aim at the discoveries of state-of-art science and technology, whatever the water bodies condition is. Moreover, water use based on risk factors, intractable for management, should be limited in order to minimise risk while making a water management decision: everything unknown should be avoided.
The policy of transition to
sustainable water use is based on 7 conceptual conditions:
1. Basin Geo-Ecosystem Space of Resources Forming and Water Quality State
Waters are formed in river basins. A basin is a geo-ecosystem space including the watershed and hydrographic network. Natural water cycle ensures stability and balance of the basin’s ecosystem.
Social and economic systems were formed on the basis of natural resources potential. Their functioning based on anthropogenic development concept gradually destroyed geo-ecological nucleus of the basins, became harmful for the social sphere and finally generated the basins self-destruction.
Extensive life-cycle of a basin should be grounded upon understanding the integrated character of all the components and factors of the integral social-environmental-economic system.
2. Integral Process of Resources Formation and Water Quality State in Natural Environment
Natural water cycle
ensures a continuous qualitative and quantitative augmentation of
water resources.
3. Economy and Economic Basin System
Formation and development of the social and economic complex in the country was historically based upon extension and growing complexity of the infrastructure of already existing cities and towns on the one hand, and upon exploration of new territories, rich in natural resources, on the other. A common factor is a correlation to river networks. Finally, the industrial and economic system comprised all natural resources of the basins which allows to consider the modern social-economic complex in basin terms and evaluate the influence of the former on all structural elements of the basin.
The principle cause and defect of
development of the economy and economic systems was a disregard
of the social and ecological factors.
4. Water Management Basin Complex, Integrated Process of Water Resources Use, Protection and Reproduction
Water management/use complexes exist and function on the basis of using the surface and ground water resources of the basins. The complexes comprise water users, constructions for flow regulation, water transportation, treatment and augmentation which are multi-sector and multi-purpose.
Low efficiency of the current water management policy can be explained by the fact that it is aimed at meeting short-term intermediate tasks, not ensuring overall resolving of water economy issues.
The fallacious concept of the autonomy of water supply and water protection issues engendered a continuous exploration of new natural water resources. But the water quality in natural water bodies totally depends on the amount of water used. Water abstracted from a natural source is used by a Water management Complex participant, enters into the technological process and returns into the water sources in the form of waste water. In course of this process its quality drastically deteriorates. Consequently, water quality in water bodies is formed by water users. Use and protection of water resources are interrelated issues.
It is obvious that the concept of water resources protection as an inherent component of their use will allow not only to resolve the problem of the domestic and industrial water supply with more efficiency in a cost-effective way, but also to improve the condition of the water bodies.
The term "water"
comprises two parameters - quality and quantity. It is virtually
impossible to change the value of one of these parameters without
changing the other. In the natural environment the process of
water formation and augmentation is indivisible. The production
and industrial process is a simulation of the natural process
with a potential of its improvement and intensifying.
5. Multifarious Character of Settling Water Management Tasks, Complex Water Management System, Technical Augmentation of Water Resources
There are always several options for resolving water management tasks: engineering methods of flow regulation, its temporal and spatial redistribution, developing closed and recycling systems for water users, etc.
A systems approach to water supply (considering the basin an integrated water management system) is the most effective. Integrated water management system of the basin is, On the one hand, a natural and anthropogenic complex of interrelated natural bodies and hydro-constructions constructions functioning together for meeting social, environmental and economic requirements in water. On the other hand, this is a framework for management of the physical Integrated water management system that would ensure a steady ecological and economic development and provision of the water users with sufficient water of adequate quality.
The first element in
Integrated water management system is water management system of
users which reproduce water resources by means of re-using and
recycling water supply systems.
6. Efficient
Water Use
The term "integral use" pertains to water bodies (rivers, lakes, reservoirs, canals, etc.). For example, reservoirs should be used for satisfying the requirements of all interested sectors: water supply, recreation, power supply, navigation, fisheries, etc. As requirements of the water users are contradictory, they cannot be all met at once. The trade-off approach is used.
The term "efficient use" pertains to water resources and presupposes overall application of modern intensive technology in water use, based on engineering and industrial water augmentation. Continuous augmentation assures both the reduction of water abstraction from the source and decrease in effluent discharge into the source, allowing to maintain the water source in environmentally safe condition.
Integrated efficient water use is not an objective, but a water management method for reliable water supply and water sources protection from contamination.
"Integrated Schemes of Water
Use and Protection" for river basins which used to be
developed in the Russian Federation, are to be replaced by new
Water Management Programmemes and Action Plans.
7. Water Management Activities with Respect to Environment
Water management activities presuppose a combination of social, environmental and economic priorities, assuring steady economic development, protecting the geo-ecosystem of a basin.
