THE LEGAL QUALIFICATION OF ARTICLE 4 WFD. Jasper van Kempen

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1 THE LEGAL QUALIFICATION OF ARTICLE 4 WFD Jasper van Kempen 1

2 PRESENTATION OUTLINE 1. WFD implementation: different views 2. Definitions: obligations of best efforts and results 3. Qualification method 4. Application of the method to Article 4 WFD 2

3 ARTICLE 4: DIFFERENT VIEWS Country Netherlands Germany (Nordrhein-Westfalen) France UK (England & Wales) Obligation of... First: best efforts, now: results Results Results Results (probably) Denmark? Luxembourg Belgium (Flanders) Belgium (Wallonia) Italy Romania Spain Portugal Results Best efforts (probably) Best efforts Results (probably) Results (probably) Results Best efforts 3

4 THE DIFFERENCE BETWEEN THE TWO OBLIGATIONS: ECJ Obligation of best efforts: All reasonable measures Achieve the result within Targeted action sincerely coherent whole Of no importance whether result is actually achieved Obligation of results: the deadline Reasonableness doesn t seem to play a role Exemptions (Absolute physical impossibility) Who determines what is reasonable? 4

5 TWO TYPES OF OBLIGATIONS HOW TO RECOGNIZE THEM? Previous case law The wording indicates that Member States take the necessary measures to achieve some required water status The directive poses a deadline to reaching this water status, which is longer than the time needed to transpose the directive in order to enable Member States to actually achieve the goal The directive indicates several exclusive exemptions which would excuse Member States to not reach the required water status within the deadline The required result should be very precise and specific, formulated in clear and unequivocal terms and supplemented by detailed requirements 5

6 ARTICLE 4 (1) WFD In making operational the programmes of measures specified in the river basin management plans: (a) for surface waters (i) Member States shall implement the necessary measures to prevent deterioration of the status of all bodies of surface water, subject to the application of paragraphs 6 and 7 and without prejudice to paragraph 8; (ii) Member States shall protect, enhance and restore all bodies of surface water, subject to the application of subparagraph (iii) for artificial and heavily modified bodies of water, with the aim of achieving good surface water status at the latest 15 years after the date of entry into force of this Directive, in accordance with the provisions laid down in Annex V, subject to the application of extensions determined in accordance with paragraph 4 and to the application of paragraphs 5, 6 and 7 without prejudice to paragraph 8; (iii) Member States shall protect and enhance all artificial and heavily modified bodies of water, with the aim of achieving good ecological potential and good surface water chemical status at the latest 15 years from the date of entry into force of this Directive, in accordance with the provisions laid down in Annex V, subject to the application of extensions determined in accordance with paragraph 4 and to the application of paragraphs 5, 6 and 7 without prejudice to paragraph 8; (iv) Member States shall implement the necessary measures in accordance with Article 16(1) and (8), with the aim of progressively reducing pollution from priority substances and ceasing or phasing out emissions, discharges and losses of priority hazardous substances without prejudice to the relevant international agreements referred to in Article 1 for the parties concerned; (b) for groundwater (i) Member States shall implement the measures necessary to prevent or limit the input of pollutants into groundwater and to prevent the deterioration of the status of all bodies of groundwater, subject to the application of paragraphs 6 and 7 and without prejudice to paragraph 8 of this Article and subject to the application of Article 11(3)(j); (ii) Member States shall protect, enhance and restore all bodies of groundwater, ensure a balance between abstraction and recharge of groundwater, with the aim of achieving good groundwater status at the latest 15 years after the date of entry into force of this Directive, in accordance with the provisions laid down in Annex V, subject to the application of extensions determined in accordance with paragraph 4 and to the application of paragraphs 5, 6 and 7 without prejudice to paragraph 8 of this Article and subject to the application of Article 11(3)(j); (iii) Member States shall implement the measures necessary to reverse any significant and sustained upward trend in the concentration of any pollutant resulting from the impact of human activity in order progressively to reduce pollution of groundwater. Measures to achieve trend reversal shall be implemented in accordance with paragraphs 2, 4 and 5 of Article 17, taking into account the applicable standards set out in relevant Community legislation, subject to the application of paragraphs 6 and 7 and without prejudice to paragraph 8; (c) for protected areas Member States shall achieve compliance with any standards and objectives at the latest 15 years after the date of entry into force of this Directive, unless otherwise specified in the Community legislation under which the individual protected areas have been established. 6

