THE IBERIAN TRANSBOUNDARY WATERS - Pedro Cunha Serra SESSION 2

BLUE GOLD TASKFORCE
      Water: A factor of instability or an opportunity
                     for cooperation?

                   SESSION 2
WATER AS AN OPPORTUNITY FOR COOPERATION

  THE IBERIAN TRANSBOUNDARY
                   WATERS

              Pedro	
  Cunha	
  Serra	
  

                                            Brussels
                                    December, 9th, 2014

The Iberian Transboundary River
Basins

Frontiers and Rivers

The border between the kingdoms of Portugal and Castilla-Leon (latter Spain)
dates from the end of the 13th century and the rivers were important for this
purpose as natural barriers.

But rivers also created links between the populations who shared them as
means for navigation and the transportation of goods. Borders were not that
important at that time for the populations living as neighbors, irrespective of
nationality.

The first conventions

The first water conventions
     (1927, 1964, 1968)

The rational of the first Iberian
                  Convention

Portugal and Spain adopted a convention for
industrial usage of transboundary
watercourses in 1912.

But none of the parties to the convention
exercised his rights until 1927, when a first
treaty for hydropower development of the
Douro boundary section was signed.

The 1923 Geneva Convention
Relating to the Development
of Hydraulic Power Affecting
more than one State, approved
under the umbrella of the
League of Nations, was the
basis of this treaty.

The 1927 Convention for the
Douro river
            The two countries decided to partake of the
            hydropower potential of the mainstream border
            portion of the Douro river in equal shares,
            ü   The upstream part being allocated to Portugal
            ü   The downstream part to Spain,
            Industrialization was starting in both States and
            electric power generation was part of the package.

Environmental impacts

                        Environmental impacts were
                        neglected and natural
                        values were diminished.
                        Beautiful landscapes and
                        natural habitats of avifauna
                        were sacrificed.

1968 Convention for the Minho,
            Lima, Tejo and Guadiana rivers

Sharing the hydropower of the other transboundary rivers proved to be
more complicated for several reasons:
1. It was the interest of the two Parties to give other uses to the waters,
   namely irrigation and transfers to other basins;
2. The best technical solution was no longer the sharing of the
   hydropower potential of each border stretch of each river in two equal
   parts, but the sharing of the joint potential of the border stretches of
   all rivers;
Finally it was possible to arrive to an agreement and a new treaty was signed
in 1968.
•   The mainstream border stretches of the Tejo and Chança rivers were
    given to Spain,
•   Those of the Lima and the Guadiana rivers to Portugal and
•   The Minho river was used to balance the share of hydropower
    potential between the two States.

The 1968 Convention

The rivers only were concerned and in these mainly the mainstream
border portions, and the uses of the waters were only considered, not
the protection of the water bodies.

No reference was made to
other uses or for hydropower
production in the national
mainstream stretches and
the tributaries, and the
words sustainability,
sustainable uses,
environment protection,
or environmental
impacts were never used in
these conventions.

The 1998 Convention on the Cooperation for
the Protection and the Sustainable Use of the
   Waters of the Spanish-Portuguese River
                   Basins

Background to 1998

Between 1960 and 1993 the
construction of new dams and
the accompanying regulation of
river flows and water
consumption, mainly in irrigation and
water transfers in Spain, hugely
increased and contributed to diminish the
amount of water flowing into Portugal.

The same policy at a smaller
scale was being adopted in
Portugal and as consequence the
cumulative environmental impacts were very
significant downstream.
As Member-States of the EU both States had
new obligations and things could not go on
as they were. Business-as-usual was
no longer a legitimate option.

