ISSN 0352-3551 Acta hydrotechnica 17/24 (1999) CONTENTS - VSEBINA TOMAŽ UMEK CELOSTNO GOSPODARJENJE Z VODAMI NA OBALNEM OBMOČ JU COMPREHENSIVE WATER MANAGEMENT IN THE COASTAL REGION Published by the Hydraulics Division FGG Editor-in-Chief : Matjaž Mikoš Izdaja Hidrotehnič na smer FGG Glavni urednik : Matjaž Mikoš UNIVERSITY OF LJUBLJANA FACULTY OF CIVIL AND GEODETIC ENGINEERING UNIVERZA V LJUBLJANI FAKULTETA ZA GRADBENIŠTVO IN GEODEZIJO Acta hydrotechnica Letnik 17, št. 24, 59 str., Ljubljana, junij 1999 ISSN 0352-3551 UDK (05) 532;556;626/628.6 Indeksirana v: COBISS, ICONDA http://ksh.fgg.uni-lj.si/KSH/acta/index.htm Izdaja Hidrotehnič na smer na Fakulteti za gradbeništvo in geodezijo Univerze v Ljubljani ob sofinanciranju Ministrstva za znanost in tehnologijo Republike Slovenije. Objavljeni prispevki izražajo mnenje avtorjev, ne pa vedno tudi mnenja izdajatelja. Urednika : izr.prof.dr. Matjaž Mikoš - glavni in odgovorni urednik Gregor Petkovšek - tehnič ni urednik Izdajateljski odbor : prof.dr. Mitja Brilly - Katedra za splošno hidrotehniko prof.dr. Rudi Rajar - Katedra za mehaniko tekoč in z laboratorijem doc.dr. Jože Panjan - Inštitut za zdravstveno hidrotehniko Lektoriranje slovenskega teksta: STAMAT, Ljubljana - Lidija Jesenovec Lektoriranje angleškega teksta: prof. Diane O'Connor Tisk : Univerzitetna tiskarna v Ljubljani Naklada : 250 izvodov Mnenje Ministrstva za znanost in tehnologijo R Slovenije (št. 415-54/91 z dne 2.12.1992) je, da sodi Acta hydrotechnica med proizvode, za katere se plač uje 8-odstotni davek na dodano vrednost. Copyright © 1999 Acta hydrotechnica, Univerza v Ljubljani, Fakulteta za gradbeništvo in geodezijo, Hidrotehnič na smer, Hajdrihova 28, 1 000 Ljubljana Acta hydrotechnica Vol. 17, No. 24, 59 p., Ljubljana, June 1999 ISSN 0352-3551 UDC (05) 532;556;626/628.6 Indexed in: COBISS, ICONDA http://ksh.fgg.uni-lj.si/KSH_ANG/acta/index.htm Published by the Hydraulics Division at the Faculty of Civil and Geodetic Engineering, University of Ljubljana, with financial support of the Ministry of Science and Technology of the Republic of Slovenia. Published material expresses the authors’ opinion and not necesserily that of the publisher. Editors : Assist. Prof. Matjaž Mikoš, Dr.sc.techn. - Eitor-in-Chief & in-Charge Gregor Petkovšek - Technical Editor Publishing Board : Prof. Mitja Brilly, Ph.D. - Chair of Hydrology and Hydraulic Engineering Prof. Rudi Rajar, Ph.D. - Chair of Fluid Mechanics with a Lab Assist. Prof. Jože Panjan, Ph.D. - Institute of Sanitary Engineering Proof reading of Slovenian text: STAMAT, Ljubljana - Lidija Jesenovec Proof reading of English text: Prof. Diane O'Connor Printed by : University Press, Ljubljana Number of copies : 250 Opinion of the Ministry of Science and Technology of the Republic of Slovenia (letter No. 415-54/91 from December 2, 1992) is that Acta hydrotechnica is one of the products for which 8 % VAT must be paid. Copyright © 1999 Acta hydrotechnica, University of Ljubljana, Faculty of Civil and Geodetic Engineering, Hajdrihova 28, SI - 1000 Ljubljana Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 1 Acta hydrotechnica 17/24 (1999) V S E B I N A - C O N T E N T S VSEBINA - CONTENTS......................................................................................................... 1 UVODNIK - EDITORIAL ...................................................................................................... 2 Tomaž UMEK Celostno gospodarjenje z vodami na obalnem območ ju Comprehensive Water Management in the Coastal Region.................................... 5 Publikacije Acta hydrotechnica - Back Volumes of Acta hydrotechnica.......................... 55 Navodila za pripravo prispevkov za Acto hydrotechnico................................................... 58 Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 2 UVODNIK V tokratni številki Acta hydrotechnica je objavljen razširjeni povzetek magistrskega dela mag. Tomaža Umeka, mladega raziskovalca na Katedri za mehaniko tekoč in z laboratorijem Fakultete za gradbeništvo in geodezijo Univerze v Ljubljani, zaposlenega v Uradu za gospodarske javne službe obč ine Izola. M a g . T o m a ž U m e k j e k o n č al gimnazijo v Ljubljani. Študij je nadaljeval na Fakulteti za gradbeništvo in geodezijo, Oddelku za gradbeništvo, kjer je leta 1 994 diplomiral na hidrotehnič ni smeri. Po opravljeni diplomi se je zaposlil v podjetju Hidro Koper, kjer je opravljal strokovne naloge v javni vodnogospodarski službi. Istega leta se je vpisal na podiplomski študij gradbeništva - hidrotehnič na smer. Novembra 1 998 je konč al študij z magistrsko nalogo s področ ja gospodarjenja z vodami. Kot mladi raziskovalec je bil med študijem vključ en v raziskovalno delo Katedre za mehaniko tekoč in z laboratorijem. V okviru podiplomskega študija je sodeloval pri strokovnih nalogah s področ ja gospodarjenja z vodami. V okviru programa Tempus je bil na krajšem strokovnem usposabljanju pri prof. Bendoricchiu v Padovi. Magistrsko delo mag. Tomaža Umeka je nastajalo kot povzetek študija, naravnanega v spoznavanje sistema gospodarjenja z vodami. Republika Slovenija, kot ena od držav, ki se pripravljajo na vstop v EZ, bo morala v procesu usklajevanja zakonodaje v celoti prevzeti veljavni pravni red EZ, gospodarjenje z vodami pa urediti tako, da bo lahko izpolnjevala obveznosti, ki jih prinaša tudi skupna politika do voda. Zato je bil temeljni namen naloge pripraviti osnutek Vertikalnega poroč ila za RS, struktura naloge pa v celoti sledi strukturi poroč ila v projektu EUROWATER. Projekt podpira tudi Evropska komisija, ukvarja pa se z institucionalnimi mehanizmi in strukturami gospodarjenja z vodami v evropskih državah in primerja njihovo uč inkovitost glede na zakonodajo Evropske zveze. Omenjena magistrska naloga podaja pregled trenutnega položaja na področ ju gospodarjenja z vodami na obalnem območ ju in v celotni Sloveniji. V prvem delu naloge je obravnavana problematika gospodarjenja z vodami na obalnem območ ju. Avtor ugotavlja, da je za postavitev ustreznega sistema celostnega gospodarjenja z vodami na obalnem območ ju nujna zakonodajna ureditev, ki bo uveljavila organiziranost in financiranje sistema gospodarjenja z vodami v celotni Republiki Sloveniji. Ugotovljena je predvsem velika kriza zaradi neurejenosti razmer na področ ju gospodarjenja z vodami, ki se odraža v neurejenih vprašanjih pri programiranju, nač rtovanju, financiranju, organiziranosti, izvajanju in nadzorovanju vodnogospodarske dejavnosti. Posledica takšnih razmer je tudi odliv usposobljenih strokovnjakov v druge dejavnosti. Vsaka nova zakonska ali podzakonska ureditev bo povzroč ila dinamič no spreminjanje vsebine izdelanega poroč ila, to pa pomeni, da je izdelana naloga podlaga za nadaljnje neprekinjeno delo pri spremljanju stanja na področ ju gospodarjenja z vodami. Zavedati se moramo, da izdelava Vertikalnega poroč ila ni enkratno dejanje. Vertikalno poroč ilo podaja trenutni položaj in ključ ne elemente gospodarjenja z vodami, ki pa se z usklajevanjem in spremembami zakonodaje lahko spremenijo. Sprotno dopolnjevanje (predvsem glede na izboljšanje kakovosti poroč ila) mora postati obvezna naloga ministrstva, pristojnega za področ je voda. Ljubljana, junij 1999 Glavni urednik Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 3 EDITORIAL This issue of Acta hydrotechnica is publishing an extended summary of a Master's Thesis by Tomaž Umek, a junior researcher in the laboratory of Chair of Fluid Mechanics, Faculty of Civil and Geodetic Engineering (University of Ljubljana), who is now employed in the Office for Public Company Services, Municipality of Izola. M.Sc. Tomaž Umek completed high school in Ljubljana. After that he studied at the Faculty of Civil and Geodetic Engineering, Department of Civil Engineering, where he graduated in 1994 from the Hydraulic Division. After his studies he was employed at the water management company Hidro Koper, as a hydraulic engineer in the public water management service. In the same year he enrolled in the Master's Program of the Hydraulic Division. In November, 1998 he completed his study with a Master's Thesis in the field of Water Management. As a junior researcher he was included in the faculty's research team. He participated in expert and professional projects in the field of water management. Within the framework of the Tempus Program, he took short postgraduate courses in Padua (Italy). This Master's Thesis by Tomaž Umek developed as a complete summary of his studies, which he choose to focus into an understanding of water management. In the process of legislation harmonization, the Republic of Slovenia, as one of the EU Candidate States, will have to adopt the entire Acquis Communitair and organize water management in such a way that it can fulfill the obligations resulting from the common water policy. The basic purpose of this thesis was, therefore, to prepare a draft of the Vertical Report for the Republic of Slovenia and the structure of the thesis fully follows the structure of the EUROWATER Project Report. The project is also supported by the European Commission and it deals with the institutional mechanisms and structures of water management in European countries, comparing their efficiency with regard to European Union legislation. The thesis offers a temporary overview of the current situation in the water management field in the whole country, with the first part dealing with the issues of water management in the coastal area. It has been noted that the establishment of an adequate integrated system of water management in the coastal area necessarily requires a legislative regulation that would establish an organisation, and the financing of the system of water management in the whole Republic of Slovenia. A great crisis was ascertained, springing from the disorderly conditions in the water management field and reflected in the unsolved issues in the programming, planning, financing, organisation, execution and supervision of water management activities. One of the consequences of such a situation is the loss of experts to other activities and fields. Each new legal and executive regulation will cause a dynamic change in the content of the created report, meaning that the report is the basis for further ongoing work in the development of conditions in the water management field. We must be aware that writing the Vertical Report is not a unique act. The Vertical Report presents the current situation and the key elements in water management which can change with the harmonization and adoption of legislation. A parallel and complementary work (especially concerning the quality of the report) has to become an obligatory task of the ministry responsible for waters. Ljubljana, June, 1999 Editor-in-Chief Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 4 Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 5 TOMAŽ UMEK mag., univ.dipl.inž.gradb. – M.Sc., Diploma in Civil Eng. Obč ina Izola, Urad za gospodarske javne službe – – Municipality of Izola, Office for Public Company Services Sonč no nabrežje 8, SI - 631 0 IZOLA CELOSTNO GOSPODARJENJE Z VODAMI NA OBALNEM OBMOČ JU razširjeni povzetek magistrskega dela Fakulteta za gradbeništvo in geodezijo Univerze v Ljubljani zagovor magistrskega dela je bil opravljen 12. novembra 1998 COMPREHENSIVE WATER MANAGEMENT IN THE COASTAL REGION extended summary of the Master Thesis Faculty of Civil and Geodetic Engineering, University of Ljubljana the defence of the Master Thesis was on 12 November, 1998 Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 6 IZVLEČ EK Naloga podaja pregled trenutnega stanja na področ ju gospodarjenja z vodami na obalnem območ ju in v celotni Republiki Sloveniji. Temeljni cilj naloge je bil priprava osnutka Vertikalnega poroč ila za RS. Poroč ilo ima enakovredno strukturo, kot je bila predpisana v projektu EZ (Evropske zveze) EUROWATER, ki se ukvarja z institucionalnimi mehanizmi in s strukturami gospodarjenja z vodami v evropskih državah ter primerja njihovo uč inkovitost glede na zakonodajo Evropske zveze. V nalogi je izdelana analiza tistih č lenov Zakona o vodah iz leta 1 981 , ki še veljajo. Pri tem je pomembna ugotovitev, da v prič akovanju nove vodne zakonodaje "pozabljamo", da tudi omenjeni č leni še veljavnega Zakona o vodah omogoč ajo vrsto ukrepov. Ker so za celostno gospodarjenje z vodami pomembni tudi drugi zakoni in podzakonski predpisi, je v nalogi prikazano, kako je sistem gospodarjenja z vodami povezan z drugimi sektorji. Tako bi v prihodnje lahko pristopili k nač rtovanju gospodarjenja z vodami sistematič no in celovito. Ključ ne besede: gospodarjenje z vodami, prostorsko planiranje, zakonodaja UDK 556.18:711(094) ABSTRACT The thesis gives an account of the current situation in water management in the coastal region and the whole of the Republic of Slovenia. Its basic goal was to prepare a draft for a Vertical Report for the Republic of Slovenia. The structure of the Report is in accord with that prescribed in the EU (European Union) EUROWATER project, which deals with institutional mechanisms and structures for water management in European countries and compares their efficiency and compliance with EU laws. The thesis also includes an analysis of the 1981 Water Act articles still in force. It should be stressed, though, that while the new Water Act is soon expected, we should remember that the articles of the 1981 Act still in force enable us to take various measures. Due to the importance of other laws and executive regulations to integrated water management, the thesis demonstrates how the water management system is linked to other sectors. This would enable water management planning to be approached in a systematic and integrated way in the future. Key words: Water Management, Land Use Planning, Legislation UDC 556.18:711(094) Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 7 VSEBINA 1. UVOD ............................................................................................................................................10 2. GOSPODARJENJE Z VODAMI V EZ.........................................................................................12 3. CELOSTNO GOSPODARJENJE Z VODAMI NA OBALNEM OBMOČ JU.............................23 3.1 UVOD.........................................................................................................................................23 3.2 PREGLED NAJPOMEMBNEJŠIH DEJAVNOSTI GOSPODARJENJA Z VODAMI NA OBALNEM OBMOČ JU.............................................................................................................24 3.3 SPLOŠNA OCENA CELOSTNEGA GOSPODARJENJA Z VODAMI NA OBALNEM OBMOČ JU..................................................................................................................................26 4. INSTITUCIONALNA UREDITEV VODNEGA GOSPODARSTVA V SLOVENIJI - VERTIKALNO POROČ ILO ......................................................................................................26 4.1 SPLOŠNA UREDITEV NAČ RTOVANJA IN GOSPODARJENJA Z VODAMI....................27 4.1 .1 Zakonodajna ureditev na področ ju voda..............................................................................28 4.1.2 Institucionalna ureditev (organiziranost) .............................................................................29 4.1 .3 Razvoj sistema institucij na področ ju gospodarjenja z vodami..........................................30 4.1 .4 Nač rtovanje v vodnem gospodarstvu ....................................................................................38 4.2 RAZPOLOŽLJIVOST IN (PO)RABA VODE ...........................................................................39 4.3 JAVNI IN ZASEBNI DEJAVNIKI IN NJIHOVA VLOGA NA RAZNIH RAVNEH NAČ RTOVANJA IN GOSPODARJENJA Z VODAMI ...........................................................40 4.4 GLAVNE NALOGE NAČ RTOVANJA IN GOSPODARJENJA Z VODAMI.........................42 4.4.1 Določ anje politike....................................................................................................................42 4.4.2 Vodnogospodarsko nač rtovanje.............................................................................................43 4.5 POMEMBNEJŠE SMERNICE PRI NAČ RTOVANJU IN GOSPODARJENJU Z VODAMI.44 4.6 SPLOŠNA OCENA INSTITUCIONALNEGA SISTEMA NAČ RTOVANJA IN GOSPODARJENJA Z VODAMI ...............................................................................................46 4.6.1 Najpomembnejše prednosti obstoječ ega sistema..................................................................47 4.6.2 Glavne pomanjkljivosti in glavni konflikti obstoječ ega sistema.........................................48 4.6.3 Skupna ocena ...........................................................................................................................51 5. ZAKLJUČ EK.................................................................................................................................51 VIRI....................................................................................................................................................54 Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 8 CONTENTS 1. INTRODUCTION..........................................................................................................................10 2. WATER MANAGEMENT IN THE EU........................................................................................12 3. INTEGRATED WATER MANAGEMENT IN THE COASTAL REGION................................23 3.1 INTRODUCTION.......................................................................................................................23 3.2 AN OVERVIEW OF THE MOST IMPORTANT ACTIVITIES IN THE AREA OF WATER MANAGEMENT IN THE COASTAL REGION .......................................................24 3.3 A GENERAL SURVEY OF INTEGRATED WATER MANAGEMENT IN THE COASTAL REGION..........................................................................................................26 4. INSTITUTIONAL FRAMEWORK FOR WATER MANAGEMENT IN SLOVENIA - A VERTICAL REPORT.............................................................................................................26 4.1 GENERAL FRAMEWORK FOR WATER PLANNING AND MANAGEMENT ..................27 4.1.1 Legislation in the field of water..............................................................................................28 4.1.2 Institutional framework (organisation).................................................................................29 4.1.3 Institutional development in the field of water management..............................................30 4.1.4 Water resources planning.......................................................................................................38 4.2 AVAILABILITY AND USES OF WATER...............................................................................39 4.3 PUBLIC AND PRIVATE ACTORS AND THEIR ROLES ON VARIOUS LEVELS OF WATER MANAGEMENT PLANNING ...................................................................................40 4.4 MAIN FUNCTIONS IN WATER PLANNING AND MANAGEMENT .................................42 4.4.2 Water management planning.................................................................................................43 4.5 RELEVANT TRENDS IN WATER PLANNING AND MANAGEMENT..............................44 4.6 A GENERAL ASSESSMENT OF THE INSTITUTIONAL SYSTEM OF WATER PLANNING AND MANAGEMENT.........................................................................................46 4.6.1 The most important advantages of the existing system .......................................................47 4.6.2 The main deficiencies and conflicts in the existing system ..................................................48 4.6.3 Joint estimation........................................................................................................................51 5. CONCLUSION ..............................................................................................................................51 REFERENCES...................................................................................................................................54 Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 9 SEZNAM SLIK Slika 1 Povezanost med Vertikalnimi in Horizontalnimi poroč ili Slika 2 Tematike, analizirane v Horizontalnih poroč ilih Slika 3 Posamezni sklopi, ki so analizirani v Horizontalnih poroč ilih Slika 4 Vpliv zunanjih dejavnikov v procesu doseganja cilja - trajnostnega razvoja Slika 5 Dejavniki v sistemu gospodarjenja z vodami na obalnem območ ju Slika 6 Porazdelitev funkcij pri gospodarjenju z vodami na državnem, regionalnem in lokalnem nivoju Slika 7 Porazdelitev funkcij v sistemu gospodarjenja z vodami med ministrstvi LIST OF FIGURES Figure 1 Structure and objectives of EUROWATER research project Figure 2 Topics analysed in Horizontal Reports Figure 3 Clusters of the topics of the Horizontal Reports Figure 4 Complexity of water policy and its contextual factors Figure 5 Factors in