Sustainable water use invisages environmentally safe, socially meaningful solution of the water supply problem. The term "sustainable" is very dynamic and can undergo changes depending on the steady development of productive and social relations.
PRINCIPLES OF SUSTAINABLE WATER USE POLICY
In line with the described objectives, issues and methodological prerequisites of the water management policy, its main principles can be formulated as a system of laws and regulations forming the nucleus of the management policy.
Review of the Russian and foreign experience allows to single out the following basic principles of water management policy:
Principle 1. Basin approach
Every river basin is unique and represents an integral and sovereign geo-ecosystem unit. Historically, social-environmental-economic systems were formed on the basis of the river basins. Water bodies condition may be viewed as one of the integrating parameters of the whole system. Therefore, it is essential to assess the impact of different affecting factors (water abstraction, effluent discharge, water reservoirs construction, etc.), make forecasts and plans only with regard of after-effects of all activities carried out in the basin.
Managing a complex entity as a basin is impossible without development of a hierarchical system of the management objects. The hierarchy of tributaries can serve as a natural basis of such a system. In this case linkage of management objects of higher and lower levels is based on the transfer of values of the parameters under control from the lower to the higher level or on setting parameters controlled for a lower level (water discharge, hydrochemical parameters, etc.).
Watershed of a lowest hierarchical level can be located in several Federation Constituents, each having its own specific and often contradictory interests in terms of water resources use and certain administrative, economic, legal and institutional self-sufficiency.
On the other hand, the territory of a Federation Constituent can comprise several water bodies of the lowest and higher levels. It is essential to create a water management system which will be based on a combination of basin planning and regional operational management.
Principle 2. Gradual Minimization of Harmful Effect on Water Bodies
This key principle of water
management policy should be split into two aspects:
2.1 Reduction of pollutants discharges
Water bodies condition demonstrates the deficiency of the currently used principles and mechanisms of water management activity control (natural water abstraction, effluent discharge). Though rather effective at some time, the policy of pollutants discharge control based on the MAC-MPL methodology is obviously outdated.
On the one hand, it sets strict limitations on pollutants discharge. On the other hand, this policy virtually legalizes the latter. A basically new approach for the Russian Federation is proposed. It comprises two options:
The first is to improve the method of water quality control. Federal standards should be the framework . Appropriate documents should contain the definition of regional (or/and basin, reservoir) water quality standards, which are to reflect all the regional peculiarities. Currently, the regional standards can be based on "natural" (or "quasi-natural", considering the anthropogenic background) parameters. Meeting these standards is one of the final objectives of any water management policy. This unlike the current short-term standards, the new standards will have a long-term focus.
The second option is to develop the approach to water quality objectives.
For each individual water body a regional water quality standard is determined, the water body condition is assessed, an inventory of point and diffuse sources of pollution is set up, waste water treatment technologies are evaluated. Finally, a cost-effective technological scheme that would allow to improve quality indicators of the water body is developed. These indicators are to be approved by the Federation Constituent as an objective, target parameters for a certain period are outlined.
2.2 Reduction of
water abstraction
from natural sources.
Another vital aspect of minimizing the effect on water bodies is the reduction of water abstracted for different purposes by minimizing losses and using the water more efficiently. About 30-50% of water can be saved, still satisfying the needs of the industry and population.
Saving water should become
attractive for users due to economic incentives. If charges for
water abstraction actually cover the expenses for sustainable
functioning of the water economy, it would be a tangible
stimulating factor for the water users.
Principle 3. Cost- effectiveness and Self-financing of Water management sector
Self-financing of the water sector allows to establish the ground for its continuous development. The current deplorable state of the sector is caused by its total dependence on the Federal budget and the residual principle of financing.
In accordance with the Constitution and Water Code of Russia, many water bodies in the Federation Constituents are the Federal property, though operational water resource management is carried out mainly by certain water management institutions of the Federation Constituents.
It is essential to entitle the Constituents to manage water bodies and use them in economic purposes whereas the Federal bodies should retain Federal control functions.
Settling the property issues should be the first essential step for improving water management relations.
The second key step is to improve the system of charges.
When the free-market model is introduced into water management sector, it is crucial to replace the current system by a more logical one, based on actual costs, tariffs and prices.
As the objectives, activities for meeting these objectives, responsibilities of the parties involved and the cost-return mechanism are defined, conditions for investments in water use/management sector will be more attractive. Investments for taking the water sector out of the crisis are critical as rehabilitation of the water use sector is very costly and time consuming, whereas resolving the problems needs urgent actions.
Besides, improving the water
management situation is impossible without a drastic reform of
the municipal water supply system, which is one of the principle
water users.