Dams in Douro and Tejo River
Basins
                                                                                                                                                                               B.Casares                rio Porma                                                                  B.Cervera
                                                                                                                                                  B.Duerna                       [37]                                                                    B.Vidrieros                 [10]
                                                                                                                                                     [32]                                                                 B.Ria ño                          [86]
                                                                                                                                                                                        B.Porma                             [664]
                                                                                                                                                                                          [317]                                                                                                B.Requejada
                                                                                                                                                     B.Eria                                                                                                                                       [65]
                                                                                                                                                      [62]
                                                                                                                                                                                                                                                   B.Camporredondo
                                                                                                                                                                                                         rio Ricobayo
                                                                                                                                                                                                                                                            [70]
                                                                                                                                                                    B.Barrios de Luna
                                                                                                                         B.Cernadilla                                         [308]                                                                                                          B.de Aguilar del Campo
                                                                                                                            [255]
                                                                                                                                                                                                                                                                                                    [247]
                                                                                                                                                                                                                                                                                                                 B.Uzquiza                              B.Cuerda del Pozo
                                                                                                                                                B.Valparaíso                                                                                            B.Compuerto                                                              B.Arlazon
                                                                                                                                                                                                                                                                                                                    [73]                                      [229]
                                                                                                                                                   [169]                                                rio Esla                                            [95]                                                                   [20]
                                                                                                                                                                                                                                                                                                rio Arlazon
                                                                                                                                                B.N.S.Argavalanza
                                                       Tâmega                                                                                    [49]
                                                              B.Pereira               B.Tuela                                                                                                                                                                               rio Carrion
                                                                 [2]                    [2]                                                                                                                                                                                                                                                                             B.los Rabanos
                                                                                                                                                                                                             B.Ricobayo                         rio Valderaduey
                                        +++++++++++++++++++++++++++++++++++++++++++++++++++++++++++++++++ +                                                                                                   [1148]                                                                                      B.Arlanza                                                          [6]
                           Cávado                                                                                                    ++++
                                                                                                                                           ++++                                                                                      B.Roman                                 rio Pis uerga                [140]
                        Alto Rabagão                                                                                                            +++                        B.Castro                                                                                                                                                                   B.Veladro
                        (569)                                                                                                                       ++++                                                                                [1.5]
                                                                   Tua                                    Sabor                                          ++++                  [27]                                                                                                                                                                     [350]
                                                                                                                                                               ++++
                                 Vidago
                                                                                            Vinhais                                                   B.Miranda +++
                                                                  Mente       Alto                                                                       (28)
                                 (134)                            (296)       Rabaçal                                                                                                                                                                                  B.S.Jose                                                     rio Riaza
                                                    Tâmega                                                  Sampaio                                              ++                     B.Villalcampo
                                                                                                                                               B.Picote                                                                                                                   [6]             rio Eresma
                                                                                                               (800)                                                                       [66]
                                                                                                                                               (63)         +
                                                     Alvão                                                                                                ++                                                                                          rio Guareña
                                                     (71)                                                                                                                                                                                                                                                                    rio Duraton
                  Padroselo                                                                                                           B.Bemposta                                                                                                                                                                                                 B.Linares del Arroyo
                                                                                            Azibo                                            (129) ++                                                                                                                                                  B.Lastras                                       [58]
                   (68)          Daivões                                                                                                                                                                                                                                  rio Adaja
                                  (66)
                                                                            Rebordelo       (35)                                                   ++                                                                                                                                                     [97]
                                                                            (312)
                                                                                                           Quinta das Laranjeiras                                                                                                                                                                                             B.las Venencias
                                                                                                             (966)
                                                                                                                                            ++                                              rio Tormes                                                                                                                              [5]
                                Fridão                                                                                                    ++ B.Aldeadavila
                                (210)
                                                                                                                                                   [115]              B.Almendra
                                                                                               Feiticeiro                           +
                                                                                                  (32)                            ++                                    [2649]                                                                                                                                                B.Burgomillodo
                                 Torrão                                       Foz Tua                                           ++       B.Saucelle                                                                                                                                                                               [15]
                                 (115) Carrapatelo
                                                          Régua
                                                                              (340)
                                                                                                              Pocinho        +++           [169]
                                                                                                                                                                                                                                                                                                    B.Voltoya
                                                                                                              (83)          +
                                              (148)         (95)                                                          ++                                                                                                                                                                         [6]
                                                                                                                          ++
                                                                                                                            ++                                                                                                                                         B.Seropes
                                                                                                                               ++                                                           B.Villagonz alo
                                                                                         Valeira                                 ++
                Crestuma     Castelo                                                                                               ++                                                             [6]
                 (110)                                                                   (99)                                        ++                                                                             B.El Milagro
                             Paiva                                                                                                     ++                    rio Águeda                                                                                 B.Cogotas
                              (44)                       Varosa            Vilar                                                        +                                                                               [2]                                [59]
                                                         (15)              (100)                                       Foz Coa           +                B.Águeda
                                                                                                                                         +                                                     B.S.Teresa
                                                                                                                       (702)             +                    [22]
                         Alvarenga                                                                                                       + Castillejos                                           [496]                                                                                         B.Torreiglesias
                                                                                                                                         +
                              (842)                                                                                                      +      [140]
                                                                                                                                         +                                                                                                                                                      [96]
                                                                                                                     Pero Martins +
                                                                                                                      (380)              +
                                                                                                                                         +
                                         Castro Daire                                                                                    +           Fuenteguinaldo
                                                                       Táv ora                                                           +                                                                                                                                                                                           LEGENDA
                                         (65)                                                                                            +                      [175]                             B.Aravale El Duque                                                                         B.Torrecaballeros
                                                                                           Sra. Monforte                                 +
                                                                                                    (263)                                +                                                        [2]                                                                                                                                  ESPANHA
                                                                                                                                         +
                                          Portela                                                                                        +                    B.Iruena                                                                                                                                                                             Barragem construída
                                           (151)                                                                                         +
                               Paiva                                                                                                     +                        [210]
                                                                                                                                         +
                                                                                                                                         +
                                                                                                                     Atalaia             +                                                                                                                                                                                                          Barragem em projecto
                                                        PORTUGAL                                                     (460)
                                                                                                                                         +
                                                                                                                                         +
                                                                                                                                                                                                                              ESPANHA
                                                                                                                                         +
                                                                                                                                         +
                                                                                                                                         +
                                                                                                                                         +                                                                                                                                                                                             PORTUGAL
                                                                                                                                         +
                                                                                                                                         +
                                                                                                                                         +                                                                                                                                                                                                         Barragem construída
                                                                                                                                         +
                                                                                                                                         +                                                                                                                                                                                                                     Hidroeléctrica
                                                                                                                                         +
                                                                                                                   Sabugal               +                                                                                                                                                                                                                     Hidroagricola
                                                                                                       Coa                               +
                                                                                                                   (114)                 +
                                                                                                                                                                                                                                                                                                                                                    Barragem em projecto