the water management system of the coastal region Figure 6 The distribution of functions in water management on a state, regional and local level Figure 7 The distribution of water management functions among the ministries Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 10 1. UVOD V zadnjih letih je vodno gospodarstvo v Sloveniji v veliki krizi, predvsem zato, ker so se v zadnjem desetletju drastič no zmanjšala sredstva, namenjena za opravljanje dejavnosti v širšem okviru gospodarjenja z vodami. V zadnjih letih so se v proračunu stalno zmanjševala sredstva za vzdrževanje in urejanje vodnega režima. V obdobju 1 986 - 1 995 je bilo za te namene na voljo v povpreč ju 0,51 odstotkov bruto družbenega proizvoda (BDP), s tem da so se razpoložljiva sredstva zmanjševala od 0,71 odstotkov na zač etku obdobja, na 0,42 odstotkov v letu 1990, pri č emer je bil del teh sredstev že takrat namensko usmerjen v podporo ukrepom, ki so bili kot prioritetni vključ eni v državnih planih. V letu 1 991 je delež sredstev, namenjenih vodnemu gospodarstvu padel na 0,18 odstotkov BDP, v letih 1992 in 1993 na 0,09 odstotkov BDP, v letu 1994 na 0,08 odstotkov, v letu 1995 pa celo na 0,07 odstotkov DP. Doseženo je bilo kar 6-kratno zmanjšanje potrebnih sredstev. Pred leti je bilo v Sloveniji namenjenih približno 50 odstotkov sredstev glede na primerljive deleže v Evropi, danes pa le še 8,5 odstotkov. Primerjava je narejena glede na delež v družbenem proizvodu, ne pa na realno vložena sredstva zaradi neprimerljive gospodarske rasti (Uprava RS za varstvo narave, 1996). Posledice tega zmanjšanja se kažejo že tudi v sami organiziranosti na področ ju gospodarjenja z vodami. Poleg navedenega je nujno potrebno opozoriti tudi na to, da je ob nazadovanju vodnogospodarske dejavnosti zelo hitro propadala tudi stroka in se do danes skoraj sesula. To že lahko in bomo v prihodnje še bolj obč utili, saj bo prav njena obnova dolgotrajen proces, ki pa ga ne bo mogoč e obč utneje skrajšati, ne glede na potrebe in sredstva, ki bi jih bili morda pripravljeni v ta namen zagotoviti. Zakon o javnih gospodarskih službah (Uradni list RS št. 32/93) ureja problematiko organiziranosti javnih služb le na ravni lokalne skupnosti, ne definira pa organiziranosti integralnega upravljanja na celotnem področ ju 1. INTRODUCTION In recent years water management in Slovenia has found itself in a huge financial crisis due to drastic cuts in funding over the last decade. Budgetary means for maintaining and managing the water management system have constantly been reduced. Between 1986- 1995 budgetary means averaged around 0.51% of the Gross Domestic Product (GDP), being at 0.71% in 1986 and then falling to 0.42% in 1990. In addition, a part of this funding had already been intended for financing priority measures included in Government plans. In 1991 the share fell to 0.18% of GDP, in 1992 and 1993 it further fell to 0.09%, then to 0.08% in 1994, reaching as little as 0.07% of the GDP in 1995. The budgetary allotment for water management thereby dropped sixfold. Relative to Europe, Slovenia assigned around 50% less of its budgetary means to water management, while this share has now fallen to 8.5%. This comparison has been calculated regarding the share these funds make up of the budget and not the nominal invested funds due to incomparable production growth (The Administration of the Republic of Slovenia for the Protection of Nature, 1996). The effects of these cuts are regrettably already visible in the organisation of the water management system. The cause for concern is in the fact that this regression of water management activities has also caused a rapid decline in the profession, which today is virtually on its knees. This is and will be felt even more strongly in the future as its restoration will be a long term process regardless of the funds and priorities assigned to it. The Public Companies Act (Official Gazette RS No. 32/93) deals with the organisation of public companies on a local basis only and it does not define the organisation of integrated water management in watersheds, which usually cross the boundaries of local communities. The experts Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 11 gospodarjenja z vodami v povodjih, ki v več ini primerov segajo preko območij lokalnih skupnosti. Strokovna javnost se tega problema zelo zaveda, zato že nekaj let od države prič akuje, da sprejme ustrezne ukrepe za izboljšanje stanja. Že v letu 1 991 je bila pripravljena Strategija vodnega gospodarstva Slovenije (Steinman et al., 1 993), ki pa žal ni doživela politič ne potrditve. Od države se prič akuje predvsem, da s sprejetjem ustrezne zakonodaje poda zakonske podlage in poskrbi za ustrezno organiziranost gospodarjenja z vodami na državni ravni. Seveda se ob tem prič akuje tudi sistemsko rešitev financiranja na področ ju gospodarjenja z vodami. S takšnimi izhodišč i bo mogoče organizirati gospodarjenje z vodami tudi na lokalnih in regionalnih ravneh (vodnih območ jih). Na regionalni ravni je na področ ju gospodarjenja z vodami pomemben predvsem konflikt rabe voda. Problemi se lahko uspešno rešujejo na lokalni in regionalni ravni, saj jih podrobneje lahko poznajo le strokovnjaki, ki živijo in delajo v regiji - a celovito, na vodnem območ ju. Prič akuje se tudi, da se na lokalni in regionalni ravni izdelujejo analize omenjenih konfliktov rabe in predlagajo rešitve na ustreznih strokovnih podlagah. Potem pa naj organ odločanja, ustanovljen z ustrezno zakonsko podlago, sprejme načrt gospo- darjenja z vodami (Umek, Banovec, 1998). Omeniti moramo tudi problem, s katerim se srečamo pri obravnavanju problematike gospodarjenja z vodami; to so terminološke težave oz. težave z izrazoslovjem. Tega so se zavedali že pripravljavci Strategije vodnega gospodarstva (Steinman et al., 1993), zato so strategiji dodali tudi "delovni osnutek glosarja strokovnih pojmov". In kako so opisali pojem GOSPODARJENJA Z VODAMI: "Gospodarjenje z vodami je vrednostna opredelitev, ki izhaja iz temeljnega postulata, da so vode obnovljiva, vendar omejena naravna dobrina, s katero moramo ravnati smotrno. V ožjem smislu besede pomeni gospodarjenje doseganje ciljev, s č im manjšimi stroški oziroma doseganje najboljših rezultatov z danim obsegom sredstev." Med pripravljanjem nove zakonodaje o vodah bo treba razrešiti tudi težave z in the field are aware of the issue and have been expecting the state to take appropriate measures for quite some years. A Strategy for the water management in Slovenia was prepared as early as 1991 (Steinman et al., 1993), but was unfortunately not ratified. The state is expected to adopt appropriate legislation and thereby establish a legal basis and provide a proper organisational structure for water management on the state level. The state is also expected to regulate finances in the field of water management. All this should enable the organisation of water management on local and regional levels (water areas). On the regional level of water management, the most significant conflicts concern the usage of water. Such problems can be successfully dealt with on a local and regional level with the insight of local experts, but integrally in the water area. Analysis of the above mentioned conflicts should be made either locally or regionally and suitable solutions based on expert opinions should be proposed. Following those proposals a decision-making body set up on a legal basis should approve a scheme for water management (Umek, Banovec, 1998). Another problem that we face while dealing with water management is the lack of suitable terminology. The authors of the Strategy for Water Management (Steinman et al., 1993) were aware of that, so they added a "working draft of a glossary of technical terms". This is how they described the term WATER MANAGEMENT: "Water management is a value definition which originates from the basic postulate that waters are a renewable but limited natural resource which has to be dealt with appropriately. In its narrow sense, management indicates reaching goals as economically as possible or achieving the most with the given means." The terminology problems concerning water management will also have to be dealt with during the formulation of legislation. The Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 12 izrazoslovjem, ki se nanaša na gospodarjenje z vodami. Terminološki slovar naj v celoti vsebuje tudi izraze, ki so vsebovani v dokumentih EZ. Tako se bomo izognili nesporazumom glede ustreznega prevajanja posameznih direktiv in ugotavljanja skladnosti naše zakonodaje z evropsko. 2. GOSPODARJENJE Z VODAMI V EZ Problema oblikovanja ustrezne politike do voda in gospodarjenja z vodami se je zač ela zavedati tudi Evropska zveza (EZ), ki je pristopila k reševanju tega problema. Pokazala se je namreč potreba po uskladitvi zakonodaje in predpisov na področ ju gospodarjenja z vodami. Glede na ugotovljeno različ nost je pet držav članic EZ (Francija, Nizozemska, Velika Britanija, Nemč ija, Portugalska) v letu 1 993 pričelo z obseženim projektom, katerega temeljni cilj je bil izdelava pregleda institucionalnih - organizacijskih okvirjev za gospodarjenje z vodami tako v preteklosti, kot tudi v prihodnosti, hkrati pa ugotavljanje možnosti za usklajeno politiko do voda na področ ju držav č lanic (Correia, 1 997). Projekt je obsegal dva pristopa obravnave problematike gospodarjenja z vodami: Vertikalno poroč ilo, ki se nanaša na interne zadeve držav, in Horizontalna poroč ila, ki primerjajo ureditve za posamezna področ ja gospodarjenja z vodami med državami . Glavne cilje projekta bi lahko povzeli v naslednjih toč kah (Correia, 1 997): 1. opis razvoja institucionalnih okvirjev gospodarjenja z vodami v petih sodelujoč ih državah v projektu, 2. primerjava nekaterih modelov in ključ nih dejavnikov na področ ju gospodarjenja z vodami in primerjalna ocena uporabljenih ukrepov na kritič nih področ jih, 3. upoštevanje možnosti prihodnjega usklajevanja, integralne politike do voda na evropski ravni, z upoštevanjem nač ela subsidiarnosti, 4. opis informacijskih sistemov v vodnem gospodarstvu s posebnim poudarkom na prekomejni problematiki in ocena vloge EEPA (European Environmental glossary of technical terms should contain all the terms found in the EU documents. That should prevent misunderstandings while translating EU Directives and ascertaining the harmonisation of Slovene and European legislation. 2. WATER MANAGEMENT IN THE EU Formulating a suitable policy towards water and water management was put on the EU agenda as the need for harmonising different legislation and regulations became apparent. Five of the states that comprise the EU (France, the Netherlands, Great Britain, Germany and Portugal) therefore began an extensive project in 1993. Its primary goal was to elaborate a survey of institutional and organisational water management frameworks of the past as well as for the future and to research possibilities for harmonising water policy in Member States (F.N. Correia, 1997). The project included two approaches to water management issues: the Vertical Report, which deals with internal state matters and the Horizontal Report, which compares regulations in different countries. The primary goals can be summed up in the following items (Correia, 1997): 1. A description of the development of institutional water management frameworks in the five countries taking part. 2. A comparison of some models and key factors in the field of water management and a comparative estimation of measures applied to critical areas. 3. Consideration of the possibility of further harmonisation towards an integrated water management policy on a European level, bearing in mind the principle of subsidiary. 4. A description of information systems in the water management, especially stressing international problems and assessing the role of the EEPA (European Environment Protection Agency) in the process of harmonising information systems for water Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 13 Protection Agency) v procesu usklajevanja informacijskega sistema za potrebe gospodarjenja z vodami in 5. uč inkovitost ekonomskih instrumentov na področ ju vodne in okoljske politike. Ker so tudi znotraj EZ različ ne oblike organiziranosti gospodarjenja z vodami po posameznih državah, so v EZ prič eli z enotnim opisovanjem obstoječ ega stanja na enotni nač in Vertikalnega poroč ila (Vertical report). Osnova za izdelavo poroč ila je bila predpisana struktura, ki je vsebovala 60 naslovov (tem), ki predstavljajo tudi kazalo Vertikalnega poroč ila (National Water Authority of Hungary, 1997). VSEBINA VERTIKALNEGA POROČ ILA I. UVOD II. SPLOŠNA UREDITEV NAČ RTOVANJA IN GOSPODARJENJA Z VODAMI 1. Zakonodajna ureditev 2. Institucionalne ureditve (organiziranost) 3. Kulturni, zgodovinski in tehnič ni vplivi na obstoječ i sistem institucij 4. Nač rtovanje v vodnem gospodarstvu in družbeni ter gospodarski razvoj 5. Institucije in mehanizmi za povezovanje sektorskih potreb po vodi v celostno načrtovanje in gospodarjenje z vodami 6. Nač ela in mehanizmi gospodarjenja 7. Usklajevanje in razvijanje raziskav ter izobraževanja na področ jih, povezanih z vodami III. RAZPOLOŽLJIVOST IN (PO)RABA VODE A) Razpoložljivost voda 8. Hidrološke danosti 9. Stanje kakovosti voda B) (Po)Rabe voda 10. Ohranjanje ekosistemov 11. Preskrba prebivalstva s pitno vodo 12. Ravnanje s komunalnimi odpadnimi vodami 13. Industrija 14. Kmetijstvo 15. Hidroenergetika 16. Plovba 17. Ribištvo in ribogojstvo 18. Turizem in rekreacija 19. Odlaganje in odvzem plavin 20. Varovanje pred poplavami in izsuševanje zemljišč C) Uravnoteženost razpoložljivih voda in potreb po vodi 21. Količ nik (razmerje) med potrebami po vodi in razpoložljivimi količ inami 22. Sektorski količnik (razmerje) rabe vode med kmetijstvom in industrijo 23. Regionalni in sektorski pritiski na vode management needs. 5. The effectiveness of economic implementations in the field of water and environmental policy. The Vertical Report, a unified description of the current condition in the field of water management, was implemented due to differences within the EU itself. The basis for the report was a prescribed structure, which consisted of 60 area titles (themes), which also formed the index of the Vertical Report (National Water Authority of Hungary, 1997). STRUCTURE OF THE COUNTRY REPORTS I. INTRODUCTION II. GENERAL FRAMEWORK FOR WATER PLANNING AND MANAGEMENT 1. Legal framework 2. Institutional framework 3. Cultural, historical and technical factors affecting the present institutional system 4. Liaison of water resources planning and social and economic development 5. Institutions and mechanisms for the integration of sectoral water requirements in global water planning and management 6. Economic principles and mechanisms 7. Coordination and development of research and training in the water related areas III. AVAILABILITY AND USES OF WATER A) Availability of water 8. Hydrological characterisation 9. Characterisation of water quality B) Uses of water 10. Ecosystem management 11. Public water supply 12. Public wastewater disposal 13. Industry 14. Agriculture 15. Hydropower 16. Navigation 17. Professional fishing and fish farming 18. Leisure and recreation 19. Dredging and mining 20. Flood control and land drainage C) Balance of availability and needs 21. Ratio of demand and availability 22. Sectoral ratios of water use in agriculture, energy and industry 23. Regional and sectoral stresses on water Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 14 IV. JAVNI IN ZASEBNI DEJAVNIKI IN NJIHOVA VLOGA NA RAZNIH NIVOJIH NAČ RTOVANJA IN GOSPODARJENJA Z VODAMI A) Dejavniki na državnem, regionalnem (vodno območ je) in lokalnem nivoju 24. Opis vladnih in nevladnih institucij, ki neposredno sodelujejo pri gospodarjenju z vodami 25. Celostni in sektorski mehanizmi ali institucije pri nač rtovanju voda 26. Sodni sistem (pritožbe) in druge oblike reševanja konfliktnih situacij 27. Mehanizmi za osveščanje javnosti in njeno sodelovanje B) Povezanost z Evropsko zvezo in ostalimi mednarodnimi ustanovami (telesi) 28. Vladne ustanove (agencije), odgovorne za sodelovanje pri določ anju mednarodne politike do voda 29. Ustanove (agencije), postopki in problemi pri uveljavljanju in nadzoru mednarodnih sporazumov in EZ smernic 30. Prekomejni problemi na vodah, sporazumi in organi (telesa) sodelovanja 31. Drugi mednarodni sporazumi, pomembni za gospodarjenje z vodami C) Vloga in sodelovanje nevladnih organizacij in ostalih interesnih skupin 32. Okoljske in potrošniške nevladne organizacije 33. Gospodarska združenja (trgovska, obrtna,…) 34. Strokovna in znanstvena združenja V. GLAVNE NALOGE NAČ RTOVANJA IN GOSPODARJENJA Z VODAMI A) Določ anje politike in vodnogospodarsko nač rtovanje 35. Določ anje politike 36. Vodnogospodarsko nač rtovanje B) Gospodarjenje z vodami 37. Ohranjanje ekosistemov 38. Hidroenergetika 39. Plovba 40. Turizem in rekreacija 41. Ostale rabe voda na vodotokih in morju C) Zajem voda in dobava za različ ne nač ine rabe 42. Pobuda (iniciativa) in sprejemanje odloč itev 43. Financiranje in izvedba (izgradnja) 44. Obratovanje in vzdrževanje 45. Sistem dovoljevanja in nadzor 46. Raziskovanje, razvoj in inovativnost rešitev D) Zbiranje in č išč enje odpadnih voda različ nih porabnikov 47. Pobuda (iniciativa) in sprejemanje odloč itev 48. Financiranje in izvedba (izgradnja) 49. Obratovanje in vzdrževanje 50. Sistem dovoljevanja in nadzor 51. Raziskovanje, razvoj in inovativnost rešitev VI. POMEMBNEJŠI TRENDI PRI NAČ RTOVANJU IN GOSPODARJENJU Z VODAMI 52. Glavni trendi porabe voda 53. Nastajajoč a politika in zakonodaja 54. Regionalno proti centralnemu IV. PUBLIC AND PRIVATE ACTORS AND THEIR ROLES AT DIFFERENT LEVELS OF WATER PLANNING AND MANAGEMENT A) Actors at national, regional and local levels 24. Description of governmental and non-governmental institutions directly contributing to water management 25. Global and sectoral mechanisms or institutions for water planning 26. Judiciary system and other forms of conflict resolution 27. Mechanisms for public awareness and participation B) Interface with European Community and other international bodies 28. Governmental agencies responsible for participating in the definition of EU policies 29. Agencies, procedures and difficulties in the implementation end enforcement of EU directives 30. Transboundary water problems, agreements and bodies 31. Other international accords relevant to water management C) Specific roles of NGOs and other interest groups (NGO should be plural but not possessive.) 32. Environmental and consumer NGOs 33. Trade associations 34. Professional and scientific associations V. MAIN FUNCTIONS IN WATER PLANNING AND MANAGEMENT A) Policy making and water resources planning 35. Policy making 36. Water resources planning B) Water resources management 37. Ecosystem management 38. Hydropower 39. Navigation 40. Leisure and recreation 41. Other instream uses of water C) Water abstractions and supply for various uses 42. Initiative and decision making 43. Financing and building 44. Operating and maintaining 45. Regulation and control 46. Research, development and innovative solutions D) Wastewater disposal from various uses 47. Initiative and decision making 48. Financing and building 49. Operating and maintaining 50. Regulation and control 51. Research, development and innovative solutions VI. RELEVANT TRENDS IN WATER PLANNING AND MANAGEMENT 52. Major trends in water use 53. Pending policies and legislation 54. Regional versus central 55. Public versus private Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 15 55. Privatno proti javnemu 56. Ostali glavni trendi institucionalnih ureditev 57. Sedanji trendi pri raziskavah in razvoju VII. SPLOŠNA OCENA INSTITUCIONALNEGA SISTEMA NAČRTOVANJA IN GOSPODARJENJA Z VODAMI 58. Najpomembnejše prednosti obstoječ ega sistema 59. Najpomembnejše pomanjkljivosti in glavni konflikti obstoječ ega sistema 60. Skupna ocena Vertikalno poroč ilo nam podaja ključ ne elemente gospodarjenja z vodami, ki so obdelani sistematično in na enakih - primerljivih temeljih. Seveda je bilo pri tem treba dodatno upoštevati posebnosti in zgodovinsko ozadje politike do voda posameznih držav č lanic. Na podlagi izdelanih vertikalnih poroč il posameznih držav je bilo podrobno obdelanih deset (horizontalnih) področ ij. Tako so nastala horizontalna poroč ila, ki so ključ nega pomena za evropsko politiko do voda in za katere lahko rečemo, da predstavljajo sintezo vertikalnih poroč il: - politika gospodarjenja z vodami v Evropski zvezi, - povezave med vodno in okoljsko politiko, - meddržavni in medregionalni problemi pri gospodarjenju z vodnimi viri, - ekonomski instrumenti gospodarjenja z vodami in mehanizmi financiranja vodnogospodarske infrastrukture, - gospodarjenje z vodami (na državnem in drugih ravneh), - nač rtovanje in gospodarjenje z vodami v povodjih, - problematika nadzora onesnaževanja voda, - vodna zakonodaja v državah EZ, - razvoj in uporaba politike do voda, - subsidiarnost - vzajemnost in politika do voda. Na sliki 1 je prikazana relacija med Vertikalnimi in Horizontalnimi poroč ili. 56. Other major trends in institutional arrangements 57. Current trends in research and development VII. GLOBAL APPRAISAL OF THE INSTITUTIONAL SYSTEM FOR WATER PLANNING AND MANAGEMENT 58. Most relevant merits of the existing system 59. Major shortcomings and conflicts of the existing system 60. Overall appraisal The Vertical Report includes key elements of water management treated systematically and comparably and at the same time takes into consideration the peculiarities and historical background of water policies in individual Member States. On the basis of the Vertical Reports, ten (horizontal) areas were treated in detail. That resulted in the Horizontal Reports, which were compiled as a synthesis of Vertical Reports and which embody key positions in European water policy: - water management policy in the EU - connections between water and environmental policy - international and inter-regional problems in managing water resources - economic implementation in water management and mechanisms for financing the water management infrastructure - water management (on state and other levels) - planning and managing water management in watersheds - the issue of the supervision of water pollution - water legislation in the EU states - development and implementation of water policy - subsidiary - reciprocity and water policy. Figure 1 shows the relationship between the Vertical and Horizontal Reports. Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 16 Slika 1 . Povezanost med Vertikalnim in Horizontalnimi poroč ili (Correia, 1998) Vzajemnost in politika do voda GLAVNI CILJI PROJEKTA: 1. Opis razvoja institucionalnih okvirjev gospodarjenja z vodami v petih sodelujoč ih državah v projektu. 2. Primerjava nekaterih modelov in ključ nih dejavnikov na področ ju gospodarjenja z vodami in primerjalna ocena uporabljenih ukrepov na kritič nih področ jih. 3. Upoštevanje možnosti prihodnje uskladitve, integralne politike do voda na evropskem nivoju. Vodna zakonodaja v državah EU Politika gospodarjenja z vodami v Evropski uniji Ekonomski instrumenti in mehanizmi financiranja infrastrukture Raziskovalni projekt FRANCIJA NEMČ IJA NIZOZEMSKA PORTUGALSKA VELIKA BRITANIJA I. UVOD II. SPLOŠNI UREDITEV NAČ RTOVANJA IN GOSPODARJENJA Z VODAMI III. RAZPOLOŽLJIVOST IN (PO)RABA VODE A) Razpoložljivost voda B) (Po)Rabe vode C) Uravnoteženost razpoložljivih voda in potreb po vodi IV. JAVNI IN ZASEBNI DEJAVNIKI IN NJIHOVA VLOGA NA RAZNIH NAČ RTOVANJA IN GOSPODARJENJA Z VODAMI A) Dejavniki na državnem, regionalnem in lokalnem nivoju B) Povezanost z Evropsko unijo in ostalimi mednarodnimi ustanovami (telesi) C) Vloga in sodelovanje nevladnih organizacij in ostalih interesnih skupin V. GLAVNE NALOGE NAČ RTOVANJA IN GOSPODARJENJA Z VODAMI A) Določ anje politike in vodnogospodarsko nač rtovanje B) Gospodarjenje z vodami C) Zajem voda in dobava za različ ne nač ine rabe D) Zbiranje in č išč enje odpadnih voda različ nih porabnikov VI. POMEMBNEJŠI TRENDI PRI NAČ RTOVANJU IN GOSPODARJENJU Z VODAM VII. SPLOŠNA OCENA INSTITUCIONALNEGA SISTEMA NAČ RTOVAN GOSPODARJENJA Z VODAMI Problematika nadzora onesnaževanja voda Razvoj in uporaba politike do voda Povezave med vodno in okoljsko politiko Meddržavni problemi pri gospodarjenju z vodnimi viri Nač rtovanje in gospodarjenje z vodami v povodjih Gospodarjenje z vodami (na državnem in ostalih nivojih) Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 17 Figure 1. Structure and objectives of EUROWATER research project (Correia 1998). Subsidiarity and water policy OBJECTIVES OF THE PROJECT: 1. Structured, focused comparative study of the institutional systems for water management in five European countries; 2. Characterisation of the recent evolution of the institutional framework of water management; 3. Identification of different models adopted and comparison of policies with respect to the most relevant issues. Water rights and administration in Europe Public and private water management in Europe Economic instruments of water management and financing of infrastructure Research Project FRANCE GERMANY NETHERLANDS PORTUGAL UNITED KINGDOM I. INTRODUCTION II. GENERAL FRAMEWORK FOR WATER PLANNING AND MANAGEMENT III. AVAILABILITY AND USES OF WATER A) Availability of water B) Uses of water C) Balance of availability and needs IV. PUBLIC AND PRIVATE ACTORS AND THEIR ROLES AT DIFFERENT LEVELS OF WATER PLANNING AND MANAGEMENT A) Actors at national, regional and local levels B) Interface with European Community) and other international bodies C) Specific roles of NGO's and other interest groups V. MAIN FUNCTIONS IN WATER PLANNING AND MANAGEMENT A) Policy making and water resources planning B) Water resources management C) Water abstraction and supply for various uses D) Wastewater disposal from various uses VI. RELEVANT TRENDS IN WATER PLANING AND MANAGEMENT VII. GLOBAL APPRASIAL OF THE INSTITUTIONAL SYSTEM FOR WATER PLANNING AND MANAGEMENT Selected emerging issues in water quality control policies Regulation and enforcement of water policies Relationships between water policiy and enivornmental policy Transboundary issues in water resources River basin planning and management Water resources information policy Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 18 Vzajemnost in politika do voda HORIZONTALNA POROČ ILA VELIKA BRITANIJA Vodna zakonodaja v državah EZ Politika gospodarjenja z vodami v EZ NEMČ IJA NIZOZEMSKA PORTUGALSKA Ekonomski instrumenti in mehanizmi financiranja infrastrukture Problematika nadzora onesnaževanja voda Razvoj in uporaba politike do voda Povezave med vodno in okoljsko politiko Meddržavni problemi pri gospodarjenju z vodnimi viri Nač rtovanje in gospodarjenje z vodami v povodjih Gospodarjenje z vodami (na državnem in ostalih nivojih) VERTIKALNA POROČ ILA FRANCIJA Slika 2. Tematike, analizirane v Horizontalnih poroč ilih (Correia, 1 998) Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 19 Subsidiarity and Water Policy HORIZONTAL REPORTS UNITED KINGDOM Water Rights and Administration Public and Private Management GERMANY THE NETHERLANDS PORTUGAL Economic and Financial Aspects Emerging Issues in Water Quality Control Regulation and Enforcement of Discharges to Water Relationship of Water and Environmental Policy Transboundary Issues River Basin Planning and Management Water Resources Information Policy VERTICAL REPORTS FRANCE Figure 2. Topics analysed in Horizontal Reports (Correia, 1998). Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 20 Povodje 1. Splošne informacije 2. Upravljanje s povodjem 3. Mednarodni konflikti 4. Voda in okolje 5. Razvoj in raba 6. Problemi nadzora Odtok iz urbanih površin Upravljanje in okolje 8. Javno proti privatnemu 7. Ekonomski instrumenti in financiranje Ekonomski vidiki 9. Vodna zakonodaja in uprava 10. Vzajemnost in politika do voda Zakonodaja in politika Slika 3. Posamezni sklopi, ki so analizirani v Horizontalnih poroč ilih (Correia, 1 998) River Basin Focus 1. Information 2. River Basin Management 3. Transboundary Issues 4. Water and Environment 5. Regulation and Enforcement 6. Emerging Issues Urban Runoff and Rural Sewage Management and environment 8. Public and Private 7. Economic Instruments and Financing Economic Issues 9. Water Rights and Administration 10. Subsidiarity and Water Policy Legal and Political Figure 3. Clusters of the topics of the Horizontal Reports (Correia, 1998). Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 21 GOSPODARJENJE Z VODAMI CILJ TRAJNOSTNI RAZVOJ SOCIALNE IN EKONOMSKE ZAHTEVE OKOLJSKE ZAHTEVE Slika 4. Vpliv zunanjih dejavnikov v procesu doseganja cilja - trajnostnega razvoja (Correia, 1998). WATER MANAGEMENT AND RESOURCE PROTECTION SUSTAINABLE DEVELOPMENT GOAL SOCIAL AND ECONOMIC REQUIREMENTS ENVIRON- MENTAL REQUIREMENTS Figure 4. Complexity of water policy and its contextual factors (Correia, 1998). Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 22 Tematike, ki jih podrobneje analizirajo horizontalna poroč ila, bi v grafič ni obliki lahko predstavili na nač in, kot ga prikazuje slika 2. Teme, ki jih analizirajo horizontalna poroč ila, bi lahko razdelili v štiri glavne sklope. Posamezni sklopi se delijo na področja, ki so v vertikalnih poroč ilih podrobneje razč lenjena. Celotna obravnavana problematika pa tvori zaključ eno celoto, kot je prikazano na sliki 3. Opisani nač in strukturiranja, ki so ga uporabljali v izdelanih dokumentih (nastajali so v obdobju 1 993-1 996) v sodelujoč ih državah iz EZ, so bila izhodišč a za strukturo, uporabljeno v nalogi Koncept gospodarjenja z vodami, ki je bila izdelana na FGG v letu 1997 (Kompare et al., 1997). Ostale vsebine za pregled o (upravni, institucionalni) strukturi gospodarjenja z vodami pa so pri nas obdelane tudi v številnih drugih dokumentih. V procesu približevanju EZ bo morala tudi Slovenija področ je gospodarjenja z vodami predstaviti na nač in, ki se je v EZ že uveljavil. Izdelava vertikalnega poroč ila bo podala jasen pregled trenutnega položaja na področ ju gospodarjenja z vodami pri nas in omogoč ila primerjavo stanja z drugimi evropskimi državami. Takšno poroč ilo bo lahko v veliko pomoč tudi pri pisanju nove zakonodaje za področ je voda, saj mora ravno Zakon o vodah odgovoriti na več ino vprašanj, ki so temelj za izdelavo vertikalnega poroč ila. To pa pomeni, da predstavlja vertikalno poročilo dobre temelje zakonodaji za področ je gospodarjenja z vodami. Nadaljnji razvoj projekta EUROWATER V EZ so po analizi izvedenega projekta ugotovili, da je njihov pristop obravnavanja področ ja gospodarjenja z vodami šele zač etek resnega dela. Zato so se odloč ili, da bo treba izdelati analizo politike do voda (koncepta gospodarjenja z vodami) v sodelujoč ih državah v projektu. Poudarek naj bi bil predvsem na regijah, sodelujoč ih - akterjih v procesu gospodarjenja z vodami, definiranju ciljev in pogojih za njihovo doseganje, instrumente - dejavnosti za doseganje ciljev in nazadnje oceno obstoječ ega koncepta. Eden izmed glavnih ciljev je trajnostni razvoj, ki pa na področju gospodarjenja z vodami ni Topics minutely analysed in the Horizontal Reports can be graphically presented as shown in Figure 2. Themes analysed by the Horizontal Reports can be divided into four major groups which are then further divided into areas and analysed in more detail in the Vertical Reports, while all of the discussed issues form an integrated system as shown in Figure 3. The structuring method used in the above mentioned Reports (made between 1993-1996) formed a starting-point for a research thesis entitled "The Concept of Water Management", completed in 1997 at the Faculty of Civil Engineering and Geodesy in 1997 (Kompare et al., 1997). The rest of the topics concerning (administrative, institutional) water management structure are dealt with in numerous other documents. Slovenia will have to present the field of water management in a way already established in the EU. Preparing a Vertical Report will give a clear account of the current situation in the field of water management in Slovenia and enable a comparison between itself and other European states. Such a report would also greatly simplify the writing of the new Water Act, as that law, in particular, must answer many questions which form the basis for making the Vertical Report. The Vertical Report thus forms a good basis for legislation in the field of water management. Future development of the EUROWATER PROJECT After an analysis of the completed project, the EU realised that their approach to the field of water management is only the beginning and therefore decided that an analysis of the water policy (the concept of water management) in the five collaborating Member States must be made. It would first and foremost stress regions and institutions involved in the process, define the goals and conditions for their attainability, instruments, activities needed to attain goals and a survey of the existing concept. One of the main goals is sustainable development, which is, however, not easily attainable. Such a vision, which Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 23 preprosto dosegljiv cilj (npr. uvedba boljših tehnologij ipd.), temveč zahteva nov pristop pri izdelavi politike gospodarjenja z vodami. Celovitost in kompleksnost dejavnikov, ki vplivajo na politiko gospodarjenja z vodami za doseganje trajnostnega razvoja, je prikazana na sliki 4. V nadaljevanju projekta bodo zato sodelujoč e države izdelale naslednja poroč ila: - gospodarjenje v povodjih (nač rtovanje in gospodarjenje z vodami v povodjih), - ekonomika voda in vodna industrija ter - integracija politik in analiza subsidiarnosti. Na podlagi izkušenj, ki so jih pridobili v projektu, v katerem je sodelovalo pet držav č lanic EZ, se je Evropska komisija EZ odloč ila, da s podobnim projektom prič ne tudi v državah srednje in vzhodne Evrope, ki so kandidatke za vstop v EZ. Poleg desetih tem, ki jih obravnavajo horizontalna poroč ila v prvotnem projektu, so v novem projektu predvidene še tri dodatne teme, ki jih morajo obdelati v državah srednje in vzhodne Evrope, in sicer (Eurowater - CEC Hungary, 1997): - zagotavljanje kakovosti pri gospodarjenju in upravljanju z vodami (uporaba standardov ISO 9000 in ISO 14000 ter drugih instrumentov za zagotavljanje kakovosti), - gospodarjenje z vodami v kmetijstvu in uskladitev s predpisi EZ. 3. CELOSTNO GOSPODARJENJE Z VODAMI NA OBALNEM OBMOČ JU 3.1 UVOD Poglavje obravnava gospodarjenje z vodami na obalnem območju. Opisane so najpomembnejše ustanove in dejavnosti na področ ju gospodarjenja z vodami, poseben poudarek pa je namenjen dejavnostim javne vodnogospodarske službe, javnim gospodarskim službam zbiranja in č išč enja odpadnih voda ter preskrbi s pitno vodo. Obravnavana je problematika gospodarjenja z vodami na obalnem območ ju in dejavnosti, ki includes e.g. introducing new technologies, requires a new approach to water management policy. The complexity and integrity of the factors that influence the policy of integrated development in the field of water management is shown in Figure 4. During the continuation of the project the collaborating countries will have to issue the following reports: - water management in watersheds (planning and managing water in watersheds) - water economics and the water resources industry - the integration of policies and the analysis of subsidiary issues. Based on experience acquired in the Eurowater project involving five Member States, the European Commission decided to initiate a similar project in candidate states of Middle and Eastern Europe. In addition to the ten existing issues dealt with in the Horizontal Reports, in the original project three additional issues were addressed for the above mentioned countries (Eurowater - CEC Hungary, 1997): - assuring the quality of water management (using the ISO 9000, ISO 14000 standards and other instruments for assuring quality) - water management in agriculture - harmonisation with EU regulations. 3. INTEGRATED WATER MANAGEMENT IN THE COASTAL REGION 3.1 INTRODUCTION This chapter deals with water management in the coastal region. The most important institutions and activities in the field of water management in the coastal region are described and additional stress is laid on the activities of the public water management service and public services for collecting and treating sewage water and providing drinking water. Issues of water management and activities which contribute to a sustainable Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 24 potekajo na obalnem območ ju za zagotovitev trajnostnega razvoja območja, kjer ima celostno gospodarjenje z vodami pomembno vlogo. 3.2 PREGLED NAJPOMEMBNEJŠIH DEJAVNOSTI GOSPODARJENJA Z VODAMI NA OBALNEM OBMOČ JU V procesih nač rtovanja in gospodarjenja z vodami na obalnem območ ju so posredno ali neposredno vključeni naslednji dejavniki (Umek, 1998): - nacionalne in regionalne upravne ustanove (Uprava RS za varstvo narave, Uprava RS za pomorstvo,…), - nacionalne in regionalne javne strokovne institucije (javna vodnogospodarska služba Hidra Koper in Podjetja za urejanje hudournikov, Vodnogospodarski inštitut, …), - javne gospodarske službe - komunalna podjetja (Komunala Koper, Komunala Izola, Okolje Piran, Rižanski vodovod), - javne in zasebne gospodarske in negospodarske organizacije (Morska biološka postaja, Medobč inski zavod za varstvo naravne in kulturne dedišč ine, Zavod za zdravstveno varstvo Koper,…), - lokalne skupnosti (Mestna obč ina Koper, obč ina Izola, obč ina Piran), - javnost in nevladne organizacije ter - potrošniki: organizirani/neorganizirani, javni/zasebni, prebivalci/industrija/ kmetij- stvo, itd. Njihova vloga na različnih ravneh je opredeljena v zakonodaji in je podrobneje opisana v osrednjem delu naloge (Umek, 1998). Na sliki 5 podajamo pregledno shemo, ki prikazuje porazdelitev funkcij med posameznimi dejavniki v sistemu gospodarjenja z vodami na obalnem območ ju. Temeljni namen sheme je prikaz, da je sistem gospodarjenja z vodami kompleksen proces, ki zahteva ustrezno organizacijo. development in the coastal region, where integrated water management plays an important role, are dealt with. 3.2 AN OVERVIEW OF THE MOST IMPORTANT ACTIVITIES IN THE AREA OF WATER MANAGEMENT IN THE COASTAL REGION Processes of planning and managing waters in the coastal region directly or indirectly include the following factors (Umek, 1998): - State and regional administrative institutions (The Administration of the Republic of Slovenia for the Protection of Nature, Maritime Transport of the Republic of Slovenia, etc.) - State and regional public technical institutions (The Hidro Koper - Public Water Management Service, Company for mountain torrents management, The Water Management Institute, etc.) - Public Company Services - Communal Services (Komunala Koper, Komunala Izola, Okolje Piran, Rižanski vodovod - waterworks) - other public and private companies and services (The National Institute of Biology, The Inter-municipal Institute for the Protection of Natural and Cultural Heritage, The Institute for Health Protection Koper, etc.) - municipalities (The City Municipality of Koper, The Municipality of Izola, The Municipality of Piran) - public and non-governmental organisations - consumers: organised/non-organised, public /private, inhabitants/industry/agriculture, etc. Their role on different levels is defined in legislation and described in detail in the central part of the thesis (Umek, 1998). Figure 5 presents a clear scheme showing the division of functions between individual factors in the field of water management in the coastal region. The basic purpose of the scheme is to show that the system of water management is a complex process demanding suitable organisation. Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 25 UPRAVA ZA VARSTVO NARAVE IZPOSTAVA KOPER UPRAVA RS ZA POMORSTVO JAVNA VODNOGOSPODARSKA PODJETJA HIDRO, PUH UPRAVNA ENOTA KOPER UPRAVNA ENOTA IZOLA UPRAVNA ENOTA PIRAN RIŽANSKI VODOVOD KOPER MESTNA OBČ INA KOPER KOMUNALA KOPER OBČ INA IZOLA OBČ INA PIRAN KOMUNALA IZOLA "OKOLJE" PIRAN Slika 5. Dejavniki v sistemu gospodarjenja z vodami na obalnem območ ju (Umek, 1 998) ADMINISTRATION FOR THE PROTECTION OF NATURE ADMINISTRATION FOR MARITIME TRANSPORT PUBLIC WATER MANAGEMENT SERVICES HIDRO, PUH STATE ADMINIST. KOPER UNIT STATE ADMINIST. IZOLA UNIT STATE ADMINIST. PIRAN UNIT WATER SUPPLY COMPANY KOPER MUNICIPALITY OF KOPER PUBLIC COMPANY SERVICES KOPER MUNICIPALITY OF IZOLA MUNICIPALITY OF PIRAN PUBLIC COMPANY SERVICES IZOLA PUBLIC COMPANY SERVICES PIRAN Figure 5. Factors in the water management system of the coastal region (Umek, 1998) Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 26 3.3 SPLOŠNA OCENA CELOSTNEGA GOSPODARJENJA Z VODAMI NA OBALNEM OBMOČ JU Stanje na področju celostnega gospodarjenja z vodami na obalnem območ ju kaže na stanje gospodarjenja z vodami v celotni državi. Analiza gospodarjenja z vodami na obalnem območ ju kaže, da se veliko dejavnosti na področju gospodarjenja z vodami izvaja nekoordinirano, znotraj obč inskih meja oz. z ozkimi interesi za rešitev posameznih problemov. V okviru projekta "Integralno upravljanje obalnega območ ja" (H. Carter, 1 997) so bili izdelani predlogi strategij za ustreznejše usklajeno delovanje na celotnem obalnem območ ju. Kot eno izmed možnih rešitev, ki bi na obalnem območ ju omogoč ila koordiniran pristop k reševanju problemov na povodjih, je izdelava Nač rtov gospodarjenja z vodami v povodjih obalnega območ ja. Izdelavo takšnih nač rtov predvideva tudi novi Zakon o vodah, ki bo moral vsebovati tudi spremembe na institucionalnem področ ju, predvsem pa bo moral zagotoviti namenska sredstva za dejavnosti gospodarjenja z vodami. Na obalnem območ ju bomo morali poseben poudarek nameniti morju, saj se prav na tem področ ju pojavlja še več interesentov, s tem pa tudi konfliktov, ki nastajajo zaradi neurejenega položaja pri gospodarjenju z obalnim pasom in priobalnim morjem (Umek, 1998). 