Anita Boros, Gyula Koi (eds): Sustainability and Law
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7. Questions of environmental law and environmental administrations (Anita Boros-Petra Stankovics)
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7.4. The administration of water resources management (Petra Stankovics)
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7.4.4. DPSIR analysis of the Water Framework Directive and water resource administration in the EU

7.4.4. DPSIR analysis of the Water Framework Directive and water resource administration in the EU

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The Drivers, Pressures, State, Impact, Response framework (abbr. DPSIR) is a tool used to analyse environmental challenges by linking the causes (drivers and pressures) with their effects (state and impact) and potential solutions (responses). This framework provides a structure within which to present the indicators needed to enable feedback to policy makers on environmental quality and the resulting impact of the political choices made, or to be made in the future.1 Below is a DPSIR analysis applied to the WFD and water resource administration in the EU, particularly in the context of climate change.

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Drivers

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The key drivers of water resource issues in the EU are socio-economic and environmental factors that increase water demand and degrade water quality:

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  • Population growth and urbanisation: The growing EU population, especially in urban areas, increases water consumption and waste production. Urbanisation alters natural water flow patterns, leading to challenges in water management.2
  • Agricultural intensification: Agriculture remains a major water consumer and pollution source in Europe, particularly through nutrient runoff from fertilisers and pesticides.3
  • Climate change: The EU is increasingly experiencing extreme weather conditions, including droughts and floods, which intensify the strain on water resources and create uneven distribution across regions.4
  • Increased frequency of extreme weather events: Climate change leads to more frequent and intense droughts and floods, further straining water management systems.5

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Pressures

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These drivers result in significant pressures on water resources and water-related infrastructure:

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  • Water over-extraction: Excessive water use, especially for agriculture and industry, leads to the depletion of surface and groundwater reserves, exacerbating droughts in already water-scarce regions.6
  • Pollution: Deteriorating water quality from agriculture and industry has led to eutrophication in many European rivers, lakes, and coastal areas. Agricultural runoff, industrial discharges, and untreated urban wastewater contribute to water contamination, affecting ecosystems and human health.7
  • Hydrological alterations: Dams, water diversions, and infrastructure development disrupt the natural flow of rivers and degrade aquatic habitats.8

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The state of water resources in the EU is heavily impacted by these pressures:

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  • Water scarcity: Many parts of southern Europe face chronic water scarcity, with declining groundwater levels and drying rivers. This situation is exacerbated by more frequent droughts.9
  • Flood risks: Central and northern Europe are more prone to increased flooding due to climate change, stressing outdated flood protection systems.10
  • Ecological degradation: The loss of biodiversity in aquatic ecosystems, such as wetlands and riparian zones, is a direct result of water mismanagement and pollution.11

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Impacts

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The pressures on water resources affect both natural systems and human populations:

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  • Economic impacts and social inequality: Uneven water distribution and access to clean water exacerbate social inequalities, particularly in rural and poorer regions.12 Water scarcity and poor water quality can negatively affect agriculture, tourism, and other water-dependent sectors, leading to significant economic losses.13
  • Public health risks: Contaminated water sources increase the risk of waterborne diseases, and insufficient water supply limits sanitation, particularly in vulnerable regions.14
  • Biodiversity loss: Over-extraction and pollution reduce the capacity of freshwater ecosystems to support diverse species, leading to the degradation of key habitats.15

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Response

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In response to these challenges, the EU has implemented a comprehensive water governance framework, centered around the WFD, along with other key legislative initiatives:

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  • WFD: Adopted in 2000, the WFD aims to achieve ‘good status’ for all water bodies in the EU by 2027. It promotes integrated water management, pollution reduction, and sustainable water use through river basin management plans.16
  • Floods Directive: The Floods Directive (2007/60/EC) complements the WFD by requiring Member States to assess flood risks and implement flood management plans, emphasising prevention and preparedness.17
  • EU Adaptation Strategy: In light of climate change, the EU’s Adaptation Strategy supports Member States in developing water resilience policies to manage droughts and floods.18
  • Investment in green infrastructure: There is growing emphasis on natural water retention measures, such as restoring wetlands and riparian forests, which help mitigate both droughts and floods.19
 
Figure 50. Schematic baseline assessment of the DPSIR analysis. Source: by the author, based on Pandey-Shresta (2016)20
 

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The problem with the current water resource administration of the EU that may be concluded from the analysis above is that despite the EU’s robust legislative framework, water management across the EU remains fragmented due to varying regional priorities and regulatory frameworks among Member States, leading to inconsistent application of the WFD.21 Cooperation across transboundary water bodies is often limited by political and administrative barriers.22 Current water rights allocation mechanisms do not adequately address the increasing variability in water availability due to climate change. In some regions, water rights systems are rigid and fail to adapt to the needs of drought-prone or flood-vulnerable areas.23 Although the WFD addresses ecological and qualitative aspects of water, it has been criticised for not fully integrating the challenges posed by climate change, particularly the long-term impacts of extreme weather events.24 The directive’s timelines may not align with the urgency required to respond to climate-induced water stress. Underinvestment in infrastructure: Significant gaps remain in upgrading infrastructure for water storage, treatment, and flood defense. Investment in green infrastructure, such as wetlands and floodplains, remains insufficient to cope with the increasing intensity and frequency of floods.25

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Effective administration of water resources is essential for ensuring sustainable development, protecting ecosystems, and supporting the socioeconomic needs of communities. While all EU Member States are required to adhere to the WFD, their approaches to water protection administration vary significantly due to differences in legislation, governance, and administrative systems. Germany’s federal system allows for regional diversity but requires strong coordination. France’s centralised model ensures coherence but may lack flexibility. Poland’s centralised administration is still evolving, facing challenges related to capacity and local involvement. Spain’s blend of regional autonomy and national oversight reflects its political structure but can result in uneven implementation of water policies.