                                                                                                                                                                                                                                                                                                                                           +++++++ Fronteira

                                                                                                                                                                                                  APROVEITAMENTOS HIDRÁULICOS EXISTENTES E EM PROJECTO NA BACIA DO DOURO

Guadiana River Basin

                                                                In the Guadiana river basin water is used
                                                                mainly for irrigation, a highly
                                                                consumptive use and one who requires
                                                                very intensive seasonal regulation of flows.

                                                                                                                                                                                            Cancho del
                                                                                                                                                                                            Fresno(15)                                                              Transvase do
                                                                                                                                                                                                                                                                    Segura                        La Garita
                                                                 Puertos                                                                                                                    Ruecas (44)                                                                                           (91)
                                          Abrilongo              Guarranque
                                          (21)                                        Villar del Rey                                                            Sierrra                                                    Torre de Abraham(78, 190)
                                                                 (58)                 (123)                                                                     Brava(232)
                                                                                                                                                                                           A. Ruecas (0)                                      Piedrala
                                                                                                                                                                                                                                              (15)
                                                                                                                   Boqueron                                                                                                                                                         Bejida(15)
                                                                                                                   (6)      Aljucen         Proserpina                                  Cubillar          Gargaligas(21)
                                                                 Riscos                                                                                                                 (10)
                              Caia                                                                                          (102)           (11)
                                                                 Higuelas (21)
                              (203)                                                          Hornotejero
                                                                                             (24)
                                                                                                                                                                                                                 Alcobilla(42)
                                                                 R. Gévora                                                             Cerros             Alcolorin                                                                                                     Gasset
                                                                                      R. Zápaton                              Cornalbo Verdes(20)         (51)                                                                                                          (42)
                                                                                                                              (10)                                           R. Ruecas
                                                                                                                                                                                                                                 R. Bullaque
                                                                                                                                                                                                                                                                                 R. Ciguela
                                                                                                       Canchales                                  Burdalo(68)                                                                                        R. Bañuelos
                                                                                                       (40)                                                                                                                         El Canal
                                                                                                                                                                                                   Garcia de                        (25)
                                                R. Caia                                                                                           R. Burdalo                                                                                        Los
                                                                                                                                                                                                   Sola(427)
                                                                                                                                                                                 Orellana                                                           Reznos(32)
                                                                                            R. Guadiana                                                                          (478)                                                                                    R. Guadiana

