DRINKING WATER SUPPLY AND AGRICULTURAL POLLUTION

Transcription

1 DRINKING WATER SUPPLY AND AGRICULTURAL POLLUTION

2 ENVIRONMENT & POLICY VOLUME 11 The titles published in this series are listed at the end of this volume.

3 Drinking Water Supply and Agricultural Pollution Preventive Action by the Water Supply Sector in the European Union and the United States Edited by Geerten J.I. Schrama University oftwente, The Netherlands This research project has been funded, under contract number EV5V-CT , by: EUROPEAN COMMISSION DIRECTORATE-GENERAL XII SCIENCE, RESEARCH AND DEVELOPMENT Directorate D - RTD Actions: Environment Research into economic and social aspects of the environment... " SPRINGER SCIENCE+BUSINESS MEDIA, B.V.

4 A C.I.P. Catalogue record for this book is available from the Library of Congress. ISBN ISBN (ebook) DOI / Printed on acid-free paper All Rights Reserved 1998 Springer Science+Business Media Dordrecht Originally published by Kluwer Academic Publishers in 1998 Softcover reprint of the hardcover 1 st edition 1998 No part of the material protected by this copyright notice may be reproduced or utilized in any form or by any means, electronic or mechanical, including photocopying, recording or by any information storage and retrieval system, without written permission from the copyright owner

5 TABLE OF CONTENTS PART ONE Chapter 1. Introduction 3 Geerten J./. Schrama 1.1 Water management Scarcity and pollution of drinking water resources Agricultural water pollution Steering problem Content of the research project Research questions Research design Results of the project Policy relevance Theoretical framework Organization of the research project Layout of the book 16 References 17 Chapter 2. Theoretical Framework 19 Geerten J.l. Schrama 2.1 Introduction Policy networks Delineation of the concept Policy communities versus issue networks Policy network characteristics Policy networks and policy issues Policy styles Policy instruments Policy instruments and organizational resources Policy network characteristics and policy instruments choice Application to the present policy issue Control capacity of the water supply sector Mission and orientation Organizational resources Steering strategies Summary 38 References 40 PART TWO 43 Chapter 3. Policy Framework - European Union 45 Ellis L.M. Brand, Kenneth I. Han/, and los Lipman 3.1 Introduction Regulatory framework 46

6 vi Water quality policy of the EU Water quality legislation EU agricultural policy (CAP) Pending policy developments Conclusions 3.3 Policy network General institutional context of the EU Water supply sector Agricultural sector Others Network dynamics: linkages and dependencies 3.4 Conclusions References Chapter 4. Control Capacity - European Union Ellis L.M. Brand, Kenneth I. Hanf, and los Lipman 4.1 Introduction 4.2 Actual control capacity 4.3 Prospects of increasing the control capacity Authority and legitimacy Organizational capacity Legitimacy (political support) Financial capacity Information Confidence and trust 4.4 Conclusions References Interviews Chapter 5. Policy Framework - Germany Ralph Piotrowski and R. Andreas Kraemer 5.1 Introduction Environmental awareness German political framework Differences in water and agricultural policy 5.2 Agricultural pollution of drinking water resources Nutrients Pesticides 5.3 Regulatory framework Water protection zones Influencing farming practices in water protection zones Abstraction charges and advice to farmers 5.4 Policy network Water policy networks relating to agriculture Agriculture policy networks relating to water management Interfaces and overlaps

7 vii 5.5 Conclusions 120 References 121 Chapter 6. Control Capacity - Germany 123 R. Andreas Kraemer and Ralph Piotrowski 6.1 Introduction Actual control capacity and its application Legal instruments Beyond legal regulation: co-operation Influencing values: co-ordination A No instrument: fleeing from pollution Prospects for increasing control capacity Water protection zones Organic farming: high potential but not popular Effects of compensation payments on agricultural practices A Support from authorities 143 6A Conclusions 144 References 146 Chapter 7. Policy Framework - The Netherlands 149 Stefan M.M. Kuks 7.1 Introduction Water supply in the Netherlands Dutch case study Regulating nitrates as a source of groundwater pollution Nitrates and the ED drinking water standards Regulatory framework for nitrates at the national level Manure policy (first and second phase): the soil protection act and the fertilizers act A Manure policy (third phase) and the ED groundwater directive Regulating pesticides as a source of groundwater pollution Pesticides and the ED drinking water standards Regulatory framework for pesticides at the national level Pesticides use and the 'long term crop protection plan' A Registration of pesticides and the 'pesticides approval commission' A A policy network point of view: the dynamics of agricultural issues in the water supply sector A.l Water supply sector growing into a policy community A.2 Water supply sector encountering the agricultural sector in an issue network A.3 Consultations between water supply companies and farmer organizations 175