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As pressures on water resources grow due to climate change, urbanisation, agricultural demands, and industrial activities, the need for robust legal frameworks and effective administrative systems for water conservation has become increasingly urgent. The legal administration of water conservation in the EU is characterised by a complex interplay between EU directives and national laws, shaped by each Member State’s legal traditions, institutional frameworks, and administrative capacities. Germany’s federal system, France’s centralised approach, Poland’s evolving centralised model, and Spain’s hybrid system exemplify the diversity of governance models that influence water conservation outcomes. These models reflect not only the legal and administrative structures but also the socio-political and cultural contexts in which they operate. 
1 Driver-Pressure-State-Impact-Response Framework (DPSIR) | Land & Water | Food and Agriculture Organisation of the United Nations | Land & Water | Food and Agriculture Organisation of the United Nations. (n.d.). URL: https://www.fao.org/land-water/land/land-governance/land-resources-planning-toolbox/category/details/en/c/1026561/ (accessed: 23 September 2024).
2 Voulvoulis, N., Arpon, K. D., & Giakoumis, T. (2017). ‘The EU Water Framework Directive: From great expectations to problems with implementation.’ Science of The Total Environment, 45(2) Vol. 575. 358–366. https://doi.org/10.1016/J.SCITOTENV.2016.09.228
3 García-Ruiz, J. M., López-Moreno, J. I., Vicente-Serrano, S. M., Lasanta, T., & Beguería, S. (2011). ‘Mediterranean water resources in a global change scenario.’ Earth-Science Reviews, 45(3-4), Iss. 105. 121-139. https://doi.org/10.1016/j.earscirev.2011.01.006
4 Petersen-Perlman, J. D., Veilleux, J. C., & Wolf, A. T. (2017). ‘International water conflict and cetion: challenges and opportunities.’ Water International, 42(2), 105-120. https://doi.org/10.1080/02508060.2017.1276041
5 Olesen, J. E., Trnka, M., Kersebaum, K. C., Skjelvåg, A. O., Seguin, B., Peltonen-Sainio, P., ... & Micale, F. (2011). ‘Impacts and adaptation of European crop production systems to climate change.’ European Journal of Agronomy, 19(2), Vol. 34. 96-112. https://doi.org/10.1016/j.eja.2010.11.003
6 Garrick, D., De Stefano, L., Fung, F., O'Donnell, E., & Sinner, J. (2020). ‘Drought and water scarcity: Addressing emerging challenges in water governance.’ Water International, 45(6), 680-686. https://doi.org/10.1080/02508060.2020.1811708
7 European Environment Agency (EEA). (2018). ‘European waters: Assessment of status and pressures 2018.’ EEA Report No 7/2018. https://www.eea.europa.eu/publications/state-of-water
8 Voulvoulis, N., Arpon et al. (2017) op. cit.
9 Carmona, G., Branco, P., Ferreira, M. T., & Ilhéu, M. (2022). ‘River flow management in Europe in light of climate change: challenges and opportunities.’ Environmental Science & Policy, 24(1) Iss.127. 122-135. DOI: https://doi.org/10.1016/j.envsci.2021.10.014
10 Arnell, N. W., & Gosling, S. N. (2016). ‘The impacts of climate change on river flood risk at the global scale.’ Climatic Change, 39(3), Iss. 134. 387–401. https://doi.org/10.1007/s10584-014-1084-5
11 Koundouri, P., Pashardes, P., Swanson, T., & Xepapadeas, A. (2003). The economics of water management in developing countries. Problems, principles and policies. (Cheltenham (UK)-Northampton (US):Edward Elgar Publishing). DOI:10.4337/9781781950517.00001 ISBN 978 1 84376 122 8 URL: https://www.e-elgar.com/shop/gbp/the-economics-of-water-management-in-developing-countries-9781843761228.html (accessed: 23 September 2024)
12 Voulvoulis, N., Arpon et al. (2017) op. cit.
13 Koundouri et al. (2017) op. cit.
14 Arnell & Gosling (2016) op. cit.
15 Carmona-Branco et al. (2022) op. cit.
16 Voulvoulis, N., Arpon et al. (2017) op. cit.
17 Arnell & Gosling (2016) op. cit.
18 Petersen-Perlman et al. (2017) op. cit.
19 Koundouri et al. (2017) op. cit.
20

The figure was compiled by the author of the chapter based on:

Pandey, V. P., & Shrestha, S. (2016). DPSIR framework for evaluating groundwater environment. In: Groundwater Environment in Asian Cities. (Oxford:Buttherworth-Heinemann-Elsevier) 17–37. ISBN no. DOI: https://doi.org/10.1016/b978-0-12-803166-7.00002-7

21 Koundouri et al. (2017) op. cit.
22Tortajada, C. (2010) ‘Water governance: some critical issues.’ International Journal of Water Resources Development, 26(2), 297–307.
23 Garrick-De Stefano et al. (2020) op. cit.
24 Petersen-Perlman et al. (2017) op. cit.
25 Arnell & Gosling (2016) op. cit.
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