                                                                                                                    Montijo(11)                                                                                                                                  El Vicario
                                                                                                                                                                                Zujar                       Cijara(1416)                                         (52)                    Vallehermoso
                                                                  R. Olivenza                                      R. Matachel                                                  (301)
                                                                                                                                                                                                                                                                                         (7)
                                                                                                                                                  Golodron
                                                                                                                      Alange                      (93)                                        La Serena                                             R. Jabalon                                Peñarroya
                           Lucefécit                              Piedra                                              (845)                                                                   (2828)                        Tirteafuera(74)                                                   (47)
                           (10)                                   Aguda
                   Vigia                                          (16)          Nogales                                                                      Las Cruces   Piedraescrita
       Pardiela                                                                                                                                                                                                                               Vega del
                   (17)        R. Lucefécit                                     (15)                                                                         (33)         (81)                                                                                      Marisanchez
                                                                                                                                                                                                                                              Jabalon (33)
                                                                        Aguijon(11)                                  Molino                                                                                                                                         (41)
                                                    R. Alcarrache
                                                                                            Villalba de              (34)

                   R. Degebe                                                                los Barros
                                                                                            (80)                                                                                                      R. Zucar
                                                                                   Ardila                                         Llerena
           Monte                                            Brovales
                                   Alqueva                                         (100)                                          (7)
           Novo                                             (7)
                                   (3150)
           (15)
                                                          R. Ardila
                                                                       Valuengo
                                                                       (10)                   Tentudia
                                                    Pedrogão                                  (5)
                                                    (60)

                                                     R. Enxoé           Enxoé
                                                                        (10)

                                                                                                                                                                              Legenda
          Oeiras              R.Oeiras
          (12)
                                                            Chança
                                                            (386)                                                                                                                         Barragem em exploração em Espanha
                                                                             R Chança                                                                                                     (25) Capacidade útil
                                        Açude
                                                                                                                                                                                          Barragem em exploração em Portugal
                                        Guadiana
                                                                                                                                                                                          (25) Capacidade útil
                            Alcoutim
                                                                                                                                                                                          Barragem em projecto ou construção
                                                                                 Andevalo
                                                                                                                                                                                          (25) - Capacidade útil
                       Foupana                             S.Lucar               (1025)
                       (130)                               (94)                                                                                                                           Canal de rega
                                                                                  Canal
                                                                                  Chança-Piedras
          R.Odeleite

                    Odeleite
                    (130)
                                      Beliche
             R. Beliche               (48)

                                                                                                                                                                DAMS AND WATER TRANSFERS IN THE GUADIANA RIVER BASIN
                                  ATLANTIC OCEAN

The 1993 Spanish Hydrologic Plan

In 1993 the Spanish Government submitted to public consultation without even previous
communication to the Portuguese Government the Spanish National Hydrologic Plan
where huge transfers of water from the shared river basins in direction to the
Mediterranean region were considered.

News on the eminent
approval of this Plan
reached Portuguese
press and created a
commotion in the
public opinion. A
clamor from civil
society constrained
the Portuguese
government to
become concerned
and raised the
question to the top of
the agenda at the
highest level.

The Albufeira Convention

In 1994 the Governments of the two States
decided to launch the negotiations for a new
water convention.
It was then decided, that this new convention
should be based on the concepts of
environment protection and sustainable
use, should encompass all the transboundary
watercourses, the whole river basins and all
water uses. It was an ambitious project that
took 4 years to conclude.
The parties decided to analyse the situation in
each river basin, to inventory all uses, present
and foreseen in the horizons 2012 and 2020,
to perform backwards reconstitution of the
situation of river flows in pristine
conditions and perform hydrologic and
hydraulic studies to simulate future
conditions for different scenarios.