4. INSTITUCIONALNA UREDITEV VODNEGA GOSPODARSTV A V SLOVENIJI - VERTIKALNO POROČ ILO Za uveljavitev ustreznega sistema celostnega gospodarjenja z vodami na obalnem območ ju je odloč ilnega pomena tudi organiziranost gospodarjenja z vodami v celotni Republiki Sloveniji (RS). Zato je v drugem delu naloge izdelan pregled institucionalne organiziranosti gospodarjenja z vodami v RS, in sicer v obliki Vertikalnega 3.3 A GENERAL SURVEY OF INTEGRATED WATER MANAGEMENT IN THE COASTAL REGION The current condition of the integrated water management system in the coastal region is a good indicator of the condition throughout the State. An analysis of integrated water management in the coastal region showed that most of the measures are uncoordinated and implemented within municipality borders and serve narrow interests. Within the framework of the "Integrated Management in the Coastal Region" project (H. Carter, 1997), proposals for strategies were developed for more appropriate and harmonised activities throughout the coastal region. One of the possible solutions to achieve a more co-ordinated approach to solving problems in water management in the coastal region was to make a Scheme for Water Management in the water systems of the coastal region. The formation of such a scheme is anticipated in the new Waters Act, which will have to include the changes in the institutional field and primarily assure funding for water management activities. Particular stress in the coastal region must be placed on the sea. This is the area where new conflicting interests between an ever growing number of those concerned arise due to unregulated legislation in managing the coastal belt and coastal waters (Umek, 1998). 4. INSTITUTIONAL FRAMEWORK FOR WATER MANAGEMENT IN SLOVENIA - A VERTICAL REPORT The decisive factor in implementing a fitting system of integrated water management in the coastal region is the organisation of water management throughout the Republic of Slovenia. The second part of my M.Sc. thesis therefore includes an overview of the institutional organisation of water management in the Republic of Slovenia, which in the form Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 27 poroč ila, ki ima enako strukturo, kot je bila predpisana v projektu EZ EUROWATER. Izdelan predlog bo podlaga za izdelavo Vertikalnega poročila za področ je gospodarjenja z vodami, ki ga mora Slovenija izdelati v procesu pridruževanja EZ. Povzetek najpomembnejših ugotovitev iz izdelanega predloga (Umek, 1998) podajamo v nadaljevanju. 4.1 SPLOŠNA UREDITEV NAČ RTOVANJA IN GOSPODARJENJA Z VODAMI Oblikovanje, sprejemanje in izvajanje novega slovenskega pravnega sistema po osamosvojitvi še ni konč ano. V prehodnem obdobju še veljajo vsi nekdanji zakoni, č e niso v nasprotju z nastajajoč im novim sistemom. Prič akujemo lahko torej, da bo vrsta starih pravnih instrumentov še nekaj č asa veljavnih. Pri oblikovanju nove okoljske zakonodaje posveča Slovenija veliko pozornost usklajevanju z zakonodajo Evropske zveze. Zakon o varstvu okolja iz leta 1993 je bil kot krovni zakon (lex generalis) podlaga za pripravo drugih pravnih instrumentov. Predpise, smernice in standarde naj bi pripravili na različ nih ravneh vlade, odvisno od posameznega pravnega instrumenta. Zakonodajni postopek lahko sproži več ustanov, sam postopek pa sistematič no nadzoruje vladna služba za zakonodajo. Strokovnjaki za različ na področ ja so lahko vključeni v različne faze procesa. V pripravljalni fazi oblikovanja pravnega instrumenta je koordinacija med različ nimi ministrstvi neformalna, na vladni ravni pa pride do koordinacije na vsaj enem od treh vladnih odborov (OZN - Ekonomska komisija za Evropo, 1997). V zadnjih letih so bili sprejeti različ ni pravni instrumenti (zakoni, predpisi, smernice, uredbe itd.), ki so povezani z okoljem, nekateri pa še č akajo na obravnavo v državnem zboru. Nanašajo se tako na splošna vprašanja okoljske politike in upravljanja, kakor tudi na of a Vertical Report has the same structure as prescribed in the EU Eurowater project. The elaborated proposal will form the basis for a Vertical Report on water management, which has to be completed due to Slovenia's approach to the EU. A summary of the most significant findings from the proposal (Umek, 1998) are given below. 4.1 GENERAL FRAMEWORK FOR WATER PLANNING AND MANAGEMENT Forming, passing and implementing the new Slovenian legislation has still not been completed since achieving independence. Some previous laws, which are not opposed to the emerging new system, are still in force in this transitional period. Due to that, we can expect that a number of old legislative tools will be in force for some time to come. Slovenia is taking great care that the new environmental legislation will be compliant with the EU legislation. The 1993 the Environmental Protection Act formed a basis for other legislative tools as a lex generalis. Prescriptions, guidelines and standards were to be elaborated on different government levels depending on individual legislative tools. Legislative procedure can be triggered by various institutions, while the procedure itself is under the supervision of the Office for Legislation. Experts from various fields can participate in different phases of the process. The co-ordination between various Ministries during the preparatory phase of a legislative tool is informal, but on a governmental level, co-ordination occurs in at least one of the three government committees (UN - Economic Commission for Europe, 1997). Various legislative tools (laws, regulations, guidelines, decrees) connected with the environment have been adopted during the last few years, while others are still waiting for parliamentary proceedings. They deal with general questions of environmental policy and management, as well as with specific questions connected with land, nature, waters, Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 28 specifič na vprašanja, povezana s prostorom, naravo, vodami itd. V nadaljevanju je izdelan pregled zakonodaje na področju voda s kratkim zgodovinskim orisom, opisana je povezanost Zakona o vodah z ostalo zakonodajo ter podan pregled obstoječ ega sistema izvajanja upravnih funkcij na področ ju gospodarjenja z vodami. 4.1 .1 Zakonodajna ureditev na področ ju voda Področ je gospodarjenja z vodami, poleg Zakona o vodah in Zakona o varstvu okolja, urejajo tudi drugi zakoni in dokumenti, ki povezujejo posamezne sektorje (resorje) oz. ministrstva. Okvirje za nač rtovanje in gospodarjenje z vodami podaja veljavna zakonodaja in trenutna organiziranost na področ ju gospodarjenja z vodami. V nadaljevanju so našteti nekateri pomembnejši zakoni (na podlagi katerih so bili izdani številni podzakonski akti): − Zakon o vodah, Uradni list SRS št. 38/81, 29/86, 15/91 z vsemi podzakonskimi akti (navodili, strokovnimi navodili, uredbami, odloki,…) − Zakon o varstvu okolja, Uradni list RS št.32/93 z vsemi podzakonskimi akti (uredbe,…) − Zakon o urejanju prostora, Uradni list SRS št. 18/84 − Zakon o urejanju naselij in drugih posegov v prostor, Uradni list SRS št. 18/84, 37/85, 29/86, 26/90, UL RS št. 71/93, 47/93, 18/93, 44/97 − Zakon o prevzemu državnih funkcij, ki so jih do 31 .1 2.1 994 opravljali organi obč in (prenos upravnih nalog obč inskih organov na upravne enote), Uradni list RS št. 29/95 − Zakon o gospodarskih javnih službah, Uradni list RS št. 32/93 − Zakon o upravi, Uradni list RS št. 67/94 − Zakon o lokalni samoupravi, Uradni list RS št. 72/93 kasneje dopolnitve in spremembe − Zakon o organizaciji in delovnem področ ju ministrstev, Uradni list RS št. 71/94 etc. The next few pages contain a survey of the legislation concerning waters, and include a short historical outline. The connections between the Water Act and other legislation are described and an overview of the existing system of implementing administrative functions in the field of water management is given. 4.1.1 Legislation in the field of water The field of water management is regulated by the Water Act and the Environmental Protection Act, together with other laws and documents linking individual sectors or ministries. The current legislation and organisation in the field of water management provide the framework for planning and managing waters. Some of the more important laws, on the basis of which numerous executive regulations have been issued, are listed below. - Water Act, Official Gazette (OG) of SRS 38/81, 29/86, 15/91, together with all executive legislation (guidelines, directives, decrees, acts) - Environmental Protection Act, OG 32/93, together with all executive legislation (guidelines, etc.) - Land Use Planning Act, OG of SRS 18/84 - Urban Planning Act, OG of SRS 18/84, 37/85, 29/86,,26/90; OG 18/93, 47/93, 71/93, 44/97 - Law on the Transfer of Administrative Tasks of Municipal Organs to Administrative Units OG 29/95 - Public Services Act, OG 32/93 - Public Administration Act, OG 67/94 - Local Public Administration Act, OG 72/93, later amended - Law on the Organisation and Competence of Ministries, OG 71/94 The connection between the Water Act and other legislation can be roughly divided into three groups: Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 29 Povezanost Zakona o vodah z ostalo zakonodajo bi v grobem lahko razdelili na tri skupine: A) ZAŠČ ITNA (OKOLJSKA) ZAKONODAJA - Zakon o varstvu okolja (ZVO) in podzakonski akti, - Zakon o urejanju naselij in drugih posegov v prostor (ZUNDPP), - Zakon o urejanju prostora (ZoUP), … B) ZAKONODAJA, VEZANA NA RABO - Zakon o kmetijskih zemljišč ih, - Zakon o javnih cestah, - Zakon o sladkovodnem ribištvu, - Zakon o graditvi objektov, … C) ZAKONODAJA, VEZANA NA IZVAJANJE ZAKONOV - Ustava RS, - Poslovnik državnega zbora, - Zakon o organizaciji in delovnem področ ju ministrstev, - Zakon o upravi, - Zakon o lokalni samoupravi, - Zakon o gospodarskih javnih službah, - Zakon o javnih naroč ilih, - Prorač unski memorandum, … Kompleks navedene zakonodaje, vezane na gospodarjenje z vodami, je le delno usklajen, kar povzroč a precejšnje težave organizaciji in delovanju sistema gospodarjenja z vodami. 4.1.2 Institucionalna ureditev (organiziranost) Pristojnosti posameznih ministrstev so določ ene v Zakonu o organizaciji in delovnem področ ju ministrstev. Zakon določ a, da so za pripravo in izvajanje politike, za predpise in ukrepe ter splošni nadzor nad varstvom okolja pristojni Ministrstvo za okolje in prostor - MOP in organi, ki delujejo v okviru tega ministrstva. Za medministrsko koordinacijo ni nikakršnih formalnih zahtev. Zaradi tega prihaja do takšnih poskusov koordinacije spontano, predvsem na pobudo posameznikov (MOP, 1998). Državna in lokalna raven (obč ine) sta dve formalno določ eni ravni uprave. V državni A) (ENVIRONMENTAL) PROTECTIVE LEGISLATION - Environmental Protection Act and Executive Regulations - Urban Planning Act - Land Use Planning Act B) LEGISLATION CONNECTED WITH USAGE - Farmland Act - Public Roads Act - Law on fresh water fishing - Law on the construction of infrastructure, etc. C) LEGISLATION BOUND TO THE IMPLEMENTATION OF LAWS - Constitution of the Republic of Slovenia - Standing Orders of the Slovene Parliament - Public Administration Act - Local Public Administration Act - Public Services Act - Law on Public Procurement - Budgetary Memorandum, etc. The above mentioned legislation connected to water management has only been partly harmonised, which causes considerable problems to the organisation and functioning of the water management system. 4.1.2 Institutional framework (organisation) The responsibility of individual ministries is defined by the Organisation and Competence of Ministries Act, which determines that the preparation and execution of the policy, regulations, measures and the general supervision of the protection of the environment is under the competence (responsibility) of the Ministry of the Environment and Physical Planning and the bodies within the ministry. There are no formal demands for inter-ministerial co- ordination. Consequently, attempts at such co- ordination come spontaneously from individuals. State and municipal levels are two formally defined levels of administration, while a Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 30 strukturi javne uprave ni regionalne ravni. Obstaja pa 58 regionalnih upravnih enot, ki povezujejo ministrstva z lokalnimi upravnimi organi. Upravne enote opravljajo nalogo lokalne uprave. Naloga posebnega sveta je zagotavljanje sodelovanja med regionalnimi enotami MOP in lokalnimi skupnostmi. Poleg tega se z različ nimi okoljskimi vprašanji ukvarja tudi Uprava za varstvo narave, katere sektor za gospodarjenje z vodami ima osem izpostav (meje območ ij so enake mejam nekdanjih območ nih vodnih skupnosti), po eno za vsako vodno območ je; oddelek za naravo pa ima sedem regionalnih uradov, ki opravljajo nalogo tehnič nih nadzornih teles na lokalni ravni. Inšpektorat za okolje in prostor je organiziran v več regionalnih podenot s podobnim pravnim statusom: devet uradov za okoljsko inšpekcijo in dvanajst za inšpekcijo na področ ju prostorskega planiranja. Pri urejanju in izvajanju lokalnih zadev širšega interesa se lahko obč ine združujejo v regionalna združenja. Ta predpis se nanaša zlasti na opremo, ki je potrebna za varstvo okolja na regionalni ravni, npr. zbiranje odpadkov in ravnanje z odpadki ter č istilne naprave za odpadno vodo. Porazdelitev funkcij pri gospodarjenju z vodami na državni, "regionalni" in lokalni ravni je prikazana na sliki 6. Naloge posameznih ministrstev na področ ju gospodarjenja z vodami so opisane na naslednji sliki 7. 4.1 .3 Razvoj sistema institucij na področ ju gospodarjenja z vodami Na preglednici 1 podajamo kratek shematski pregled razvoja ustanov na področ ju gospodarjenja z vodami v Sloveniji od leta 1 945 do danes (Colnarič , 1 993). regional level does not exist in the governmental administrative structure. There are, however, 58 regional administrative units, which link the ministries to local administrative organs. Administrative units do the work of local administration. A special council has the task of linking the regional units of the Ministry of the Environment and Physical Planning with local communities. Different environmental issues are dealt with by the Administration of the Republic of Slovenia for the Protection of Nature as well. Its Water Management Office has eight branches (corresponding to the former borders of regional water communities, one for each region), while its Office for the Protection of Nature has seven regional branches working as technical supervisory bodies on a local level. The Inspectorate of the Republic of Slovenia for the Environment and Land Use Planning consists of nine offices for environmental inspection and twelve offices for land use planning inspection with similar legal status. Municipalities can join forces in regional associations when managing and executing local matters of wider interest. This regulation holds especially for equipment needed for the preservation of the environment on a regional level, such as collecting and handling refuse and maintaining or building waste water treatment plants. The distribution of functions in water management on a state, "regional" and local level is shown in Figure 6. The tasks of individual ministries in the field of water management are described in Figure 7. 4.1.3 Institutional development in the field of water management Table 1 presents a short schematic overview of the development of institutions in the field of water management in Slovenia since 1945 (Colnarič , 1 993). Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 31 Preglednica 1 . Kratek shematski pregled razvoja institucij na področ ju gospodarjenja z vodami v Sloveniji (Umek, 1998). Leto Institucija ali dogodek Kratek opis pristojnosti oziroma dogodka 1945 Ministrstvo za gradnje Ljudske republike Slovenije (LRS) preskrba z vodo, kanalizacija in komunalna hidrotehnika ter obnova podeželja 1947 Ministrstvo za komunalne zadeve LRS preskrba z vodo, kanalizacija in komunalna hidrotehnika ter obnova podeželja 1947 Ministrstvo za kmetijstvo melioracije in regulacije rek 1948 Komite za vodno gospodarstvo pri vladi FLRJ splošno vodenje in skrb za racionalno rabo voda in urejanje vodnega režima 1950 Komite vlade LRS za vodno gospodarstvo splošno vodenje, koordiniranje in izvajanje nalog na področ ju vodnega gospodarstva 1951 Republiški strokovni svet za vodno gospodarstvo vsestransko proučevanje in reševanje strokovnih problemov s področ ja vodnega gospodarstva 1951 Komite vlade LRS za vodno gospodarstvo priključ ena še Uprava za Hidrometeorološko službo in Uprava za regulacije in melioracije (prej pri Ministrstvu za kmetijstvo) 1952 Ustanovitev VODNIH SKUPNOSTI graditev objektov, obratov in naprav za obrambo pred škodljivim delovanjem voda oz. za skupno rabo vode, rekonstrukcije in vzdrževanje objektov 1954 Uprava za vodno gospodarstvo LRS Uprava postane samostojen republiški upravni organ za zadeve s področ ja vodnega gospodarstva 1954 Zakon o skladih za urejanje voda okrajni in mestni skladi, republiški sklad; VIR SREDSTEV: dohodki iz vodnih zemljišč , prispevki uporabnikov voda 1954 Ustanovitev vodnogospodarskih sekcij šest sekcij, določ ena delovna področ ja in naloge posameznih sekcij 1955 Imenovan Strokovni svet Uprave za vodno gospodarstvo svetovalni organ direktorja Uprave 1958 Uredba o organizaciji in delu Uprave za vodno gospodarstvo vodenje vodne knjige, katastra kvalitete voda in tehnič nega arhiva, vzpostavitev in registracija vodnih uprav, regresiranje nakupa gradbenih strojev in opreme 1963 Zakon o vodnem skladu SRS sredstva, namenjena za urejanje vodnega režima se namenjajo za graditev, vzdrževanje in obnavljanje regulacijskih in melioracijskih naprav, za urejanje hudournikov,… 1966 Zakon o vodah SRS tri vodna območ ja, obveznost izdelave VG osnov, ustanovitev sedem splošnih vodnih skupnosti kot VG organizacij, obvezno vodenje vodne knjige Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 32 1974 nov Zakon o vodah SRS pet vodnih območ ij, ustanovljene vodne skupnosti, Zveza vodnih skupnosti, VG organizacije, VG osnove, reč no nadzorna služba 1981 sprejet obstoječ i Zakon o vodah SRS samoupravni sporazumi o ustanovitvi območ nih vodnih skupnosti, predpisane naloge območnih vodnih skupnosti 1989 Zakon o določ itvi nalog, ki jih od 1.1.1990 zač asno opravljajo samoupravne interesne skupnosti (SIS-I) prenehajo z delom 1991 Zavod in Direkcija Zavod RS za varstvo okolja in vodni režim in Republiška direkcija za varstvo okolja in urejanje voda - strokovne naloge opravlja Zavod, upravne pa Direkcija 1993 Zakon o gospodarskih javnih službah razveljavljene določ be Zakona o vodah, v veljavi ostanejo določ be 2., 3., 4., 7., 1 0., 29., 33., 34., 35., 45. do 80. č lena in 86. č lena 1994 Zakon o organizaciji in delovnem področ ju ministrstev Zavod RS za varstvo okolja in vodni režim in Republiška direkcija za varstvo okolja in urejanje voda nadaljujeta delo kot Uprava RS za varstvo narave, beseda voda "izgine" iz imen upravnih in strokovnih organov Table 1. A short schematic overview of the development of institutions in the field of water management in Slovenia (Umek, 1998). Year Institution or event Description 1945 Ministry for the Construction of the People’s Republic of Slovenia (LRS) Water supply, sewers, sanitary engineering and reconstruction of rural areas 1947 Ministry of Communal Affairs of the LRS Water supply, sewers, sanitary engineering and reconstruction of rural areas 1947 Ministry of Agriculture Land improvement and river training 1948 Committee for Water Management of the Government of the FLRJ General management of justified and rational use of water and management of the water regime 1950 Committee for the Government of the LRS for Water Management General management, co-ordination and implementation of tasks in the field of water management 1951 Republic Professional Board for Water Management Comprehensive analysis and the solving of professional problems in the field of water management 1951 Committee of the Gov. of the LRS for Water Management Incorporation of the Administration for the hydro- meteorological service and administration of regulation works and land improvement 1952 Establishment of Water Boards Implementation of the construction and devices for the protection of water and the collective use of water; their re-construction and maintenance Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 33 1954 Administration for the Water Management of the LRS The Administration becomes independent administrative body for the matters of water management under the republic jurisdiction 1954 Law on Foundations for Water Management (WM) Regional and City Funds, Republic Fund, sources of financing, incomes from water, land, and contributions from water users 1954 Establishment of WM Sections Six sections determined fields of work and tasks of each section 1955 Named a professional council of the Adm. for WM Council Board of Directors 1958 Regulation on the organisation and work of the Administration for WM Water book, cadaster (register) of water quality and archives, establishment and registration of water boards, support in purchasing, mechanisation and equipment 1963 Law on the Water Foundation of SRS Funds at disposal for water management, water regimes, construction, maintenance, restoration of river training works, amelioration works, torrents 1966 Water Act of SRS Three WM areas, obligation for the preparation of WM baselines (River Basin Characteristics), establishment of 7 general water associations, water book 1974 New Water Act of SRS Five administrative regions, Regional Water Associations, Association of Water Associations, WM enterprises, WM baselines, service for the supervision of rivers 1981 Adopted existing Water Act of the SRS Self-governmental agreements on the establishment of regional water associations, their tasks … 1989 Law on the determination of tasks performed temporarily from 1.1.1990 Self-governing communities established on the basis of the Water Act of ’81 cease to exist 1991 Institute and Directorate Institute of the RoS for the protection of the water regime, State directorate for the protection of the environment and the administering of water. Professional tasks – Institute, administrative tasks – Directorate 1993 Law on Public Services Abolishment of all provisions of the Water Act except articles 2., 3., 4., 7., 10., 29., 33., 34., 35., 45. to 80., and 86. 