7 ARTICLE 4 (1) WFD 1. Prevent the deterioration of the status of all bodies of surface water 2. Good surface water chemical status in Good surface water ecological status in Good ecological potential of all artificial and heavily modified bodies of water in A progressive reduction of pollution from priority substances and ceasing out emissions etc 6. Prevent the deterioration of the status of all bodies of groundwater 7. Good groundwater chemical status in Good groundwater quantitative status in Reverse any significant and sustained upward trend of pollution 10. Achieve compliance with all standards and objectives for protected areas 7

8 CONCLUSIONS Obligation Deadline Exemptions Wording Conclusion 1 x 2 x x Precise and specific results; detailed requirements in the form of limit values Obligation of results 3 x x Precise and specific results; detailed requirements (which are set at the Member State level) Obligation of results 4 x x Precise and specific results; detailed requirements (which are set at the Member State level) Obligation of results 5 Not formulated in clear and unequivocal terms; vague ( progressive reduction ) Obligation of best efforts 6 x 7 x x Precise and specific results; detailed requirements (except for significant damage ) in the form of limit values Obligation of results 8 x x No detailed requirement ( long term, significant damage ), except for the requirement of no intrusions 9 x No clear and unequivocal terms; vague ( progressive reduction ) No intrusions: results; rest undecided probably one of best efforts 10 x? See obligations 1-9 See obligations 1-9 8

9 ARTICLE 4 (1) WFD In making operational the programmes of measures specified in the river basin management plans: (a) for surface waters (i) Member States shall implement the necessary measures to prevent deterioration of the status of all bodies of surface water, subject to the application of paragraphs 6 and 7 and without prejudice to paragraph 8; (ii) Member States shall protect, enhance and restore all bodies of surface water, subject to the application of subparagraph (iii) for artificial and heavily modified bodies of water, with the aim of achieving good surface water status at the latest 15 years after the date of entry into force of this Directive, in accordance with the provisions laid down in Annex V, subject to the application of extensions determined in accordance with paragraph 4 and to the application of paragraphs 5, 6 and 7 without prejudice to paragraph 8; (iii) Member States shall protect and enhance all artificial and heavily modified bodies of water, with the aim of achieving good ecological potential and good surface water chemical status at the latest 15 years from the date of entry into force of this Directive, in accordance with the provisions laid down in Annex V, subject to the application of extensions determined in accordance with paragraph 4 and to the application of paragraphs 5, 6 and 7 without prejudice to paragraph 8; (iv) Member States shall implement the necessary measures in accordance with Article 16(1) and (8), with the aim of progressively reducing pollution from priority substances and ceasing or phasing out emissions, discharges and losses of priority hazardous substances without prejudice to the relevant international agreements referred to in Article 1 for the parties concerned; (b) for groundwater (i) Member States shall implement the measures necessary to prevent or limit the input of pollutants into groundwater and to prevent the deterioration of the status of all bodies of groundwater, subject to the application of paragraphs 6 and 7 and without prejudice to paragraph 8 of this Article and subject to the application of Article 11(3)(j); (ii) Member States shall protect, enhance and restore all bodies of groundwater, ensure a balance between abstraction and recharge of groundwater, with the aim of achieving good groundwater status at the latest 15 years after the date of entry into force of this Directive, in accordance with the provisions laid down in Annex V, subject to the application of extensions determined in accordance with paragraph 4 and to the application of paragraphs 5, 6 and 7 without prejudice to paragraph 8 of this Article and subject to the application of Article 11(3)(j); (iii) Member States shall implement the measures necessary to reverse any significant and sustained upward trend in the concentration of any pollutant resulting from the impact of human activity in order progressively to reduce pollution of groundwater. Measures to achieve trend reversal shall be implemented in accordance with paragraphs 2, 4 and 5 of Article 17, taking into account the applicable standards set out in relevant Community legislation, subject to the application of paragraphs 6 and 7 and without prejudice to paragraph 8; (c) for protected areas Member States shall achieve compliance with any standards and objectives at the latest 15 years after the date of entry into force of this Directive, unless otherwise specified in the Community legislation under which the individual protected areas have been established. 9

