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Songhua River Basin Water Quality and Pollution Control Management – Institutional and Regulatory Mechanism

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Songhua River Basin Water Quality and Pollution Control Management – Institutional and Regulatory Mechanism Technical Assistance Consultant’s Report Project Number: 33177 September 2005 People’s Republic of China: Songhua River Basin Water Quality and Pollution Control Management – Institutional and Regulatory Mechanism Prepared by SOGREAH Consultants / WL Delft Hydraulics For Songliao River Basin Water Resources Protection Bureau This consultant’s report does not necessarily reflect the views of ADB or the Government concerned, and ADB and the Government cannot be held liable for its contents. PEOPLE REPUBLIC OF CHINA ASIAN DEVELOPMENT BANK SONGLIAO RIVER BASIN WATER RESOURCES PROTECTION BUREAU SONGHUA RIVER BASIN WATER QUALITY AND POLLUTION CONTROL MANAGEMENT TA N° 4061-PRC FINAL REPORT INSTITUTIONAL & REGULATORY MECHANISM SEPTEMBER 2005 2 340107.R4.V3 & PEOPLE’S REPUBLIC OF CHINA ASIAN DEVELOPMENT BANK SONGLIAO RIVER BASIN WATER RESOURCES PROTECTION BUREAU SONGHUA RIVER BASIN WATER QUALITY & POLLUTION CONTROL MANAGEMENT TA 4061 PRC FINAL REPORT: VOLUME 3: IDENTIFICATION N° : 2340107.R4.V3 ATE EPTEMBER D : S 2005 This document has been produced by the Consortium SOGREAH Consultants/Delft Hydraulics as part of the ADB Project Preparation TA (Job Number: 2340107). This document has been prepared by the project team under the supervision of the Project Director following Quality Assurance Procedures of SOGREAH in compliance with ISO9001. APPROVED BY Index DATE AUTHOR CHECKED BY PURPOSE OF MODIFICATION (PROJECT MANAGER) A First Issue 29/09/05 PK, LSB, GCG GDM GDM Index CONTACT ADDRESS DISTRIBUTION LIST 1 SLRBWRPB (Mr LI Zhiquan, Ms Bai Yan) [email protected] ; [email protected]; [email protected] The Asian Development Bank (Robert 3 [email protected], [email protected] Wihtol, Sergei Popov) [email protected], 4 SOGREAH (Head Office) 5 DELFT (Head Office) [email protected] PEOPLE’S REPUBLIC OF CHINA – THE ASIAN DEVELOPMENT BANK SONGHUA RIVER BASIN WATER QUALITY & POLLUTION CONTROL MANAGEMENT – TA 4061-PRC FINAL REPORT-VOLUME 3: INSTITUTIONAL & REGULATORY ANALYSIS CONTENTS CONTENTS........................................................................................................... I LIST OF TABLES..................................................................................................III LIST OF FIGURES.................................................................................................III LIST OF APPENDICES...........................................................................................III ABBREVIATIONS & ACRONYMS............................................................................ IV 1. INTRODUCTION...........................................................................................1 1.1. THE SONGHUA RIVER BASIN...................................................................... 1 1.2. IMPLEMENTATION ARRANGEMENTS......................................................... 3 1.3. PURPOSE & SCOPE OF THIS REPORT....................................................... 4 1.4. LAYOUT OF THE REPORT............................................................................ 4 2. INSTITUTIONS RELATED TO WATER QUALITY & WATER POLLUTION CONTROL5 2.1. INSTITUTIONAL FRAMEWORK AT THE NATIONAL LEVEL ...................... 5 2.2. INSTITUTIONAL FRAMEWORK AT THE LOCAL (PROVINCIAL/REGIONAL) LEVEL............................................................................................................. 9 2.2.1. OVERVIEW...................................................................................................................9 2.2.2. ENVIRONMENTAL PROTECTION INSTITUTIONS..................................................10 2.2.3. WATER RESOURCES DEPARTMENTS ..................................................................12 2.2.4. OTHER DEPARTMENTS...........................................................................................12 2.3. INSTITUTIONAL FRAMEWORK AT THE RIVER BASIN LEVEL................ 13 2.3.1. INTRODUCTION ........................................................................................................13 2.3.2. HISTORY....................................................................................................................14 2.3.3. BACKGROUND OF BASIN INSTITUTIONS .............................................................15 2.3.4. THE SONGLIAO WATER RESOURCES PROTECTION BUREAU .........................18 2.3.5. ASSESSMENT OF CURRENT INSTITUTIONAL STATUS.......................................20 2.3.6. COMPARISON OF DIFFERENT RIVER BASIN ORGANIZATIONS IN CHINA .......22 3. LEGAL & REGULATORY FRAMEWORK........................................................25 3.1. PRC WATER QUALITY AND POLLUTION CONTROL LAWS FRAMEWORK .............................................................................................. 