1994 Law on the Organisation and Working Areas of the Ministries The Institute and Directorate are transformed into the Administration for the Protection of Nature The term water “disappears” from the names of professional and administrative state bodies Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 34 USTAVA RS DRŽAVNI ZBOR VLADA RS MOP OSTALA MINISTRSTVA Zakoni Resolucija o Strategiji VG Poslovnik DZ Podzakonski akti ZAKONODAJNI NIVO V E R T I K A L N O P O R O Č I L O DRŽAVNI IZVRŠILNI NIVO DRŽAVNI UPRAVNI NIVO Urad za prostorsko planiranje Uprava za varstvo narave Hidrometeorološki zavod Inšpektorat za okolje in prostor Izpostave UVN REGIONALNI UPRAVNI NIVO Javne vodnogospodarske službe REGIONALNI IZVEDBENI NIVO UPRAVNE ENOTE Gradbeni oddelek Inšpekcijske službe ………. DRŽAVNA UPRAVA - IZPOSTAVE OBČ INE Javne gospodarske službe Komunalna podjetja LOKALNA SAMOUPRAVA Slika 6. Porazdelitev funkcij pri gospodarjenju z vodami na državnem, regionalnem in lokalnem nivoju (Umek, 1998). Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 35 CONSTITUTION PARLIAMENT GOVERNMENT RS MEPP other ministries legislation, strategy, policy issues by-laws LEGISLATIVE LEVEL STATE EXECUTIVE LEVEL STATE ADMINISTRATIVE LEVEL Office for physical planning Nature Protection Auth. (NPA) Hydrometeorological inst. Inspectorate Local units of the NPA Regional administrative level Public WM services Regional executive level Administrative units Construction dept. Inspection services. ………. State administration - local units (58) municipialities Public services - municipial enterprises Local governments V E R T I C A L R E P O R T Figure 6. The distribution of functions in water management on a state, regional and local level (Umek, 1998). Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 36 Slika 7. Porazdelitev funkcij v sistemu gospodarjenja z vodami med ministrstvi (Umek, 1998). G O S P O D A R J E N J E Z V O D A M I Ministrstvo za delo, družino in socialne zadeve štipendiranje in poklicno izobraževanje, trajno izobraževanje, zagotavljanje minimalnih pogojev socialno ogroženim Ministrstvo za ekonomske odnose in razvoj nacionalni in regionalni razvoj, koordinacija ministrstev, spodbujanje razvoja nevladnih organizacij, makroekonomski uč inki gospodarjenja z vodami Ministrstvo za finance davki, prispevki, takse in drugi javni prihodki, prorač un Ministrstvo za gospodarske dejavnosti razvoj in pospeševanje gospodarstva, energetska politika, programi za uč inkovito rabo energije Ministrstvo za kmetijstvo, gozdarstvo in prehrano ribištvo, namakanje, osuševanje, akumulacije, onesnaževanje s hranivi, sonaravno kmetovanje Ministrstvo za kulturo varovanje kulturne dedišč ine (kulturna krajina) Ministrstvo za obrambo sistem zašč ite in reševanja (interveniranje) v primeru poplav, suš, izbruhov plavin Ministrstvo za okolje in prostor gospodarjenje z vodnimi viri, vzdrževanje vodotokov, takse za odpadne vode, monitoring okolja in pojavov, varstvo voda, inšpekcijske službe, informacijski sistem Ministrstvo za pravosodje zemljiški kataster, sankcioniranje prekorač itev in kršitev (prekrški), kazni Ministrstvo za promet in zveze plovba na morju, jezerih in rekah, emisije iz prometnic Ministrstvo za šolstvo in šport izobraževanje na področ ju rabe vodnih virov Ministrstvo za zdravstvo kontrola kvalitete pitne vode, zdravstveno ekološke problematike, ravnanje z odpadki Ministrstvo za znanost in tehnologijo podiplomsko izobraževanje, raziskave, znanstveno sodelovanje Ministrstvo za zunanje zadeve multilateralni in bilateralni odnosi z državami, mednarodne organizacije Ministrstvo za notranje zadeve organizacija in delovanje upravnih organov, delovna razmerja v državni upravi, nadzor nad izvajanjem predpisov v upravnem postopku Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 37 Figure 7. The distribution of water management functions among the ministries (Umek, 1998). W A T E R M A N A G E M E N T Ministry of Work,Family and Social Affairs scholarships, professional education Ministry of Economic Relationships and Development national and regional development, coordination of ministries, encouraging the development of the NGOs Ministry of Finance taxes, contributions, fees, duties, and other public income, budget Ministry of Economic Affairs development and support to industry, energy sector, efficient energy use Ministry of Agriculture,Forestry and Food fisheries, irrigation, drainage, reservoirs Ministry of Culture protection of cultural heritage Ministry of Defence System of protection and necessary measures in the case of flooding Ministry of Environment and Physical Planning water resources management, watercourse maintenance, taxation of emissions, monitoring of the environment, protection of waters, inspectorate, information system Ministry of Justice land register and land ownership register Ministry of Traffic and Communication road traffic – crossings with bodies of water, sea navigation, river and lake navigation Ministry of Education and Sports education Ministry of Health Service drinking water quality supervision, quality of human environment Ministry of Science and Technology post-graduate education, research, scientific cooperation Ministry of External Affairs bilateral and multilateral cooperation with states and international organisations Ministry of Internal Affairs organisation and work of administrative bodies, employment in the state administration, supervision of the performance of provisions in the state administrative procedure Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 38 4.1 .4 Nač rtovanje v vodnem gospodarstvu V Zakonu o vodah je bilo poglavje PLANIRANJE v celoti razveljavljeno. Zato je na tem področ ju ostala velika praznina in veliko nerazč iščenih vprašanj, sistemu gospodarjenja z vodami pa je bila povzroč ena velika škoda. Postavlja se vprašanje, ali planiranje kot temeljni instrument gospodarjenja z vodami s pravnega vidika sploh še obstaja. Kljub "pravni praznini" pa Zakon o urejanju prostora (Ur. list SRS št 18/94, 15/89 in Ur. list RS št. 71/93) zahteva, da so v prostorskih vsebinah opredeljene temeljne usmeritve in globalna zasnova dejavnosti v prostoru. Te se med drugim nanašajo tudi na pomembnejše vodne vire ter pomembnejša omrežja in naprave za oskrbo s pitno in tehnološko vodo ter za odvajanje in č išč enje odplak. Planske vsebine, ki sicer pomanjkljivo, pa vendarle do določene mere obdelujejo vprašanja gospodarjenja z vodami, se nahajajo v prostorskih sestavinah, kjer mora biti določ ena tudi globalna zasnova namenske rabe, zlasti za: - pomembnejša območ ja kmetijskih zemljišč in gozdov, območ ja za raziskovanje in pridobivanje rudnin, območ ja pomembnejših vodnih virov ter območ ja naravnih znamenitosti in kulturnih spomenikov, - pomembnejša območ ja za poselitev in na njih območja z večjo koncentracijo proizvodnih dejavnosti, - pomembnejša območja za turizem in rekreacijo, nevarna in ogrožena območ ja, pomembnejša območ ja za potrebe splošne ljudske obrambe, - območ ja odlagališč nevarnih in zdravju škodljivih snovi, - pomembnejše vodnogospodarske ureditve - varovanje in razvoj krajinskih vrednot na ozemlju celotne republike Slovenije. Vendar Zakon o urejanju prostora na področ ju vodnogospodarskega planiranja ne more nadomestiti Zakona o vodah. Postavlja pa se vprašanje, kako se vključ evati v proces prostorskega nač rtovanja, č e so temeljnemu zakonu, ki določ a pogoje za gospodarjenje z 4.1.4 Water resources planning The water management system suffered a major setback, as, in 1993, a Law on public services completely annulled the articles on planning in the Water Act, thereby leaving a huge void and many unresolved questions. The question of whether planning as a basic instrument for water management exists from a legal viewpoint at all could therefore be asked. Despite this "legal void" the Land Use Planning Act (OG of SRS 18/84,15/89 and OG 71/93) requires that land use include some basic orientations and a global design for land activities. Those requirements include important sources of water, important waterworks and devices for supplying drinking and surface water, as well as wastewater treatment plants, among other things. Planning demands, although they inadequately deal with questions of water management, are included in land use planning where a global design for intentional use must be specified, especially for: - more important areas of farmland and forests, areas for mineral research and extraction, areas of more important water sources and areas of natural and cultural importance - more important areas for settlement and on them areas with a larger concentration of manufacturing activities - more important tourist and recreational areas, dangerous and endangered areas, areas important for military defence - dumping areas for dangerous and hazardous substances - more important water resources industrial developments - the protection and development of regional values throughout the territory of the Republic of Slovenia. The Land Use Planning Act, however, cannot cover the water management planning needs that should be formalised in the Water Act. The question arises, therefore, how to have water management planning included in the process of land use planning if the basic law which determines the conditions for Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 39 vodami, črtali zelo pomembno poglavje? Trenutno stanje na zakonodajnem področ ju je takšno, da drugi zakoni dopušč ajo (in celo zahtevajo) vključ evanje "vodarske" stroke pri pripravi različ nih dokumentov na različ nih nivojih nač rtovanja, sam Zakon o vodah pa ne vsebuje več nobenega določ ila, ki bi to omogoč al (Umek, 1 998). 4.2 RAZPOLOŽLJIVOST IN (PO)RABA VODE Na ozemlju Slovenije, ki meri 20.230 km 2 površine, pade letno v povpreč ju okoli 1 500 mm padavin, oziroma 1.005 m 3 /s ali 31.693.680.000 m 3 vode. Od tega izhlapi letno v povpreč ju 650 mm, oziroma 41 7 m 3 /s ali 13.150.512.000 m 3 vode, kar predstavlja 41,5 %. Glede na to odteč e iz ozemlja Slovenije v povpreč ju 588 m 3 /s ali 18.543.168.000 m 3 vode. Slovenija ima razmeroma bogate zaloge podzemne vode, ki pa je neenakomerno porazdeljena. Skupna bilanca vodnih količ in podzemnih voda v Sloveniji znaša cca. 43,8 m 3 /s. Vendar se kažejo velike razlike v prostorski razporeditvi razpoložljive podzemne vode. Ocenjuje se, da je od teh voda v kritič nih obdobjih na voljo le 38 m 3 /s, kakovost te vode pa je vedno bolj vprašljiva. Poraba pitne vode v Sloveniji dosega približno 1 6,5 m 3 /s, torej izkorišč amo že blizu 43 odstotkov rezerv podtalnih voda. Za oskrbo prebivalstva porabimo približno 7,0 m 3 /s zajetih pitnih voda, ostalo pa porabi industrija in drobno gospodarstvo (MOP, 1998). Pomanjkanje sistemskih in ekonomskih instrumentov, s katerimi bi uravnavali razmerje med ceno vode in možnostmi ter vrednostmi vodooskrbnih sistemov, vnaša v sisteme upravljanja in financiranja oskrbe z vodo napake, ki omogočajo neracionalna ravnanja s pitno vodo. Lahko bi zaključili, da razpoložljive količ ine zadošč ajo trenutnim količ inskim in kvalitativnim potrebam po vodi. Vendar se razmerje med potrebami in razpoložljivimi količinami, brez ustrezne politike in nač rtovanja v gospodarjenju z vodami, lahko poslabšajo predvsem v kvalitativnem pogledu, managing waters has had some very important articles annulled. The current condition is that other laws allow, and indeed demand, the inclusion of "water" experts in preparing various documents on different levels of planning, while the Water Act does not include any provisions which would enable that (Umek, 1998). 4.2 AVAILABILITY AND USES OF WATER The annual rainfall in Slovenia, which measures 20,230 km 2 , is around 1500 mm, which is 1,005 m 3 /s or 31,693,680,000 m 3 of water. The annual level of evaporation is 650 mm, which is 417 m 3 /s or 18,543,168,000 m 3 of water. Slovenia has relatively large underground water resources, which, however, are not equally allocated. The total volume of water is approximately 43.8 m3/s. Large differences exist, furthermore, in the allocation of usable underground water. Estimates show only 38 m3/s in critical periods and its quality is becoming more and more questionable. The average use of drinking water in Slovenia is 16.5 m3/s, which is close to 43% of the underground water reserves. Inhabitants use approximately 7.0 m3/s of allocated drinking water and the rest is used by industry and small businesses. (The Ministry for the Environment and Physical Planning, 1998). The lack of a system and economic tools which would balance the ratio between the cost of water and the possibilities and value of systems for supplying water hampers the proper functioning of systems for managing and financing the supply of water. This leads to the irrational management of drinking water. We could say that such quantities suffice for the current quantitative and qualitative needs for water. The ratio between demand and available sources can deteriorate, however, without suitable policy and planning in water management. The quality of water, Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 40 kar nazorno prikazujejo kvalitativna poroč ila in raziskave. Nujno potrebna je tudi sanacija obstoječ ih vodooskrbnih sistemov, predvsem v zmanjševanju izgub vode in v spodbujanju industrije k izkorišč anju vodnih virov, ki niso namenjeni vodooskrbi. Razmerje med porabo vode v industriji in kmetijstvu se bo v bližnji prihodnosti povečalo v prid kmetijstvu, predvsem zaradi potreb po vodi za namakanje. Te pa se na vododeficitarnih območ jih, kljub dopolnilni naravi namakanja, brez zadrževalnikov in več jih posegov v prostor ne bo moglo zagotoviti. Vse sedanje potrebe po vodi so splošne narave, zato se bo v prihodnosti potrebno posvetiti tudi posebnim potrebam po vodi, kot so: potrebe, ki se nanašajo na varstvo narave, rekreacijo, privlač nost pokrajine in okolja itd. 4.3 JAVNI IN ZASEBNI DEJAVNIKI IN NJIHOVA VLOGA NA RAZNIH RAVNEH NAČ RTOVANJA IN GOSPODARJENJA Z VODAMI Glavne naloge nač rtovanja in gospodarjenja z vodami so določ ali razveljavljeni deli še veljavnega Zakona o vodah. Ti so določ ali izdelavo strokovnih podlag za nač rtovanje gospodarjenja z vodami, in sicer na podlagi izdelave vodnogospodarskih temeljev in planov vodnega gospodarstva. Pomembno vlogo v sistemu nač rtovanja so imele vodne skupnosti, katerih naloge so bile: - sprejemanje planskih aktov za določ anje in izvajanje vodnogospodarske politike na vodnem območ ju, - skrb za varnost pred škodljivim delovanjem voda, sprejemanje ukrepov za obrambo pred poplavami, za vzdrževanje, rekonstrukcijo in graditev vodnogospodarskih objektov in naprav v splošni rabi ter za vzdrževanje vodotokov, spodbujanje in usmerjanje graditve vodnogospodarskih objektov in naprav v posebni rabi, - skrb za ohranitev vodnih količ in in zalog na vodnem območju, spodbujanje in sodelovanje pri graditvi zbiralnikov in especially, can deteriorate, which can be clearly seen from the reports and research on quality. The existing water supply systems are in dire need of repair, especially concerning reducing the loss of water and stimulating industry to exploit water resources not meant for the drinking water supply. Agriculture will, due to irrigation, soon consume more water than industry. But that water will not be available in water deficient areas without reservoirs and other major interventions. All of the current needs for water are of a general nature, so we will have to be careful to devote some attention to specific needs such as protecting nature, recreation, the appeal of a certain landscape and the environment, etc. 4.3 PUBLIC AND PRIVATE ACTORS AND THEIR ROLES ON VARIOUS LEVELS OF WATER MANAGEMENT PLANNING The main task of water planning and management were determined by the invalidated parts of the still valid Water Act. These determined the requirements for the preparation of the supporting documentation for the water management decision making in the form of River Basin characteristics and plans for water management. An important role in the planning system was played by the water communities, their tasks being: - the adoption of plans for determining and implementing water management policy in the water areas - security concerning the harmful effects of water, the adoption of measures for flood control; the maintenance, reconstruction and building of water management structures and installations in general use and the maintenance of watercourses; the stimulation and guidance of the development of water management structures and installations for specific use - concern for the preservation of water supplies and resources in the water areas; stimulation of and co-operation in the construction of reservoirs and other structures that enable a permanent level of Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 41 drugih objektov, ki omogoč ajo trajnejše zadrževanje voda in bogatenje podtalnice, sodelovanje pri odkrivanju vodnih virov in graditev javnih in drugih vodooskrbnih naprav, - skrb za varstvo kakovosti voda in vodnih zalog, izvajanje ukrepov za izboljšanje kakovosti voda, spodbujanje in sodelovanje pri graditvi objektov in naprav za varovanje voda pred onesnaženjem, - zagotavljanje sredstev za urejanje vodnega režima, - sodelovanje pri izdelavi obč inskih predpisov s področja vodnega gospodarstva in pri vseh vodnogospodarskih vprašanjih ter - opravljanje drugih zadev v zvezi z urejanjem vodnega režima na vodnem območ ju. Vendar je bilo tudi poglavje Zakona o vodah, ki je določ alo pristojnosti in naloge vodnih skupnosti, razveljavljeno. S tem je vodnogospodarsko načrtovanje izgubilo »temelje«, saj je prenehala obstajati ustanova, ki je bila odgovorna za celostno nač rtovanje na vodnem območju. Danes del teh nalog opravlja Uprava RS za varstvo narave, pomemben del načrtovanja na vodnem območju, to je sodelovanje z lokalnimi skupnostmi, pa je ostal nerešen (Umek, 1998). V procese nač rtovanja in gospodarjenja z vodami so posredno ali neposredno vključ eni naslednji dejavniki - akterji: - nacionalne in regionalne upravne ustanove (Uprava RS za varstvo narave, Uprava RS za zašč ito in reševanje, Uprava RS za pomorstvo itd.), - nacionalne in regionalne javne strokovne in raziskovalne ustanove (javne vodno- gospodarske službe pri vodnogospodarskih podjetjih, Vodnogospodarski inštitut, FGG-Hidrotehnična smer, Inštitut za hidravlič ne raziskave itd.), - javne gospodarske službe - komunalna podjetja, podjetja za preskrbo s pitno vodo, - javne in zasebne gospodarske in water and the stabilization of ground water levels; co-operation in discovering water sources and the construction of public and other water supply installations - concern for the preservation of the quality of water and water resources; the implementation of measures for the improvement of water quality; the stimulation of and co-operation in the construction of structures and installations for the protection of waters from pollution - securing the means for the regulation of the water system - co-operation in the preparation of municipal regulations in the area of water management and all water management issues - the settling of other affairs concerning the regulation of the water system in the water area However, the article of the Water Act that determined the jurisdictions and tasks of the water communities was invalidated too. Thereby, water management planning lost its foundations, since the institution in charge of the integrated planning in the water area ceased to exist. Part of these tasks are now performed by the Administration of the Republic of Slovenia for the Protection of Nature, but an important part of planning in the water area, co-operation with the local communities, has been left unsolved (Umek, 1998). Directly or indirectly included in the processes of water management and planning are the following factors and institutions: - national and regional administrative institutions (the Administration of the Republic of Slovenia for the Protection of the Nature, Administration of the Republic of Slovenia for Civil Protection and Disaster Relief, the Maritime Transport Administration of the Republic of Slovenia, etc.) - national and regional public expert and research institutions (public water management services in the water management companies, the Water Management Institute, the Faculty of Civil Engineering and Geodesy - the Department of Hydrology and Hydraulic Engineering, the Institute for Hydraulic Research, etc.) - public companies - communal companies, companies for the supply of drinking water Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 42 negospodarske organizacije, - lokalne skupnosti (obč ine, mestne obč ine), - javnost, gospodarska in strokovna združenja in nevladne organizacije. 