10 ARTICLE 4 (1) WFD Bij de tenuitvoerlegging van het in het stroomgebiedsbeheerplan omschreven maatregelenprogramma: a) voor oppervlaktewateren i) leggen de lidstaten de nodige maatregelen ten uitvoer ter voorkoming van achteruitgang van de toestand van alle oppervlaktelichamen, onder voorbehoud van de toepassing van de leden 6 en 7 en onverminderd lid 8; ii) beschermen, verbeteren en herstellen de lidstaten alle oppervlaktewateren, onder voorbehoud van punt iii) voor kunstmatige en sterk veranderde waterlichamen, met de bedoeling uiterlijk 15 jaar na de datum van inwerkingtreding van deze richtlijn een goede toestand van het oppervlaktewater overeenkomstig bijlage V te bereiken, onder voorbehoud van verlengingen in overeenstemming met lid 4 en toepassing van de leden 5, 6 en 7 en onverminderd lid 8; iii) beschermen en verbeteren de lidstaten alle kunstmatige en sterk veranderde waterlichamen, met de bedoeling uiterlijk 15 jaar na de datum van inwerkingtreding van deze richtlijn een goed ecologisch potentieel en een goede chemische toestand van het oppervlaktewater overeenkomstig bijlage V te bereiken, onder voorbehoud van verlengingen in overeenstemming met lid 4 en toepassing van de leden 5, 6 en 7 en onverminderd lid 8; iv) leggen de lidstaten overeenkomstig artikel 16, leden 1 en 8, de nodige maatregelen ten uitvoer, met de bedoeling de verontreiniging door prioritaire stoffen geleidelijk te verminderen en emissies, lozingen en verliezen van stoffen [waarschijnlijk worden hier prioritair gevaarlijke stoffen bedoeld, gezien de tekst in andere talen. JvK] stop te zetten of geleidelijk te beëindigen, onverminderd de voor de betrokken partijen relevante internationale overeenkomsten van artikel 1; b) voor grondwater i) leggen de lidstaten de nodige maatregelen ten uitvoer met de bedoeling de inbreng van verontreinigende stoffen in het grondwater te voorkomen of te beperken en de achteruitgang van de toestand van alle grondwaterlichamen te voorkomen onder voorbehoud van de toepassing van de leden 6 en 7 en onverminderd lid 8 van dit artikel, en onder voorbehoud van de toepassing van artikel 11, lid 3, onder j); ii) beschermen, verbeteren en herstellen de lidstaten alle grondwaterlichamen en zorgen voor een evenwicht tussen onttrekking en aanvulling van grondwater, met de bedoeling uiterlijk 15 jaar na de datum van inwerkingtreding van deze richtlijn een goede grondwatertoestand overeenkomstig de bepalingen van bijlage V te bereiken, onder voorbehoud van verlengingen overeenkomstig lid 4 en toepassing van de leden 5, 6 en 7 en onverminderd lid 8 van dit artikel en onder voorbehoud van toepassing van artikel 11, lid 3, onder j); iii) leggen de lidstaten de nodige maatregelen ten uitvoer om elke significante en aanhoudende stijgende tendens van de concentratie van een verontreinigende stof ten gevolge van menselijke activiteiten om te buigen, teneinde de grondwaterverontreiniging geleidelijk te verminderen. Maatregelen gericht op de ombuiging van de stijgende tendens worden ten uitvoer gelegd overeenkomstig artikel 17, leden 2, 4 en 5, waarbij rekening wordt gehouden met de van toepassing zijnde normen van de relevante communautaire wetgeving, onder voorbehoud van toepassing van de leden 6 en 7 en onverminderd lid 8 van dit artikel; c) voor beschermde gebieden uiterlijk 15 jaar na de datum van inwerkingtreding van deze richtlijn voldoen de lidstaten aan alle normen en doelstellingen, voorzover niet anders bepaald in de communautaire wetgeving waaronder het betrokken beschermde gebied is ingesteld. 10

11 QUESTIONS Question to you: what does your Member State think about the legal qualification of Article 4? 11