25 3.1.1. LAWS AND REGULATIONS .....................................................................................25 3.1.2. ENVIRONMENTAL CONTROL STANDARD ............................................................30 3.1.3. INTERNATIONAL TREATIES (MULTILATERAL AGREEMENTS)..........................32 3.2. PERMIT SYSTEM......................................................................................... 36 3.2.1. OVERVIEW.................................................................................................................36 3.2.2. WATER PERMITS......................................................................................................37 3.2.3. SEWAGE PERMIT .....................................................................................................37 3.2.4. TREATED WASTEWATER DISCHARGE PERMIT ..................................................38 3.2.5. ADMINISTRATIVE PERMISSION LAW AND ITS INFLUENCE ...............................38 3.2.6. PERMIT MANAGEMENT IMPROVEMENTS.............................................................39 3.3. FUNCTIONS AND ISSUES WITHIN LEGAL FRAMEWORK....................... 39 SOGREAH / DELFT –SEPTEMBER 2005 PAGE I PEOPLE’S REPUBLIC OF CHINA – THE ASIAN DEVELOPMENT BANK SONGHUA RIVER BASIN WATER QUALITY & POLLUTION CONTROL MANAGEMENT – TA 4061-PRC FINAL REPORT-VOLUME 3: INSTITUTIONAL & REGULATORY ANALYSIS 3.4. LOCAL LAWS AND REGULATIONS IN SONGLIAO BASIN ...................... 40 3.4.1. LOCAL LAWS AND LEGISLATIONS IN SONGLIAO BASIN ..................................40 3.4.2. INTERNATIONAL TREATIES RELATED TO WATER RESOURCES MANAGEMENT OF SONGHUA RIVER BASIN........................................................42 3.4.3. BASIC REGULATORY SYSTEMS STIPULATED IN THE SONGLIAO BASIN .......43 4. INSTITUTIONAL & REGULATORY ANALYSIS OF WASTEWATER SERVICE PROVISION...............................................................................................46 4.1. INSTITUTIONAL ORGANISATION OF THE WASTEWATER SECTOR IN THE SRB....................................................................................................... 46 4.1.1. TYPICAL ORGANISATION OF A CHINESE MUNICIPALITY ..................................46 4.1.2. THE “FOUR SEPARATIONS”...................................................................................48 4.1.3. REGULATORY ISSUES ............................................................................................50 4.2. CURRENT SERVICE LEVELS ..................................................................... 51 4.2.1. TARGETS FOR THE 10TH FIVE YEAR PLANNING PERIOD...................................51 4.2.2. ACHIEVEMENT OF TARGETS .................................................................................52 4.2.3. INOPERATIVE WWTP ...............................................................................................53 4.3. FINANCING OF URBAN WASTEWATER SERVICES................................. 54 4.3.1. INVESTMENT IN WASTEWATER SERVICES..........................................................54 4.3.2. COST RECOVERY & TARIFF LEVELS ....................................................................54 4.3.3. CURRENT LEVELS OF PRIVATE SECTOR PARTICIPATION & DFI .....................55 4.4. URBAN WASTEWATER SECTOR REFORM .............................................. 56 5. MAIN FINDINGS & RECOMMENDATIONS......................................................58 5.1. MAIN FINDINGS........................................................................................... 58 5.1.1. LAWS AND REGULATIONS .....................................................................................58 5.1.2. ADMINISTRATIVE SYSTEM .....................................................................................58 THE SONGLIAO WATER PROTECTION COMMISSION WAS INITIALLY SET UP AT RIVER BASIN LEVEL UNDER THE SUPERVISION OF THE MINISTRY OF WATER RESOURCES TOWARDS LAW AND REGULATION ENFORCEMENT....60 5.1.3. MONITORING & CONTROL......................................................................................60 5.1.4. CAPACITY BUILDING...............................................................................................60 5.1.5. EXPENDITURES AND POLLUTION ABATEMENT INVESTMENTS.......................61 5.2. GENERAL FRAMEWORK FOR THE INSTITUTIONAL REFORM............... 61 5.2.1. WATER MANAGEMENT AND POLLUTION CONTROL NEED INTEGRATED RIVER BASIN MANAGEMENT .................................................................................61 5.2.2. FOCUSING KEY POINTS AND PHASED INSTITUTIONAL REFORM ....................62 5.2.3. REFORMING APPROACH AND STAGE OBECTIVES ............................................63 5.2.4. WASTEWATER SERVICE PROVISION....................................................................64 5.3. DETAILED RECOMMENDATIONS
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