4.4 GLAVNE NALOGE NAČ RTOVANJA IN GOSPODARJENJA Z VODAMI 4.4.1 Določ anje politike V letu 1 991 se je zač ela priprava Strategije vodnega gospodarstva Slovenije (Steinman et al., 1993). Temeljni nameni v procesu izdelave so bili naslednji: - izdelati ključ no podlago za pripravo nove zakonodaje, - uskladiti cilje gospodarjenja z vodami, - uveljaviti instrumentarije, ki bi zagotovili varovanje vodnega bogastva in njegovo smotrno rabo in - predstaviti sektorski dokument za enakopravno vključevanje vodnega gospodarstva v dejavnosti slovenske družbe, vzporedno z drugimi sektorskimi strategijami. Izrecno je bilo poudarjeno, da ni obdelano poglavje rabe in izrabe voda, saj takrat niso bili znani širši razvojni cilji republike Slovenije (Strategija gospodarskega razvoja Slovenije je bila pripravljena šele leta 1995). V č asu nastajanja vodnogospodarske strategije tudi drugih sektorskih strategij še ni bilo, temveč so nastajale istoč asno oziroma kasneje. Posamezni sektorski dokumenti so nastajali loč eno drug od drugega, zato bi v teh dokumentih zaman iskali naslonitev na problematiko voda - oč itno so upoštevali, da pokriva problematiko voda sektorska, to je vodnogospodarska strategija. Na izdelan osnutek vodnogospodarske strategije je bila že znotraj sektorja Ministrstva za okolje in prostor, pristojnega za vode, podana vrsta pripomb, tako s strani recenzentov kot s strani uslužbencev resorne državne uprave. Pokazalo se je, da je nujno - public and private companies and services - municipalities and city communities - the public, business and expert associations and non-governmental organisations. 4.4 MAIN FUNCTIONS IN WATER PLANNING AND MANAGEMENT 4.4.1 Policy making In 1991 the preparation of the Water Management Strategy (Steinman et al., 1993) was initiated in Slovenia. The basic goals of the process were as follows: - to establish a key foundation for the preparation of new legislation - to harmonise the goals of water management - to promote the implementation of instruments that would ensure the preservation and reasonable use of water resources - to introduce a sectional document on the equal incorporation of water management into the activities of Slovene society, in parallel with other sectional strategies. It was specifically emphasised that the chapter on the use of water resources is not treated since the broader Slovene development goals were not yet known (The Strategy of Economic Development was not formed before 1995). In the period of the formation of the water management strategy, other sectional strategies had not yet been made; they were either being made concurrently or at a later stage. The individual sectional documents were being made separately; therefore, there are no references to the water issues; it was apparently taken into account that the water issues are covered by the sectional , i.e.: water management strategy. Several annotations were received by the water sector of the Ministry of the Environment and Physical Planning concerning the water management strategy draft, from the reviewers, as well as from the employees of the competent administration. Consequently, it is imperative to clear up the Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 43 potrebno v sami vodnogospodarski stroki razjasniti temeljne dileme. Ena od tipič nih znač ilnosti podanih pripomb je izvirala iz dejstva, da se tudi sam pojem vodno gospodarstvo različno razumeva, podobne razlike pa nastopijo tudi pri vodnogospodarskem načrtovanju in razumevanju širše vloge vodnega gospodarstva. Od izdelanega osnutka vodnogospodarske strategije do danes je minilo sedem let. V tem času nismo dobili nobenega politič no potrjenega dokumenta, ki bi se ukvarjal z gospodarjenjem z vodami, zaman pa smo č akali tudi na novi Zakon o vodah. Vendar pa strokovna javnost v tem č asu ni mirovala. Izdelanih in napisanih je bilo precej nalog in strokovnih prispevkov, ki so se posredno in neposredno ukvarjale s tematiko gospodarjenja z vodami. Tako so bile v letu 1997 na Hidrotehničnem odseku Fakultete za gradbeništvo in geodezijo izdelane strokovne podlage za Koncept gospodarjenja z vodami, v letu 1998 pa Strokovne podlage za spremembe in dopolnitve prostorskih sestavin planskih aktov na ravni države. Prav tako v letu 1998 so na Vodnogospodarskem inštitutu v Ljubljani izdelali nalogo Vodnogospodarski nač rt povodja (Načrtovanje v vodnem gospodarstvu). 4.4.2 Vodnogospodarsko nač rtovanje Vodnogospodarsko nač rtovanje je v tesni povezavi s politiko gospodarjenja z vodami. Že iz vsebine prejšnje točke pa lahko ugotovimo, da politike gospodarjenja z vodami pravzaprav nimamo. Tudi trenutno stanje na zakonodajnem področ ju je takšno, da drugi zakoni dopuščajo (in celo zahtevajo) vključ evanje "vodarske" stroke pri pripravi različ nih dokumentov na različ nih ravneh nač rtovanja, sam Zakon o vodah pa ne vsebuje več nobenega določ ila, ki bi to omogoč al. Zakon o vodah (Uradni list SRS 38/81) je v 41 . č lenu določ al izdelavo vodnogospodarskih osnov. Vodnogospodarske osnove so bile basic dilemmas of the water management field itself. One of the typical characteristics of the annotations stems from the fact that the term water management is understood in different ways (water management v.s. water administery) and similar differences arise in water management planning and the understanding of the broader role of water management. (The Slovenian language does not specifically have a corresponding translation for the word “management”.) It has been seven years since the Water Management Startegy Draft was completed. Since then there has been no officially verified document dealing with water management and the new Water Act has not been adopted either. The experts in the field have not rested, however. Several papers and articles have been written dealing directly or indirectly with the issues of water management. Expert grounding for the Concept of Water Management was carried out in the Hydro- technical Department of the Faculty of Civil Engineering and Geodesy in 1997, and in 1998 the expert grounding for the changes and supplementation of the land use planning components of the planning documents on the national level were also carried out. Furthermore, a research paper was completed in 1998 at the Water Management Institute in Ljubljana entitled The Water Management Plan of the Water System (Planning in Water Management). 4.4.2 Water management planning Water management planning is closely connected to the policy of water management. But, as is evident from the previous point, policy in water management is virtually non existent. The present state in the legislative field is such that other laws allow for (and even demand) the inclusion of the water field of expertise in the drafting of various documents at different levels of planning, yet the Water Act does not include a provision that would enable that. Annuled Article 41. of the Water Act (O.G. SRS 38/81) provided for the formulation of the water management bases that were an expert foundation for the drafting of the planning Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 44 strokovna podlaga za sestavo planskih aktov. Prav tako so na podlagi prikaza danosti vodnega režima v povodju in č asovnem obdobju dajale izhodišča in možnosti prihodnjega vodnogospodarskega razvoja. V območnih vodnih skupnostih so izdelovali tudi plane vodnih skupnosti, ki so bili podlaga za izvajanje vodnogospodarskih dejavnosti v povodjih, pri njihovi izdelavi pa so sodelovali tako uporabniki kot izvajalci. Kako temeljito so bile nekatere zadeve predpisane, bi lahko pokazala analiza, ki bi vsebino predpisanih Vodnogospodarskih osnov in prihodnjega Nač rta gospodarjenja s poreč ji primerjala s smernicami Evropske zveze. 4.5 POMEMBNEJŠE SMERNICE PRI NAČ RTOVANJU IN GOSPODARJENJU Z VODAMI Smernice nač rtovanja in gospodarjenja z vodami bo natančneje podal Program gospodarjenja z vodami v RS, od novega Zakona o vodah pa prič akujemo, da bo upošteval evropske smernice in smernice razvoja na področ ju gospodarjenja z vodami, predvsem pa Direktivo Sveta evropske skupnosti (Komisija EZ, 1998), ki podaja podlago za ukrepe na področju enotne (skupne) politike do voda. Na splošno bi lahko smernice opisali takole: Razvoj nacionalne politike gospodarjenja z vodami po povodjih mora zagotoviti: - celostno gospodarjenje z vodami, - jasno strukturo ustanov upravljanja, - učinkovito podporo monitoringa in informacijskih sistemov. Razvoj ekonomike gospodarjenja z vodami mora postopno zagotoviti: - plač ilo za rabo vode - voda je ekonomska kategorija, - namensko združevanje sredstev za pokrivanje posebnih stroškov zaradi rabe vode posameznih uporabnikov (kar izhaja iz vode, se vrač a v vodo), acts. On the basis of the representation of the natural potentials of a water system in a watershed within a given time frame, they also provided starting points and possibilities for the future development of water management. In the regional water communities, plans for water communities (existing until 1989) were also being made, which were the basis for the execution of water management activities in the watersheds, with both users and contractors co-operating in the formulation of the plans. How strictly some issues were provided for could be shown by an analysis comparing the contents of the prescribed River Basin Charactersitics and the future River Basin planning system prescribed by the European Union Directives. 4.5 RELEVANT TRENDS IN WATER PLANNING AND MANAGEMENT The guidelines for water management and planning will be more precisely provided in the Programme of Water Management in the Republic of Slovenia. The new Water Act is also expected to consider the European guidelines, the developments in the field of water management and especially the EU Council Directive (European Commission, 1998) which provides a basis for measures in the field of common water policy. In general, the guidelines can be described as follows: The development of the national water management policy in watersheds has to guarantee: - an integrated approach to water management - a clear structure of administrative institutions - efficient monitoring and information system support The development of water management economics has to gradually guarantee: - payment for the use of water - water is an economic category - the earmarked pooling of funds to cover special expenses arising from the use of water by individual users (what comes from water goes back to water) - the efficient and reasonable use of water becoming an economic stimulation to Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 45 - uč inkovito in smotrno rabo voda, ki postaja ekonomska spodbuda razvoja. Razvoj mehanizmov in ustanov za poveč anje nadzora izvajanja programa gospodarjenja z vodami mora zagotoviti: - jasno delitev pristojnosti, obveznosti in urejenosti financiranja, - usposobljenost za ugotavljanje smernic, nač rtovanja in programiranja ukrepov, - učinkovit inšpekcijski nadzor ter spremljanje izvajanja in uč inkovitosti izvedbenih dejavnosti ter - prekomejno in meddržavno sodelovanje pri reševanju vodnogospodarske problematike. Državne upravne ustanove Republike Slovenije, še posebej MOP, se premalo zavedajo pomembnosti pospeševanja in razvijanja instrumentov za izvajanje gospodarjenja z vodami, saj je nerazumljivo, da se tako zavlač uje sprejem Zakona o vodah. Poleg tega se država oč itno umika iz sistema gospodarjenja z vodami, saj prodaja svoje lastniške deleže v vodnogospodarskih podjetjih (v njih bo v več ini primerov ostala udeležena s približno 25 odstotki) za potrebe "zapolnitve privatizacijske luknje". Na tem mestu pa moramo omeniti še naslednje: Leta 1996 je bil izveden prenos vodnogospodarskih objektov in naprav v splošni rabi, katerih lastniki so bila vodnogospodarska podjetja, v državno zakladnico. Pred izvedbo prenosa teh sredstev so bili objekti knjiženi kot osnovno sredstvo vodnogospodarskih podjetij, ki so z objekti gospodarili. To pomeni, da so jih vzdrževali in zanje odvajali tudi amortizacijo. S prenosom lastništva na državno zakladnico (ocenjena vrednost objektov je okoli 100 milijard tolarjev) pa ni bila zagotovljena kontinuiteta gospodarjenja, saj država ni določ ila, kdo je odgovoren za gospodarjenje. Zaradi vseh v nalogi naštetih težav pri gospodarjenju z vodami je torej res že skrajni č as, da dobimo nov Zakon o vodah. Ta mora podati celovit pravni okvir za gospodarjenje z vodami. Poleg tega pa bo podlaga za potrebne pomembne odloč itve v zvezi z odvzemi voda, preskrbe z vodo, varovanjem vodnih virov, development The development of mechanisms and institutions to increase control of the execution of the management programme has to guarantee: - a clear division of jurisdiction, obligations and financial arrangements - the qualifications for establishing guidelines, planning and the programming of measures - efficient inspection control and the monitoring of the execution and efficiency of the work carried out - inter-regional and international co- operation in the solving of water management issues The state administration institutions of the Republic of Slovenia, especially the Ministry of the Environment and Physical Planning, are not fully aware of the importance of the acceleration and development of the instruments that would enable the carrying out of water management and it is incomprehensible that the adoption of the new Water Act has been so delayed. Furthermore, the state is apparently withdrawing from the water management system, since it is selling its ownership shares in the water management companies (its ownership share will in most cases be 25%), to fill the privatisation gap. The following also needs to be mentioned at this point: in 1996, the water management infrastructure in public use, the owners of which were the water management companies, was transferred to the state treasury. Before the completion of the transfer of these resources, the infrastructure was accounted for as the basic property of the water management companies that administered the infrastructure. This means that the companies both maintained and covered the maintenance costs. With the transfer of ownership to the state treasury (the estimated value of the infrastructure is around 100 billion tolars, i.e.:approx. 1,3 billion DEM in 1996), the continuity of management was not ensured, because the state has not determined who is responsible for the management. Due to all the above-mentioned problems in water management, it is high time to adopt the new Water Act. It must establish an integrated legal framework for water management. In addition, it will present the basis for important decisions concerning obtaining water, water Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 46 rabo vode in nadomestil, ki se nanašajo na rabo voda ter drugih finanč nih virov za smotrno gospodarjenje z vodami. Zakonu naj bi sledili še ostali podzakonski predpisi, ki naj bi "varovali" vode pred različ nimi oblikami onesnaženja. Pomemben del zakona bo moral biti namenjen tudi ustanovam in službam, ki bodo delovale na področ ju gospodarjenja z vodami. Celotna vizija reševanja dolgoroč nih problemov gospodarjenja z vodami je naloga vlade. Da bi lahko pripravili dolgoroč en program, je pomembno določ iti cilje, prioritete in sredstva za izvajanje programa. Razvoj primernega politič nega okvira za gospodarjenje z vodami je treba dopolniti z ustreznimi organizacijskimi ukrepi. Kljub obstoju (regionalnih) izpostav je koordinacija med državno in lokalnimi ravnmi težavna. Mogoč e bi bilo koristno, č e bi bila urejena formalna regionalna upravna struktura. Planski oddelek v okviru MOP ni dovolj moč an, da bi lahko koordiniral postopke bodisi z drugimi ustanovami MOP ali z vsako od osmih izpostav. Nekdanja Zveza vodnih skupnosti Slovenije je imela poseben planski oddelek za vodnogospodarsko načrtovanje, katerega temeljna naloga je bila, da v skladu s takratnim družbenim planiranjem pripravlja srednjeroč ne in dolgoroč ne plane ter letne plane. Planski oddelek je bil organiziran tako, da je bil sposoben organizirati delo in postaviti cilje ter da je znal zagovarjati predvidene rešitve (posege), izdelavo nač rtovalskih (planskih) nalog in strokovnih podlag, planske dokumente pa je zaupal izvajalskim organizacijam. 4.6 SPLOŠNA OCENA INSTITUCIONALNEGA SISTEMA NAČ RTOVANJA IN GOSPODARJENJA Z VODAMI Prednosti in pomanjkljivosti obstoječ ega sistema nač rtovanja in gospodarjenja z vodami bodo v tem poglavju podane samo taksativno (T. Umek, 1998). supply, the protection of water sources, water use and compensations related to water use, and other financial sources for reasonable water management. The Act is to be followed by other executive regulations that are supposed to "protect" the waters from pollution. An important part of the Act should also be designed for institutions and services that will operate in the field of water management. The whole vision of the solution of long term issues of water management is a task for the government. In order to prepare a long- term programme it is important to establish the goals, priorities and means to execute the programme. The development of a suitable political framework for water management needs to be supplemented by a ppropriate organisational measures. Although (regional) administrations exist, co-ordination between the state and the local levels is difficult. It may be useful to have a well-regulated formal regional administrative structure. The planning department of the Ministry of the Environment and Physical Planning is not powerful enough to co-ordinate the procedures, not with other institutions in the ministry, nor with each of the eight branch offices. The former Association of Water Communities of Slovenia had a special planning department for water management planning, the primary function of which was to prepare long-term and annual plans in accordance with the then existing social planning. The planning department was organised in such a way that it was capable of organising work and setting the goals, and was able to defend the proposed solutions (interventions), formulate the planning tasks and expert foundation, but entrusted the preparation of the planning documents to contracted organisations. 4.6 A GENERAL ASSESSMENT OF THE INSTITUTIONAL SYSTEM OF WATER PLANNING AND MANAGEMENT In this chapter the advantages and disadvantages of the existing water management and planning system will be listed in detail. Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 47 4.6.1 Najpomembnejše prednosti obstoječ ega sistema Med bistvene splošne prednosti, ki so predvsem rezultat učinkovitega delovanja neokrnjenega obstoječega sistema v preteklosti, lahko prištevamo: - s pitno vodo iz javnih vodooskrbnih sistemov je preskrbljenih 77 odstotkov prebivalcev, - pitna voda iz javnih vodooskrbnih sistemov je redno kontrolirana (kontrola kakovosti) in v večini primerov sprejemljive kakovosti, - zaradi premajhnih sredstev za vzdrževanje vodotokov so ti ostali več inoma blizu naravnega stanja, - kakovost nekaterih voda se je v zadnjih letih celo izboljšala, vendar predvsem zaradi ekonomskih težav več jih onesnaževalcev, - organizirana mreža hidroloških in meteoroloških opazovanj z obsežnimi bazami podatkov, - delovanje nevladnih organizacij v okoljevarstvenem in naravovarstvenem ozavešč anju javnosti, - obvezno in dejavno vključ evanje ribiških družin v vzdrževanje vodotokov. Prednosti obstoječega institucionalnega sistema so: - obstoj regionalnih izpostav Uprave za varstvo narave, ki je pristojna za vode, v mejah posameznih vodnih območ ij, - obstoječ sistem organizacije in delovanja javnih vodnogospodarskih služb, - dolgoletna tradicija delovanja vodnogospodarskih podjetij, kar se kaže v strokovni usposobljenosti zaposlenih v javnih vodnogospodarskih službah, usposobljenost teh delavcev za kakovostno delo ter uporaba posebnih znanj, pridobljenih z izkušnjami, - tradicija izvajanja vodnogospodarskih dejavnosti v vodnogospodarskih javnih službah, 4.6.1 The most important advantages of the existing system The main general advantages that are, above all, the result of the efficient functioning of the existing integrated system in the past are: - 77% of the population is provided with drinking water from the public water supply system - drinking water from the public water supply systems is regularly checked (quality control), and is, in most cases,of acceptable quality - the waterways are, due to a lack of maintenance means, mostly close to their natural condition - the quality of some water has even improved in recent years, but mostly because of the economic difficulties of the major polluters - an organised network of hydrological and meteorological observations with extensive data bases exists - nongovernmental organisations take action concerning the environmental awareness of the public - fishing organisations are active in the maintenance of waterways. The main advantages of the existing institutional system are: - there are the regional branches of the Administration of the Republic of Slovenia for the Protection of Nature, which is competent for waters in the border regions of the individual water areas - there are the existing organizational system and activities of the public water management services - a long tradition of water management companies exists, as evidenced in the professional qualifications of the employees in water management services, the ability of the employees to carry out high quality work, and the use of specialized knowledge attained by experience - a long tradition of water-management activities in public water management services exists - technically well equipped public water Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 48 - relativno dobra tehnična opremljenost vodnogospodarskih javnih služb, - prostorska skladnost delovanja javnih vodnogospodarskih služb z območ ji regionalnih izpostav Uprave za varstvo narave, - obvladovanje odtoč nega režima voda zaradi dolgoletnih izkušenj delavcev javnih vodnogospodarskih služb, - predpisani obvezni emisijski in imisijski monitoring onesnaževalcev, - spodbujanje onesnaževalcev k zmanjšanju obremenjevanja vodotokov s progresivno naravnanimi taksami za obremenjevanje voda in olajšavami, ki omogoč ajo naložbe v zmanjševanje onesnaževanja voda. 4.6.2 Glavne pomanjkljivosti in glavni konflikti obstoječ ega sistema Med bistvene splošne pomanjkljivosti spadajo: - nač rtovanje v gospodarjenju z vodami je prisotno le v segmentu kratkoroč nega nač rtovanja sanacijskega in interventnega vzdrževanja, - vodnogospodarske bilance razpoložljivih voda in porabe so pokazale, da vodnih virov ni toliko, kot smo mislili, kakovost pa se slabša, - ocene kakovosti pitne vode se izdelujejo na podlagi posameznih parametrov, ne upošteva pa se njihovo medsebojno in kumulativno delovanje, - v načrtovanju posameznih vodno- gospodarskih rešitev niso definirane norme in postopki kakovostnega nač rtovanja, - najpomembnejši del vseh sistemov VG v najvišji fazi razvoja predstavljajo akumulacije, ki pa jim pri nas nekontrolirana urbanizacija zaseda dragoceni prostor, zaradi raznih razlogov pa so njihove lokacije, namen in č as izgradnje sporni, - za prehod na več je regionalne sisteme in zagotavljanje zadostne zanesljivosti management services exist - there is a genuine accordance(agreement) of the activities of the public water management services with the areas of the regional branches of the Administration of the RS for the Protection of Nature - there is controlled runoff based on the long term experience of the public water management services - the prescribed obligatory monitoring of polluters emmisions and monitoring of the state of environment exists - there exists encouragement for polluters to reduce pollution of bodies of water with progressive taxation for wastewater discharges and tax relief that enables(encourages) investments that result in the reduction of water pollution 4.6.2 The main deficiencies and conflicts in the existing system The major general deficiencies are: - water management planning is only present in the short term planning segment of sanitation and intervention maintenance - the water management balances of the available water and water use have shown that water resources are not as abundant as we had thought, and that the quality is decreasing - water quality estimations are being made on the basis of individual parameters whose mutual and aggregate effects are not taken into consideration - standards and procedures of quality planning are not defined in the planning of the individual water management programmes - the most important part of all the systems in water management in its highest phase of development is the retention capacity; in Slovenia uncontrolled urbanization is taking up valuable space for potential reservoirs and retentions, and for various reasons, their locations, functions and time of construction are questionable - the transition from the extensive to the intensive use of water is too slow (concerning recirculation, multiple use, more rational irrigation, clean technologies) - there is insufficient pre-investment that Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 49 preskrbe ni bilo zadostnih predinvestiranj, - današnjem gospodarskem in ekonomskem položaju ni zadostnih sredstev, - ureditev kontinuiranih kaskadnih sistemov za izrabo vodnega potenciala, ki je (tako rekoč ) edini obnovljivi vir, je sporna z različ nih vidikov, zaradi dajanja prednosti kratkoročnim cenejšim virom pa je graditev takih objektov zastala, - izgradnja reverzibilnih HE, ki dajajo visokovredno konično energijo, nima potrebne prioritete, - dovoljenja za izgradnjo malih HE na povsem naravnih delih vodotokov so izdana brez ustreznih strokovnih podlag, - zaradi nestrokovnih posegov v povodjih se spreminjajo odtoč ni režimi vodotokov, - majhna transparentnost enot, ki se ukvarjajo z vodooskrbo oz. gospodarjenjem z vodami. Med pomanjkljivosti na institucionalnem področ ju prištevamo: - počasno ter strokovno pomanjkljivo sprejemanje nove vodne zakonodaje, - prelivanje javnih sredstev, namenjenih za gospodarjenje z vodami, v druge sektorje in dejavnosti, - sredstva vodnih povračil in taks za obremenjevanje voda se ne "vrač ajo" v celoti za dejavnosti gospodarjenja z vodami, - vodna povrač ila se plač ujejo za osnovno rabo vode (pitna voda), za posebno (namakanje) pa ne, - nepoznavanje temeljnih ekonomskih instrumentov v gospodarjenju z vodami, - nadomestila za odvajanje meteorne vode se ne zbirajo, - ni kontrole nad izvajalci emisijskega monitoringa, - javne vodnogospodarske službe se sooč ajo z negotovostjo zaradi sedanje in prihodnje organiziranosti, s težavami zaradi premajhnih sredstev za izvajanje dejavnosti, z odhajanjem strokovnjakov v druge sektorje in dejavnosti, z veliko would guarantee an adequately reliable supply and enable a transition to larger regional systems - the arrangement of continuous cascade systems for the use of water energy potential, which is virtually the only renewable source, is questionable from various view points, and, because short term cheaper energy sources have been given priority, the building of such an infrastructure has been halted - the construction of reversible hydroelectric power stations that produce high value peak power has not been given the necessary priority - building permits for small hydroelectric power stations on the natural parts of waterways are issued without appropriate expert analysis - inexpert measures in the watersheds are causing undesirable changes of the runoff - there is low transparency of companies involved in water supply and wastewater collection and treatment. The deficiencies in the institutional area are: - there is the slow and technically inadequate adoption of new legislation - there is an outpouring of funds previously earmarked for water management, to other sectors and activities - taxes originating from water use do not fully "return" to water management activities - water taxes are paid for certain uses (i.e. drinking water), but not for all of them (i.e. irrigation) - there is a lack of knowledge of the basic economic instruments in water management - compensation for urban runoff is not collected - there is no supervision of emission monitoring - public water management services are insecure about the present and future organization; they are facing problems arising from insufficient funding for their activities; experts are departing into other sectors and services and there is an increasing dependence on budgetary funding - availability of sufficient skilled workers Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 50 odvisnostjo od prorač unskih sredstev, - kadrovsko vprašanje (izobraževanje zaposlenih in zaposlovanje) je eno najresnejših problemov za nadaljnji razvoj sistema gospodarjenja z vodami, - gospodarjenje z vodami se je omejilo na izdajanje pogojev v vodnogospodarskih soglasjih in dovoljenjih, brez združevanja in odloč anja vseh uporabnikov vode, - ni več gospodarja vodnogospodarskih objektov in naprav v splošni rabi, saj so objekti leta 1996 prešli iz lastništva vodnogospodarskih podjetij na državno zakladnico, država pa ni določ ila gospodarja teh objektov, - nedoreč ene pristojnosti Uprave RS za varstvo narave, kar vodi k neorganiziranosti na relaciji Uprava za varstvo narave, izpostav Uprave za varstvo narave in javnih vodnogospodarskih služb, - slaba informiranost o izvedenih študijah na področ ju gospodarjenja z vodami, zato širša strokovna javnost ne ve natanč no, katere "študijske" aktivnosti potekajo, - pomanjkljivo in pogosto neuč inkovito delovanje pristojnih inšpekcijskih služb, - pomemben segment nadzora, rečnonadzorna služba je brez pravih pristojnosti, - zaradi pomanjkanja celovitega nač rtovanja v gospodarjenju z vodami je ponavadi odločanje o večjih naložbah brez strokovnih podlag, - strokovni nadzor porabe javnih sredstev za vzdrževanje je pravno sporen, saj se za vzdrževalna dela na eni strani zahteva spoštovanje predpisov o graditvi objektov, nadzor pa izvajajo inženirji, ki nimajo pooblastila za izvajanje nadzora (pooblašč eni inženirji), - nejasna vloga v sprejemanju in presoji upravič enosti vodnogospodarskih rešitev regionalnih Zavodov za kulturno in naravno dedišč ino, - vključevanje nevladnih organizacij v procese odloč anja pri več jih in pomembnih naložbah je nujno, vendar je več inoma (the education of employees, employment) is one of the most burning issues for the future development of the water management system - water management has limited itself to issuing conditions to the water management agreements and licenses, without the integration and decision-making input of all water users - there is no single manager of the water management infrastructure and installations in general use, since the ownership of the infrastructure was transferred from the water management companies to the state treasury in 1996, and the state still hasn't appointed a manager - there are undefined jurisdictions for the Administration of the RS for the Protection of Nature, leading to disorganization in the relationship between the Administration of the RS for the Protection of Nature, its regional branches and the public water management services - there is poor information on research studies in the area of water management, resulting in the wider professional public not knowing exactly which activities are being carried out - an insufficient and often inefficient functioning of the competent inspection services exists - an important segment of development, the river-supervision service, has no real legal jurisdiction - due to a lack of integrated planning in water management, decisions about major investments are often without sufficient expert foundation - the competent supervision of the use of public funds for maintenance is legally questionable. On one hand, maintenance workers are required to follow building regulations, while the supervision is carried out by engineers who have no authority to supervise (authorized engineers) - there is an unclear role of the Institutes for the Cultural and Natural Heritage in adopting and assessing the reasoning of the water management solutions - the incorporation of non-governmental organizations in the decision making processes in bigger and important investments is necessary, but it is usually Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 51 pogojeno z javnim in politič nim prestižem brez iskanja najboljših razpoložljivih rešitev problema. 4.6.3 Skupna ocena Spremembe politič nega sistema in sprejetje nekaterih novih zakonov (Zakon o varstvu okolja, Zakon o gospodarskih javnih službah itd.) so na področ ju gospodarjenja z vodami prinesle velike spremembe. Država je postala lastnik vodnogospodarskih objektov in naprav, ni pa določila, kdo je odgovoren za gospodarjenje z njimi. Prav tako je bil delno razveljavljen Zakon o vodah, č rtana pa so bila pomembna določila, ki so zagotavljala nač rtovanje in financiranje vodnogospodarskih dejavnosti. Zaradi neurejenih razmer, ki se odražajo v neurejenih vprašanjih pri programiranju, načrtovanju, financiranju, organiziranosti, izvajanju in nadzorovanju vodnogospodarskih dejavnosti, je področ je gospodarjenja z vodami v RS v veliki krizi. Posledica takšnega položaja je tudi odliv usposobljenih strokovnjakov v druge dejavnosti. Nov Zakon o vodah, ki bi lahko rešil trenutno "kaotič ne" razmere, se pripravlja že dvanajst let. V prič akovanju na novo zakonodajo pa "pozabljamo", da tudi še veljavni č leni Zakona o vodah omogoč ajo vrsto ukrepov. Trenutne razmere zahtevajo takojšnje ukrepanje in morda je ravno proces pridruževanja v EZ priložnost, da postavimo gospodarjenju z vodami v Republiki Sloveniji nove, zdrave temelje (Umek, 1998). 5. ZAKLJUČ EK Magistrska naloga podaja trenutni pregled razmer na področ ju gospodarjenja z vodami v č asu, ko v Republiki Sloveniji potekata dva pomembna procesa: priprava novega Zakona o vodah (sedanji velja od leta 1981) in proces izpolnjevanja pogojev za vč lanitev RS v Evropsko zvezo. Ker so v državah č lanicah Evropske zveze prič eli s poenotenjem sistemov celostnega gospodarjenja z vodami, smo se v nalogi naslonili na rezultate projekta Evropske zveze conditioned by public and political prestige, not by a desire to search for the best available solutions to the problem. 4.6.3 Joint estimation The changes in the political system and the adoption of several new acts (the Protection of the Environment Act, the Public Services Act, etc.) have brought about major changes in the field of water management. The state has become the owner of the water management infrastructure, but there is no clear provision on who is responsible for its management. The Water Act was also partly invalidated and several provisions that ensured the planning and financing of water management activities were abrogated. The unsettled circumstances reflected in the unsettled issues of the programming, planning, financing, organizing, monitoring, execution and supervision of water management activities has plunged the field of water management in Slovenia into a deep crisis. One of the consequences of this situation is a drain of qualified experts into other activities. The new Water Act that could settle the momentarily chaotic circumstances has been in preparation for twelve years. Yet, while waiting for the new legislation, we tend to forget that the still valid articles of the Water Act enable numerous measures to be taken. The momentary circumstances demand immediate action and the EU accession process may be the right opportunity to build new, firm foundations for water management in Slovenia (Umek, 1998). 5. CONCLUSION This M.Sc. thesis presents a current overview of the water management situation at a time when two important processes are under way in the Republic of Slovenia. The preparation of the new Water Act (the present one has been in force since 1981) and the process of fulfilling the conditions for Slovenian membership in the European Union. The European Member States have begun the harmonization processes of integrated water systems management; therefore, the thesis considers the results of the EU Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 52 EUROWATER. Projekt podpira tudi Evropska komisija, ukvarja pa se z institucionalnimi mehanizmi in strukturami gospodarjenja z vodami v evropskih državah in primerja njihovo uč inkovitost glede na zakonodajo Evropske zveze. Tako je bilo za nekaj držav Evropske zveze izdelano Vertikalno poroč ilo, ki podaja pregled in oceno institucionalnih, pravnih, ekonomskih in socialnih izhodišč , potrebnih za operacionalizacijo pobude na področ ju skupne politike do voda. Republika Slovenija, kot ena od držav, ki se pripravljajo na vstop v EZ, bo morala v procesu usklajevanja zakonodaje v celoti prevzeti veljavni pravni red EZ, gospodarjenje z vodami pa urediti tako, da bo lahko izpolnjevala obveznosti, ki jih prinaša tudi skupna politika do voda. Zato je bil temeljni namen naloge pripraviti osnutek Vertikalnega poroč ila za RS, struktura naloge pa v celoti sledi strukturi poročila v projektu EUROWATER. Podana naloga prinaša pregled trenutnega položaja na področ ju gospodarjenje z vodami na obalnem območ ju in v celotni RS. V prvem delu naloge je obravnavana problematika gospodarjenja z vodami na obalnem območ ju. Ugotovili smo, da je za postavitev ustreznega sistema celostnega gospodarjenja z vodami na obalnem območ ju nujna zakonodajna ureditev, ki bo uveljavila organiziranost in financiranje sistema gospodarjenja z vodami v celotni Republiki Sloveniji. Ugotovljena je predvsem velika kriza zaradi neurejenosti razmer na področ ju gospodarjenja z vodami, ki se odraža v neurejenih vprašanjih pri programiranju, načrtovanju, financiranju, organiziranosti, izvajanju in nadzorovanju vodnogospodarske dejavnosti. Posledica takšnih razmer je tudi odliv usposobljenih strokovnjakov v druge dejavnosti. Pri pripravi naloge se nismo mogli izogniti veljavnim č lenom Zakona o vodah, ki so ostali po sprejemu ustavnih amandmajev (ki so odpravili npr. vodne skupnosti), po sprejemu Zakona o varstvu okolja (ki je vode določ il kot lastnino države), ter druge zakonodaje, ki je posegla na področ je gospodarjenja z vodami. V analizi ključnih zakonodajnih, EUROWATER project. The project is also supported by the European Commission and it deals with the institutional mechanisms and structures of water management in European countries, comparing their efficiency with regard to European Union legislation. Thus the Vertical report was issued for some European Union Member States, giving an overview and an estimation of the institutional, legal, economic and social starting points necessary to make operational initiatives in the field of common waters policy. In the process of legislation harmonization, the Republic of Slovenia, as one of the EU Candidate States, will have to adopt the entire Acquis Communitair and organize water management in such a way that it can fulfill the obligations resulting from the common water policy. The basic purpose of this thesis was, therefore, to prepare a draft of the Vertical Report for the Republic of Slovenia and the structure of the thesis fully follows the structure of the EUROWATER Project Report. The thesis offers a temporary overview of the current situation in the water management field in the whole country, with the first part dealing with the issues of water management in the coastal area. It has been noted that the establishment of an adequate integrated system of water management in the coastal area necessarily requires a legislative regulation that would establish an organization and the financing of the system of water management in the whole Republic of Slovenia. A great crises was ascertained, springing from the disorderly conditions in the water management field and reflected in the unsolved issues in the programming, planning, financing, organization, execution and supervision of water management activities. One of the consequences of such a situation is the loss of experts to other activities and fields. When preparing the thesis, we were unable to avoid the articles of the Water Act left in force following the adoption of constitutional amendments (that have abolished, for example, the water communities association), after the adoption of the Protection of the Environment Act (which declared water to be state property), and other legislation that touched upon the area of water management. Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 53 organizacijskih in drugih nedoreč enosti je bilo ugotovljeno, da dosedanje priprave na novo zakonodajo o vodah niso bile najustreznejše, saj je bilo pripravljenih že dvanajst verzij osnutkov Zakona o vodah, vendar še vedno ni jasno, kakšen bo končni Osnutek. V pričakovanju na novo zakonodajo pa "pozabljamo", da tudi še veljavni č leni Zakona o vodah omogoč ajo vrsto ukrepov. Ker so za celostno gospodarjenje z vodami pomembni tudi drugi zakoni in podzakonski predpisi, je v nalogi prikazano, kako je sistem gospodarjenja z vodami povezan z drugimi sektorji, da bi v prihodnje lahko pristopili k načrtovanju gospodarjenja z vodami sistematič no in celovito. Vsaka nova zakonska ali podzakonska ureditev bo povzroč ila dinamič no spreminjanje vsebine izdelanega poroč ila, to pa pomeni, da je izdelana naloga podlaga za nadaljnje neprekinjeno delo pri spremljanju stanja na področ ju gospodarjenja z vodami. Zavedati se moramo, da izdelava Vertikalnega poroč ila ni enkratno dejanje. Vertikalno poroč ilo nam podaja trenutni položaj in ključ ne elemente gospodarjenja z vodami, ki pa se z usklajevanjem in spremembami zakonodaje lahko spremenijo. Sprotno dopolnjevanje (predvsem glede na izboljšanje kakovosti poročila) mora postati obvezna naloga ministrstva, pristojnega za področ je voda. Po sprejetju novega Zakona o vodah bo treba izdelati dokumente, ki jih bo zakon predpisal. Za strokovnjake s tega področ ja bo to velika obveznost, pa tudi izziv za stroko, ki se bo morala tudi kadrovsko okrepiti. Za celostno gospodarjenje z vodami potrebujemo strokovnjake, ki bodo sprejemali pomembne in odgovorne odloč itve, to pa ni mogoč e brez stalnega izobraževanja in spremljanja razvojnih smernic stroke v svetu. Le tako bomo lahko dosegli, da bo celostno gospodarjenje z vodami pomemben dejavnik pri doseganju cilja - zagotavljanje trajnostnega razvoja. In the analysis of the key legislative, organizational and other ambiguities, it was established that the previous preparations for the new water legislation were not sufficiently suitable, since twelve draft versions of the Water Act have been prepared so far, yet it is still not clear what the final Draft will look like. While waiting for the new legislation, we tend to forget that the still valid articles of the Water Act allow for a number of measures. Since integrated water management also requires other acts and executive regulations, the thesis presents how the water management system is related to other sectors, so that in the future we can approach water management planning in a systematic and integrated way. Each new legal and executive regulation will cause a dynamic change in the content of the created report, meaning that the report is the basis for further ongoing work in the development of conditions in the water management field. We must be aware that writing the Vertical Report is not a unique act. The Vertical Report presents the current situation and the key elements in water management, which can change with the harmonization and adoption of legislation. A parallel and complementary work (especially concerning the quality of the report) has to become an obligatory task of the ministry competent(responsible) for waters. After the adoption of the new Water Act the documents prescribed by the act (i.e.: technical guidelines) will have to be formulated. This will be a great obligation for the experts in the field and also a challenge for this field of expertise, which will have to employ new staff. For integrated water management we need experts who will make important and responsible decisions, and that is not possible without regular education and the monitoring of developmental guidelines from world experts. Only in this way will we be able to achieve the goal of integrated water management leading to the assurance of sustainable development. Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 54 VIRI - REFERENCES Carter, H. (1997a). Management of River Basins, Draft Programme for Management of River Basins, Slovenia Coastal Zone Management Project, Phare ZZ 96 03, 16 str. Carter, H. (1997b). Sewage Collection, Treatment and Disposal, Draft Proposals of Future Plans, Slovenia Coastal Zone Management Project, Phare ZZ 96 03, 15 str. Colnarič , N.(1 993). Vloga vodne knjige v vodnogospodarskem informacijskem sistemu, magistrska naloga, FAGG GG, Univerza v Ljubljani, 75 str. in 5 prilog. Correia, F. Nunes (1997). Introduction to WATER 21, Workshop Sustainability indicators and criteria for water policy formulation, Project Water 21, Phase 3, Lizbona, 11 str. Correia, F. Nunes (1998). EUROWATER PROJECT: Background, objectives and main results, 4 th National Congress on Water Resources - Portuguese Water Resources Association, Lizbona, 13 str. Komisija Evropske skupnosti (1998). Predlog za DIREKTIVO SVETA EUROPSKE UNIJE za določ itev okvirjev za ukrepanje Skupnosti na področ ju politike do voda, COM (97) 61 4, 97/0067 /SYN), slovenski prevod, verzija junij, delovni osnutek. Kompare, B. (1997). Strokovne podlage za Koncept gospodarjenja z vodami, Univerza v Ljubljani, FGG-Hidrotehnič na smer, str. 60. Ministrstvo za okolje in prostor (1 998). Okoljska pristopna strategija Slovenije za vključ itev v Evropsko unijo, 75 str. Mostert, E.(1998), River basin management in the European Union, How it is done and how it should be done, European Water Management, Volume 1, Number 3, str. 26-35. National Water Authority of Hungary (1997). EUROWATER-CEC Vertical Report. Institutional framework for water management in Hungary, 132 str. OZN, Ekonomska komisija za Evropo (1 998). Pregled uč inkovitosti okoljske politike Slovenije, 65 str. Steinman, F. in sodelavci (1993). Strategija vodnega gospodarstva Slovenije. Delovno gradivo, 125 str. Steinman, F. (1996). Vodnogospodarska strategija - nekaj let kasneje. Zbornik referatov 15. Goljevšč kovega spominskega dne, Acta hydrotechnica 14/12, str. 9-23. Umek, T. (1 998). Celostno gospodarjenje z vodami na obalnem območ ju, magistrska naloga, FGG GG, Univerza v Ljubljani, 154 str. in 4 priloge. Umek, T., Banovec, P.(1 998). Celostno gospodarjenje z vodami na slovenskem obalnem območ ju in regionalne podlage ta vertikalno poroč ilo, Zbornik referatov 1 7.Goljevšč kovega spominskega dne, Acta hydrotechnica 16/23, str. 109-121. Uprava RS za varstvo narave (1 996). Poroč ilo o poveč ani ogroženosti zaradi neustreznega vzdrževanja vodnega režima, 25 str. Zveza vodnih skupnosti Slovenije (1978). Vodnogospodarske osnove. Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 55 Publikacije Acta hydrotechnica / Back Volumes of Acta hydrotechnica LETNIK 1 (1983) / VOLUME 1 (1983) št.1 (oktober 1983) / No. 1 (October 1983) Pšenič nik, M. : Razvoj Laboratorija za mehaniko tekoč in in Inštituta za zdravstveno hidrotehniko / Development of the Fluid Mechanics Laboratory and the Institute of Sanitary Hydrotechnics Brilly, M. : Hidrodinamika onesnaženja podzemnih voda, disertacija 25. 4. 1 983 / Hydrodynamics of Groundwater Pollution, Doctoral thesis LETNIK 2 (1984) / VOLUME 2 (1984) št.2 (junij 1984) / No. 2 (June 1984) Rakč ević , S. : Vzporedni izpust kot nadomestilo za zgornje vodostane pri hidroelektrarnah s francisovimi turbinami, disertacija 27.6.1983 / By-pass Valve as Substitute for Upstream Surge Tanks for Hydroelectric Power Plants with Francis Turbines, Doctoral thesis LETNIK 3 (1985) / VOLUME 3 (1985) št. 3 (junij 1985) / No. 3 (June 1985) Steinman, F. : Prispevek k analizi dinamič nih zakonitosti natege, magistrska naloga 24.11 .1 983 / A contribution to Analysis of Dynamic Processes in Air-Regulated Siphons, Master thesis Panjan, J. : Teoretič na analiza vplivov na proces sedimentacije, magistrska naloga 1 7.7.1 984 / Theoretical Analysis of the Influences on the Sedimentation Process, Master thesis 1. izr. št. (junij 1985) / Spec. No. 1 (June 1985) Referati 4. Goljevšč kovega spominskega dne 8.3.1 985 / Proceedings of the 4th Goljevšč ek Memorial Day LETNIK 4 (1986) / VOLUME 4 (1986) 2. izr. št. (junij 1986) / Spec. No. 2 (June 1986) Referati 5. Goljevšč kovega spominskega dne 11 .3.1 986 / Proceedings of the 5th Goljevšč ek Memorial day LETNIK 5 (1987) / VOLUME 5 (1987) št. 4. (december 1987) / No. 4 (December 1987) Kovač ič , I. : Postopna metoda za rač un visokovodnih valov v strugah / Step-by-step Computation Method of Flood Waves in Rivers Petrešin, E. : Analiza obstoječ ih analitič nih izrazov koeficientov hrapavosti s predlogom za izboljšavo v vodovodnem omrežju / Analysis of Existing Analytic Expressions for the Roughness Coefficients with a Proposal for their Improvement Concerning Application in Water Supply Network Pšenič nik, M. : Nova konstrukcija ostnega merila in merske cevke sistema Pitot-Prandtl / New Construction of Point Measuring Device and Pitot-Prandtl Measuring Tube LETNIK 6 (1988) / VOLUME 6 (1988) št. 5 (december 1988) / No. 5 (December 1988) Č etina, M. : Matematič no modeliranje dvodimenzionalnih turbulentnih tokov, magistrska naloga 20.6.1 988 / Mathematical Modelling of Two-Dimensional Turbulent Flows, Master thesis 3. izr.št. (marec 1988) / Spec. No. 3 (March 1988) Referati 7. Goljevšč kovega spominskega dne 11 .3.1 988 / Proceedings of the 7th Goljevšč ek Memorial Day Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 56 LETNIK 7 (1989) / VOLUME 7 (1989) št. 6 (april 1989) / No. 6 (April 1989) Mikoš, M. : Urejanje hribovskih vodotokov, magistrska naloga 20.6.1988 / Control of Mountain Streams, Master thesis 4. izr. št. (april 1989) / Spec. No. 4 (April 1989) Referati 8. Goljevšč kovega spominskega dne 27.3.1 989 / Proceedings of the 8th Goljevšč ek Memorial Day LETNIK 8 (1990) / VOLUME 8 (1990) št. 7 (marec 1990) / No. 7 (March 1990) Gorišek, M. : Simulacija infiltracije padavin v drobnih in grobih peskih s primesmi proda, magistrska naloga 19.7.1989 / Simulation of Infiltration in Coarse and Fine Sands with Gravel, Master thesis Pleško, T. : Endogena respiracija aktivnega blata v procesu č išč enja odpadnih vod v odvisnosti od temperature vode, magistrska naloga 28.9.1989 / Endogenous Respiration of the Activated Sludge in Sewage Treatment Process in Dependence of Water Temperature, Master thesis Krajnc, U. : Prognoza spremembe kvalitete Save v akumulacijskem bazenu HE Vrhovo z matematič nim modelom, magistrska naloga 7.11.1989 / Modeling Changes in the Sava River Water Quality Caused by Impunding Water at the Vrhovo Hydroelectric Power Plant, Master thesis št. 8 (december 1990) (Ob natisu pomotoma označ ena kot št. 7) / No. 8 (December 1990) Č ehovin, I. : Meritve hidrodinamič nih velič in na hidravlič nih modelih, magistrska naloga 7.6.1 990 / Measurement of Hydrodynamic Quantities in Hydraulic Models, Master thesis Marinč ek, M. : Izrač un visokovodnih valov na Savinji s pomoč jo kvazidimenzionalnega matematič nega modela, magistrska naloga 9.5.1990 / Modelling Flood Wave Propagation in the Savinja River Using a Quazi Two-Dimensional Mathematical Model, Master thesis LETNIK 9 (1991) / VOLUME 9 (1991) ni publikacij / no publications LETNIK 10 (1992) / VOLUME 10 (1992) št. 9 (oktober 1992) / No. 9 (October 1992) Smith, M.B. : Uporaba modelov z distribuiranimi parametri pri obrambi urbaniziranih površin pred poplavami, disertacija 4.5.1992 / A Distributed Parameter Hydrologic Model for Urban Stormwater Protection, Doctoral thesis Globevnik, L. : Uporaba GIS-OV pri iskanju optimalnih vodnih virov za namakanje Zgornje Vipavske doline, magistrska naloga 15.5.1992 / The GIS Based Analysis of Optimal Water Resources for Irrigation in Upper Vipava Valley, Master thesis LETNIK 11 (1993) / VOLUME 11 (1993) št. 10 (november 1993) / No. 10 (November 1993) Mikoš, M. : Fluvialna abrazija prodnatih plavin, disertacija 21.6.1993 / Fluvial Abrasion of Gravel Sediments, Doctoral thesis LETNIK 12 (1994) / VOLUME 12 (1994) št. 11 (maj 1994) / No. 11 (May 1994) Širca, A. : Modeliranje transporta polutantov po metodi sledenja delcev, magistrska naloga 23.12.1992 / Modelling of Pollutant Transport by Particle Tracking Method, Master thesis Kobold, M. : Določ anje minimalnih pretokov vodotokov v Sloveniji po metodologiji FRIEND, magistrska naloga 7.12.1993 / The Low Flow Estimation of Slovene Streams by FRIEND Methodology, Master thesis LETNIK 13 (1995) / VOLUME 13 (1995) ni publikacij / no publications LETNIK 14 (1996) / VOLUME 14 (1996) št. 12 (maj 1996) / No. 12 (May 1996) Zbornik referatov 1 5. Goljevšč kovega spominskega dne 1 4.marec 1 996 / Proceedings of the 1 5th Goljevšč ek Memorial Day Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 57 št. 13 (maj 1996) / No. 13 (May 1996) Gorišek, M. : Difuzijsko gibanje snovi raztopljenih v vodi skozi porozni prostor iz drobnozrnatih materialov, disertacija 5.6.1995 / Diffusion of Chemical Species Dissolved in Water in Porous Medium of Fine Grain Soils, Doctoral Thesis št. 14 (avgust 1996) / No. 14 (August 1996) Širca, A. : Modeliranje hidrodinamike in transporta živosrebrovih spojin v Tržaškem zalivu, disertacija 27.5.1996 / Modelling of Hydrodynamics and of Transport of Mercury Compounds in Trieste Bay, Doctoral Thesis LETNIK 15 (1997) / VOLUME 15 (1997) št. 15 (januar 1997) / No. 15 (January 1997) Krzyk, M. : Dvodimenzijski matematič ni model konvekcijsko-difuzijskega transporta snovi in lebdeč ih plavin v površinskih vodah, magistrska naloga 8.11.1996 / Two-Dimensional Mathematical Model of Convective-Diffusion Transport of Concentration and Suspended Load in Free Surface Flows, Master Thesis št. 16 (april 1997) / No. 16 (April 1997) Panjan, J. : Procesi kosmič enja z vidika usedanja in zgošč evanja suspendiranih delcev pri č išč enju odpadne vode, disertacija 10.3.1994 / Flocculation Process in the Light of Sedimentation and Thickening of Suspended Particles in Waste Water Treatment, Doctoral Thesis št. 17 (julij 1997) / No. 17 (July 1997) Zbornik referatov 1 6. Goljevšč kovega spominskega dne 1 3.marec 1 997 / Proceedings of the 1 6th Goljevšč ek Memorial Day št. 18 (avgust 1997) / No. 18 (August 1997) LOC Proceedings of oral presentations FRIEND’97, Postojna 1 - 4 October 1997, Slovenia / Zbornik referatov Mednarodne konference FRIEND’97, Postojna 1. - 4.oktobra 1997, Slovenija št. 19 (avgust 1997) / No. 19 (August 1997) LOC Proceedings of poster presentations FRIEND’97, Postojna 1 - 4 October 1997, Slovenia / Zbornik posterjev Mednarodne konference FRIEND’97, Postojna 1. - 4.oktobra 1997, Slovenija št. 20 (november 1997) / No. 20 (November 1997) Č enč ur-Curk, B. : Terenski eksperimentalni poligoni kot osnova pri študiju prenosa snovi v nezasič eni kraško-razpoklinski kamnini, magistrska naloga 24.10.1997 / Experimental Field Sites as a Basis for the Study of Solute Transport in the Vadose Zone of Karstified Rock, Master Thesis LETNIK 16 (1998) / VOLUME 16 (1998) št. 21 (marec 1998) / No. 21 (March 1998) Šifrant poreč ja Donave / Danube river basin coding št. 22 (november 1998) / No. 22 (November 1998) Vodopivec, N. : Bilanca hranil, proizvodnje in stabilizacije blata pri različ nih postopkih biološkega č išč enja odpadnih voda, magistrska naloga 30.6.1998 / Nutrient Balances, Sludge Production and Sludge Stabilisation at Different Waste Water Treatment Technologies, Master Thesis št. 23 (december 1998) / No. 23 (December 1998) Zbornik referatov 1 7. Goljevšč kovega spominskega dne 27.marec 1 998 / Proceedings of the 1 7th Goljevšč ek Memorial Day LETNIK 17 (1999) / VOLUME 17 (1999) št. 24 (junij 1999) / No. 24 (June 1999) Umek, T. : Celostno gospodarjenje z vodami na obalnem območ ju, magistrska naloga 1 2.11 .1 998 / Comprehensive Water Management in the Coastal Region, Master Thesis Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 58 NAVODILA ZA PRIPRAVO PRISPEVKOV 1. Prispevki za Acta hydrotechnica 1.1 Acta hydrotechnica je znanstveno-strokovna periodič na publikacija, katere izdajatelj in založnik je Univerza v Ljubljani, Hidrotehnič na smer Fakultete za gradbeništvo in geodezijo (FGG), ki jo sestavljajo Katedra za mehaniko tekoč in z laboratorijem (LMTe), Katedra za splošno hidrotehniko (KSH) in Inštitut za zdravstveno hidrotehniko (IZH). Predstavniki omenjenih enot tudi sestavljajo izdajateljski odbor revije. 1.2 Acta hydrotechnica izhaja dvakrat na leto v obliki zaporednih številk, dodatno razvršč enih v letnik. 1.3 Acta hydrotechnica je namenjena objavam prispevkov strokovnjakov in raziskovalcev s področ ja vodarstva in hidrotehnike. Acta hydrotechnica objavlja prispevke s področ ja vodarstva in hidrotehnike v obliki izvirnih in preglednih znanstvenih č lankov, preliminarnih objav in strokovnih č lankov. 1.4 Prispevki so napisani enakovredno v slovenskem in angleškem jeziku, kar zagotavlja ohranjanje in razvijanje slovenskega strokovnega izrazoslovja na področ ju vodarstva in hidrotehnike ter obenem zagotavlja berljivost revije v tujini. Dolžina prispevka je omejena na 30 000 znakov. Dolžina prispevka, ki je povzetek magistrske naloge ali doktorskega dela, je omejena na 100 000 znakov. Prednost pri objavi imajo krajši prispevki. 1.5 Prispevke je treba oddati v elektronski in pisni obliki na uredništvo Acta hydrotechnica. 1.6 Vsi prispevki so oblikovno podvrženi uredniški recenziji v skladu s temi navodili in vsebinsko podvrženi recenziji dveh strokovnjakov s področ ja prispevka. 1.7 Pri oblikovanju prispevkov za Acta hydrotechnica je treba upoštevati slovenske standarde za dokumentacijo in informatiko. 1.8 Za vsebino prispevkov in prevod v angleški jezik odgovarjajo avtorji. 1.9 Vsi prispevki so lektorirani, tako slovensko kakor tudi angleško besedilo. 2. Oblikovanje prispevkov za Acta hydrotechnica 2.1 Vsak prispevek mora biti sestavljen iz naslednjih enot, enakovredno podanih v slovenskem in angleškem jeziku: ! naslov prispevka ! podatki o avtorju ali avtorjih ! izvleč ek (abstract) in ključ ne besede (key-words) ! glavno besedilo ! zahvala (acknowledgements) naroč niku naloge, raziskave ali študije (neobvezno) ! pregled uporabljenih izrazov (terminology) in oznak (notations) (neobvezno) ! viri (references) Njihov natanč nejši opis je podan v naslednjih odstavkih. 2.2 Naslov prispevka naj bo jasen, jedrnat in naj izraža bistvo prispevka. Dolžina naslova je največ 90 znakov, razen ko gre za povzetke magistrskih in doktorskih del, kjer je lahko naslov prispevka enak uradnemu naslovu dela. 2.3 Podatki o avtorju obsegajo ime in priimek, opis znanstvene strokovne stopnje in poln naslov delovnega mesta. 2.4 Vsak prispevek mora spremljati izvleč ek (abstract) v obsegu okoli 1 50 besed v vsakem od obeh jezikov. Izvleč ka morata strnjeno podati celoten prispevek vključ no z zaključ ki. Avtor naj navede do 8 ključ nih besed. 2.5 Glavno besedilo naj bo razdeljeno po decimalnem sistemu (1. PRVO POGLAVJE, 1.1 PRVO PODPOGLAVJE, 1.1.1 Zadnja poddelitev). Vire v besedilu navedemo z imenom avtorja in letnico objave (Manning, 1892), (Strickler & Nikuradse, 1924b), (Einstein et al., 1951), (Colebrook, 1932; 1934). Merske enote naj bodo v skladu z veljavnim sistemom SI. Datum naj bo podan po naslednjem vrstnem redu : dan-mesec-leto (23.4.1998). Kratice in opombe pod č rto naj se uporabljajo le izjemoma. Umek T: Celostno gospodarjenje z vodami na obalnem območ ju - Comprehensive Water Management in the Coastal Region © Acta hydrotechnica 17/24 (1999), 59 p., Ljubljana 59 Ilustracije (preglednice in slike) v besedilu naj bodo skozi vse besedilo enotno oštevilč ene z arabskimi številkami in naj se ne okrajšujejo (preglednica 1, slika 14, Table 2, Figure 4). Praviloma mora biti ilustracija dvojezič na. Č e je ilustracija privzeta iz drugega že objavljenega dela, je potrebno ob njenem opisu dodati tudi njen izvor. Enač be v besedilu naj bodo oštevilč ene z arabskimi številkami v okroglih oklepajih enotno skozi vse besedilo, pri daljših prispevkih (več kakor 1 avtorsko polo) lahko tudi enotno za vsako poglavje posebej. Navajanje enač b naj v besedilu ne bo okrajšano (enač ba (11 ), enač ba (2.1 7)). 2.6 V besedilu uporabljeni viri morajo biti navedeni v abecednem vrstnem redu in neoštevilč eno, na koncu prispevka, enotno za oba jezika. Č e je vir pisan v jeziku, ki ni angleški, naj naslovu vira v oklepaju sledi prevod naslova v anglešč ino, na koncu navedbe pa dostavek, v katerem jeziku je pisan, npr. (in Slovenian). Glede na vrsto mora avtor navesti vire takole: ! knjige : Schumm, S.A., Mosley, M.P., Weaver, W.E. (1987). Experimental fluvial geomorphology. Wiley, New York, 413 p. ! posamezne prispevke v knjigi : Large, A.R.G., Petts, G.E. (1994). “Rehabilitation of River Margins” in P. Calow, G.E. Petts, Eds., The Rivers Handbook - Volume 2. Blackwell, Oxford, 401-418. ! diplomska, magistrska in doktorska dela : Širca, A. (1996): Modeliranje hidrodinamike in transporta živosrebrovih spojin v Tržaškem zalivu (Modelling of Hydrodynamics and of Transport of Mercury Compounds in Trieste Bay). Unpublished Doctoral Thesis, Univerza v Ljubljani, FGG, 164 p. (in Slovenian). ! objave, kjer je avtor pravna oseba (skupinski avtor) : VGI (1993). Vodnogospodarski ureditveni nač rt Save Dolinke - idejna zasnova (Water Management Master Plan of the Upper Sava River). VGI, Ljubljana, Report C-161 (in Slovenian). ! č lanke iz zbornika del : Krzyk, M., Pemič , A. (1 995). Primjena vrtložnog prigušivač a u hidrotehnič kim sistemima pod tlakom (Application of Vortex Diode in Pressurised Hydrotechnical Systems). Proceedings of the 1 st Croatian Conference on Waters "Sustainable Developement and Water Management", Dubrovnik, Book 2, 369-376 (in Croatian). ! č lanke iz znanstvene in strokovne revije : Lamouroux, N., Souchon, Y., Herouin, E. (1 995). Predicting velocity frequency distributions in stream reaches, Water Resources Research 31, 2367-2375. ! dela, ki jim ni mogoč e določ iti avtorja : Zakon o varstvu okolja (1 993). Uradni list RS, št. 32, 1234. Environmental Protection Act (in Slovenian).