8 viii 7.5 Another policy network point of view: the dynamics of environmental issues in the agricultural sector Traditional agricultural network Changes in the traditional network and consequences for the choice of instruments 179 References 186 List of abbreviations 190 Chapter 8. Control Capacity - The Netherlands 191 Stefan M.M. Kuks 8.1 Introduction Preventive strategies on the provincial level Period Period Comparison of the five selected provinces Water supply companies Agricultural pollution of water sources Policy approaches towards agricultural pollution of water sources Motives of water suppliers Motives of the water supply companies Motives of the provincial authorities Moti ves of the farmers 211' Motives of the farmer's organizations Resources of water suppliers Organizational capacity Financial capacity Information Confidence Authority Time Conclusions on the control capacity of water suppliers Influence of the problem context Influence of the regulatory context Influence of the network context Motives of water suppliers Resources needed by water suppliers Susceptibility to resources on the farmer's side 228 References 230 Chapter 9. Policy Framework - England and Wales 231 Jeremy J. Richardson 9.1 Policy Problem Behavior changing actions Problem indicators Regulatory framework 241

9 ix Regulation of the water industry Regulation of pesticides Regulation of agriculture Other policy actors 248 References 250 Chapter 10. Control Capacity - England and Wales 253 Jeremy J. Richardson 10.1 'Regulation' in practice: consensus building, joint problem solving and self-regulation? Regulation of nitrates: shifting from a consensual to an impositional regulatory style? 'Evangelising' as a policy instrument: mobilising the affected interests Private 'regulation' Policy options: policy succession and consensus building or radical policy change? Licensing pesticides: increased attention to water issues via incremental policy change More ofthe same: improving liaison and co-ordination between policy actors Radical policy options Relevance of Europe 273 References 276 PART THREE 279 Chapter 11. Comparative Analysis 281 Geerten J.I. Schrama 1l.l Introduction Policy issues, policy networks, and policy styles Agricultural sector Policy issues and policy styles Water policy networks Agricultural pollution of drinking water resources Conclusions Policy instruments Policy instruments aimed directly at farmers Water supply sector involved in implementation Policy instruments aimed at the water supply sector Conclusions Actual control capacity of the water supply sector Mission and orientation Organizational resources 296

10 x Steering strategies Conclusions 302 References 304 INTERMEZZO 305 Chapter 12. Policy Framework - United States 307 Laurence J. OToole, Jr Introduction Problem of agricultural pollution of drinking water resources Regulatory framework National regulation Subnational regulation Policy network: national overview Illustrative cases New York California Iowa Wisconsin Conclusions 337 References 338 Chapter 13. Control Capacity - United States 341 Laurence 1. OToole, Jr Introduction Actual control capacity and its application Natural resources Organizational capacity Financial resources Informational resources Confidence Authority Time Prospects for increasing control capacity Regulating as 'sine qua non' Developing a national groundwater policy Dealing with self-imposed constraints Removing policy instruments that discourage problem-solving behavior Enhancing sectoral organization and supporting agricultural allies indirectly Enhancing financial resources in the water supply sector Improving information resources Building confidence 361

11 xi Enhancing authority Playing fortime 13.4 Conclusions References PART THREE - CONTINUED Chapter 14. To Reinforce Control Capacity? Geerten J.I. Schrama 14.1 Introduction 14.2 Economic incentives 14.3 Legal regulation 14.4 Communicative steering 14.5 Contacts between the water supply sector and the agricultural sector References