Key issues

Ø   Cooperation

Ø   Coordination

Ø   Environmental protection

Ø   Sustainable development

Ø   Exchange of information

Ø   Consultation

Ø   Impact mitigation

Ø   Flow guarantees

Key challenges

CHALANGES)
 CHALLENGES	
           DESCRIPTION)IN)THE)CASE)

Water&                  Water& demand& is& very& important& in& some& of& the& Mediterranean& basins& in&
demand/water&           Spain&and&in&some&cases&is&clearly&unsustainable.&
allocation&
                        Because&of&this,&Spanish&authorities&envisaged&to&transfer&water&from&the&
                        Douro&and&Tejo&rivers&towards&those&basins&(Segura,&Sur).&
                        On& the& other& hand,& Portugal& was& entitled& by& the& 1968& treaty& to& build& a&
                        large&dam&(Alqueva)&in&the&Guadiana&River&and&divert&part&of&the&water&for&
                        irrigation&in&the&Sado&River&basin.&

Water&                 All& issues& related& to& water& quality& and& biodiversity& are& regulated& by& EU&
quality/biodiversity&& directives,&namely&WFD.&
                        Nevertheless,& cooperation& between& riparian& States& was& needed& for&
                        environmental&protection&at&river&basin&level.&

Water&scarcity&         Water& scarcity& is& very& important& in& the& Guadiana& River& basin& and& in&
                        Mediterranean&basins&in&Spain&and&Sado&and&Algarve&basins&in&Portugal.&
                        Both&States&had&important&projects&for&further&regulation&of&Guadiana&and&
                        for&transfers&of&water&towards&some&of&those&other&basins.&
                        Furthermore,& Spain& envisaged& the& transfer& of& water& from& the& Douro& and&
                        Tajo&River&to&the&Segura&River&basin&

Approach to cooperation

ELEMENTS'              DESCRIPTION'OF'THE'INSTRUMENTS'IN'THE'CASE'

Legal&frameworks&      Two&bilateral&treaties,&several&EU&directives&and&the&UNECE&
for&cooperation&       environmental&conventions&were&relevant:&
                          1964&treaty&on&hydropower&in&the&Douro&River&(limited&to&the&border&
                             stretches);&
                          1968&treaty&on&hydropower&and&other&water&uses&in&the&Minho,&Lima,&
                             Tejo&and&Guadiana&Rivers&(border&stretches);&
                          1991&UNECE&Convention&on&EIA&in&a&transboundary&context&(Espoo);&
                          1992&UNECE&Convention&on&the&Protection&and&Use&of&Transboundary&
                             Watercourses&and&International&Lakes&(Water&Convention,&1992);&

Institutions&for&      Joint&Commission&responsible&for&the&follow&up&of&1964&and&1968&treaties&
cooperation&           (active&since&1927);&
                       High&level&meetings&(ministerial);&
                       Working&group&in&charge&of&the&drafting&of&the&new&convention;&
&

Approach to cooperation

ELEMENTS'              DESCRIPTION'OF'THE'INSTRUMENTS'IN'THE'CASE'

Information*           Each*Party*is*responsible*for*monitoring*a*set*of*parameters*(both*
Exchange*and*          quantitative*and*qualitative)*in*its*own*territory*and*reporting*them*to*
monitoring*            the*other*Party.*
                       Besides*this,*the*Parties*exchange*information*on*warnings*and*
                       emergency*situations*and*on*programs*and*projects*that*may*have*a*
                       transboundary*impact.*

Incentives*for*        Without*cooperation*the*Parties*would*have*to*find*other*solutions*for*
cooperation*           the*disputes*that*would*arise*from*the*use*of*water*in*water*scarce*
                       areas;*
                       Funding*for*projects*would*be*problematic,*with*each*Party*raising*
                       obstacles*to*other*Party’s*projects.*

Benefit*Sharing*       Portugal*benefits*from*regulation*of*river*flows*in*upstream*(Spanish)*
                       reservoirs*in*the*Douro*and*Tejo*Rivers,*and*water*in*Alqueva*reservoir*
                       would*be*used*for*urban*water*supply*and*irrigation*in*both*countries.**