Principle 4. Phasing-in and
Comprehensive Analysis of the Reforms Implementation
It is obvious that all suggested reforms should be phased in and a multifarious social and economic analysis should be carried out for each stage.
Principle 5. Public Awareness.
Governmental structures should increase public awareness by explaining the harmful effects of the current situation and pronounce their efficacy to find the optimal (cost-effective, practicable, etc.) way out of the crisis. The population has to take part in preparation and development of the reforms.
Mechanisms of Implementing the Sustainable Water Use Policy
Organisational
Structure of Managing Institutions for Water Resources Use and Protection
Institutional structure of the management system should be based on the unity of the principles of basin approach and territorial administration, division of controlling and managing functions and self-financing. It comprises three levels: Federal, basin and territorial, reinforcing the territorial-basin principle.
Basin Agreements and Corresponding Structures
Relations between the Federation Constituents concerning use and protection of common water resources should be grounded upon a Basin Agreement.
Essential factors for the Agreement viability are understanding the common character of key interests (human health, maintenance of the water resources potential) and economic incentive. They are the stimulus for uniting efforts and coordinating activities.
The role of the basin structures is to develop proposals concerning economic and regulatory incentives, stimulating basin cooperation between the Federation Constituents. If the Constituents are willing to cooperate, the Basin Agreement will be more viable. The consultation process is the most important while developing a Basin Agreement.
The Basin Agreement itself should contain the goals and main objectives of the basin cooperation, principles of meeting the objectives, institutional structure and general economic implementation scheme (Action Plans).
In accordance with article #120 of the Water Code it is suggested to create two bodies for implementing the basin agreement: the Basin Council and Basin Fund.
The Basin council comprises representatives of the Federation Constituents, authorised to make decisions on behalf of the latter, and heads of the structures in charge of water resource management on the territories of the Federation Constituents. The Council should meet on a regular basis, once or twice a year or more if such a need arises. It determines the structure and appoints the head of the Basin Fund (executive body), approves work plans, budget and reports, coordinates efforts, makes principle decisions, and monitors the implementation process.
The Basin Fund is an executive board of the Basin Agreement.
Signing of the Basin Agreement and establishment of the mentioned managing structures do not require any changes in the current legislation of the Russian Federation. However, the approach and implementation mechanisms can require legal and regulatory support on the Constituents (regional, oblast) level. The Agreement is merely a manifestation of a goodwill of the parties concerned. Coercion will bear no effect. The role of the Federal bodies, Ministry of Natural Resources in particular, is to develop a regulatory system of the water use, system of charges and fines which would stimulate the Constituents to use water efficiently and if necessary, to integrate efforts.
Financial and Economic Issues
The structure of water use charges and allocation of funding between budgets of different levels are described in detail in the Water Code.
Legal and Regulatory Mechanisms
Legal and regulatory mechanism should become a legislative foundation allowing managing structures at all levels to implement their functions.
Water legislation comprises documents regulating issues which are within the competence of managing structures on various hierarchical levels: Federal, Constituent, local government, as well as departmental regulatory documents.
The key principles of natural resource use are reflected in the Constitution of the Russian Federation. The whole system of laws and legislative documents concerning water use (Water Code of the RF, Federal water Cadastre, Enterprises and Organisations Responsibilities for using water bodies and water protection zones, on taxation, on water charges system, etc.) should be put in accordance with the Constitution.
The legislation still does not reflect the main principle declared in the new Water Code - the priority of social and environmental issues. This legislative gap also concerns regulatory documents, issued by central managing structures where the priority is usually the economic aspect.
International Cooperation
It is essential to introduce international cooperation on a regular and mutually beneficiary basis. It should be developed in four main directions:
PROGRAMME ACTIVITIES
Formation of Social - Environmental-Economic Systems of River Basins
Considering Russian Federal structure, management of social-environmental-economic system of a basin should be grounded upon the combination of the basin ecosystem and territorial-administrative principles.
The essence of the declared basin principle is the understanding the interrelation of management activities and river basin water resources unity.
The ecosystem approach presupposes:
Supplying the Population with Potable Water
Escalation of water-related diseases of the population is the main cause of early deaths and working disabilities of the population, which brings about considerable material and financial losses for the state.
Consequently, supplying the population with potable water meeting the Federal standards in accordance with sanitary norms becomes the priority of the Federal water management policy.
Watersheds Rehabilitation
Rehabilitation of watershed territories should be based on implementation of all measures and activities, taking into account the geographic zone and peculiarities of the united social and environmental basin system.
Rehabilitation of River Networks
Rehabilitation of river networks presupposes rehabilitation of the flow regime resembling the natural, including periodical flooding of wetlands, rehabilitation of watershed and basin ecosystems with account of possible environmental development of these regions.
Reconstruction of Basin Water Management Complexes
Reconstruction of the basin water management complexes should be based upon the following principles:
Water management complexes reconstruction:
PRIORITY DIRECTIONS OF SUSTAINABLE WATER USE POLICY
Supplying Russian population and industry with sufficient water of adequate quality.
Rehabilitation and protection of water bodies, augmentation of water resources.
Forestalling and liquidating harmful effect of high-water, flooding, water erosion.
Rehabilitation and maintenance of stable environmental condition of water bodies’ basins.
Protection and efficient use of water resources, protection and rehabilitation of small rivers.
Improving working regime management of reservoirs and water management systems to assure water supply of enterprises and population and minimising damages from floods and droughts.
Carrying out the Federal control of hydro-constructions, whose technical condition endanger people’s life, operation of enterprises, etc.
Reducing water consumption by enterprises, water losses, improving drinking water quality.
Improving water resources management by implementing new management forms, conducting water protection measures on water bodies.
Carrying out regional water management policy that should touch upon quantitative and qualitative condition of water resources as well as peculiarities of water resources use by principle water users of the region.
Replacing the majority of operating hydrotechnical constructions, protecting territories from harmful effect of the water.
Establishing economic water use mechanism that would comply free market economy and provide an incentive for efficient water use and sufficient financing of water management activities.
Federal development policy of water resources complex will be conducted through implementation of the Federal programmes: "Volga Rehabilitation", "Supplying the Population of RF with potable water", "Anti-flood activities", "The Azov Sea", "The Ob river", "Lake Baikal Protection", "The Caspian Sea", etc.
SCIENTIFIC SUPPORT OF SUSTAINABLE WATER USE POLICY
Successful functioning of water management sector depends heavily on combination of management activities with scientific research and achievements.
Scientific support of the water resource management primarily presupposes adoption of water management policy on the basis of water legislation of the Russian Federation and developing the mechanism of sustainable water use policy implementation. Besides, finding engineering and technical means to resolve specific water industrial tasks, tasks of the efficient water use.
INFORMATION SUPPORT OF SUSTAINABLE WATER USE POLICY
Any decisions taken on water resources should be based on reliable and operational data and information. That means integrity of the data providing and decision support systems to be implemented and used in the water resource management.
Information Support
Developing action programmes can be reinforced by information from existing:
For implementing the policy it is suggested to establish one information center on the basis of Ministry of Natural resources.
Monitoring
To implement the policy a systematic information is essential.
Monitoring should be grounded on the principles of organisation, structure and functioning of the Federal Environmental Monitoring system: continuous monitoring and forecasting the state of the water fund for timely detection and evaluation of changes, forestalling or eliminating negative effects.
An integrated, monitoring program should be developed based on the features of a water body and peculiarities of the management decisions to be taken.
Public Awareness
One of the conditions of successful management of the social-environmental-economic system of the basin is timely informing the general public and environmentalists including NGOs on the condition of water resources, their quality and extent of the anthropogenic influence.
CONCLUSION
The major defect of the former water management is a lack of comprehensive Federal policy, aimed at specific results. As a result a number of uncoordinated and costly infrastructures were established. But the ultimate goal - sustainable high quality water supply and rehabilitation of natural water sources has not become closer - moreover, it has become even more remote.
The paradox is, that water management constructions, aimed at improving the water management situation, has caused a considerable damage to water bodies, and consequently, to water supply.
Finally, the former USSR Federal system of water management, impaired, but functioning has collapsed during the last 6-8 years, and a new one has not been yet established. There is a unique opportunity to create a new system of water management, based on up-to-date views and principles, with regard of the latest scientific and technical achievements, and to use it for taking the water management system out of the crisis.
Federal water management policy should be based on the knowledge that water sector is both resources providing and nature protecting sector. Water is a natural object of the nature and industry, in other words, water is the essence of life. The strategy of water management should be supported by a mechanism, stimulating environmentally safe use.
As it is impossible to resolve all water management problems immediately, Federal policy should single out strategic goals (the ultimate goals of water management policy) and intermediate goals.
Strategic goals are generated by major water interests of the society and their meeting will help to resolve water management issues, eliminate contradictions in terms of water resources, and to eschew water constraints in solving social and economic tasks.
The common goal of a basin water management system is to assure sustainable water use, attain continuously safe water resources condition, maintain and develop a healthy water ecosystem, ascertaining continuous and safe life of the human beings.
The management system and structure should be reconstructed in line with the policy, goals and tasks. Water management objectives should be strictly divided into managing and those of economic supplying.