Mediation*and*         Has*never*happened*but*a*mechanism*for*dispute*resolution*is*foreseen*
dispute*resolution*    in*all*treaties.*

Others*–*confidence*   Confidence*building*and*good*relationship*between*the*administrations*
building*              and*the*people*in*charge*has*proved*to*be*very*important.**

Making cooperation happen

!                      DESCRIPTION+

Key!elements!and! The!key!elements!for!the!success!of!the!negotiations!were:!
qualities!of!the!
                    Open! exchange! of! points! of! view! on! all! issues! at! stake! and! flexibility! to!
process!that!help!
                       accommodate!legitimate!points!of!view!of!the!other!party;!
resolve!
conflicts/promoted! Availability! of! information! on! water! issues,! water! quality,! water! uses,! historical,!
cooperation!           present! and! foreseen;! all! the! information! required! was! openly! exchanged!
                       between!the!two!parties;!
                       Common! legal! and! institutional! framework! as! both! parties! were! already! by! that!
                         time!EC!MemberEStates;!
                       A! tradition! of! cooperation! on! issues! related! to! transboundary! watercourses! that!
                           dates!from!the!19th!century!(1867);!
                       The!existence!of!a!joint!commission!first!created!in!1927!that!was!meeting!regularly!
                          for!the!implementation!of!1964!and!1968!conventions;!
                       Good! relationship! between! all! engaged! in! the! negotiations! in! spite! of! the!
                         differences!of!opinion;!
                       Engagement!of!skilled!hydraulic!engineers,!jurists!and!diplomats!in!the!preparation!
                          of!technical!documents,!drafts!of!the!terms!of!agreement!and!the!negotiations;!
                       Political!willingness!of!both!Governments!to!arrive!to!a!conclusion!in!due!time;!
                       Frequent! meetings! at! the! highest! level! (Ministers! of! the! Environment! and! even!
                          Prime!Ministers)!were!the!issue!was!in!the!top!of!the!agenda;!
!

Lessons learned

LESSONS&LEARNED&                         EXPLANATION/COMMENT&

1" Engage" diplomats" as" soon" as" Diplomats"are"experts"in"negotiations"and"will"bring"a"sense"
possible"in"the"process;"           of"realism"to"the"negotiations;"

2" Engage" experts" on" International" A" river" basin" agreement," be" it" a" treaty," a" convention," an"
Public"Law"in"the"negotiations;"       exchange" of" diplomatic" notes" between" the" two"
                                       governments" or" whatever" you" call" it," is" always" a" legally"
                                       binding"document"that"will"last"for"many"years;"

3" Engage" skilled" multidisciplinary" A" good" agreement," an" agreement" that" will" last" many" years"
team" of" experts" for" the" preparation" and" respond" to" your" expectations" must" have" a" sound"
of"technical"documents"                   technical"basis;"

4" Try" hard" to" accommodate" all" A"good"agreement"is"always"a"winFwin"agreement;"if"it"is"not"
relevant" issues" raised" by" the" other" good"to"one"of"the"parties"it"will"not"work"and"will"never"be"
party"                                    fully"implemented,"will"never"accomplish"your"expectations;"
"

Lessons learned

LESSONS&LEARNED&                          EXPLANATION/COMMENT&

5"Do"not"try"to"evade"difficult"issues" Reopening"negotiations"is"always"difficult."Take"advantage"of"
by" postponing" them" to" the" future," the"mood"to"negotiate"of"the"other"party"as"political"changes"
unless"this"is"unavoidable"             that" may" occur" at" any" moment" may" change" it" from" day" to"
                                        night;""

6"Take"the"chance,"be"opportunistic;" Jump" into" the" opportunity" as" it" may" well" not" present" itself"
                                      again"for"many"years;"all"negotiation"requires"the"good"will"
                                      of"two"parties;"

7" Be" rigorous" in" drafting," avoid" Ambiguities" will" create" difficulties" in" the" implementation"
ambiguous"formulations"as"much"as" and"may"jeopardise"expected"results"
possible""
"

Thank you for your attention

        pedrocunhaserra@gmail.com