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Consultation on Enhancing Security in




                                                       IHP-HELP Centre for Water
                                                         Law, Policy & Science
Afghanistan and Central Asia through




                                                          UNESCO
Regional Cooperation on Water
European Parliament, Brussels




                        Regional Cooperation on Water:
                       An International Law Perspective


 7 December 2010                 Dinara Ziganshina |
Outline
1. Water and international law
2. Existing legal framework
3. Key elements of a legal regime
4. Points for reflection
Water and International Law
Water
  Nature: surface/groundwater, hydrological and climate variability
  Needs: food, energy, environment, health
  Goals: peace and security, development, cultural, spiritual, ecological
  Scale: individual, sub-national, national, transboundary, regional,
   global
  Science: science and technology based
  Actors: states, governmental and non-governmental agencies, groups,
   individuals, IFIs, etc

                               Water management is context specific
                               Dynamic and flexible laws to respond and adapt in a
                                timely manner to new information, situations and
                                scientific understandings
                               Predictability of actions

              “Water is a challenging issue for international law”
                                                                          Philippe Sands QC, 2010

IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO        Slide | 4
International Law
   A product of the wills and practices of states (& indirectly other actors)
   A product of political and social processes
   An instrument to meet changing ends and value
   Lacks centralised authority to determine what law is and enforce it
   Operates in diverse political, economic, social and cultural environment
    and multi-level governance context

                               Stability/Predictability - Change/Flexibility
                               Generality - Specificity
                               Common values - self-interest
                               States - other actors
                               Bilateral, basin, regional, global levels


IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO   Slide | 5
International law as applied to water
        “Rules of the game”                                    3 key functions

   System of rules that                           1. Defines rights and obligations
    regulate the behaviour of
    sovereign states and other                     2. Provides tools for the
    actors in the area of water                       integrity of the regime (e.g.
                                                      monitoring, compliance,
   Framework for decision-                           dispute settlement)
    making and implementation
                                                   3. Allows for modifications of
                                                      the existing regime
   Promotes regional peace
    and security                                      (adaptability)

                      Who gets what, when, why, how?
                                                                    Adapted from Wouters, 2009
IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO     Slide | 6
Who gets what, when, why, how?
  1. Identify the applicable law (exiting legal framework)
      ‘It is not a matter of finding simply an equitable solution, but an
      equitable solution derived from the applicable law’ ICJ, Fisheries
      Jurisdiction, 1974
      Art 38 (1), Statute of the International Court of Justice treaties,
      custom, general principles and subsidiary sources (judicial decisions
      and the writings of experts)
  2. Identify ‘the rules of the game’ (key elements)
      scope, substantive and procedural rules, institutional mechanism
      and dispute settlement




IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO   Slide | 7
Existing legal framework:
treaty and customary law
Treaties between the CARs
   1992 Almaty Agreement – Soviet management status quo, institutions
    (ICWC, BWOs)
   1993 Kzyl-Orda Agreement – Joint activities on Aral Sea crisis
   1996 Agreement – Uzb & Tm water use on Amudarya
   1998 Syrdarya Agreement – Water and energy use in Syrdarya basin
   1998 Environmental Cooperation Agreement - (Kz, Kg & Uzb)
   1999 Parallel Operation of the Energy Systems of CARs
   1999 Int’l Fund for saving Aral Sea (IFAS) status Agreement
   2006 Convention on Sust. Dev’t in CARs (not in force, signed Kz, Tj, Tm)
   Draft Agreements under Aral Sea Basin Programs
      – 1994 – ASBP-1 – regional strategy
      – 2002 – ASBP-2 – 14 legal instruments
      – 2010 – ASBP-3


IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO   Slide | 9
Treaties between Afghanistan and USSR

  1843, 1946, 1958, 1961 &1964 Agreements on
   boundary issues and navigation
  Status of the treaties
      Article 12 of the 1978 Vienna Convention on Succession of States in Respect
      of Treaties
          “succession of States does not affect … obligations *or+ … rights
          established by a treaty … relating to the use of any territory … and
          considered as attached to that territory” (art 11) or “relating to the
          regime of a boundary” (art 12)

       Article 12 reflects a rule of customary international law (ICJ in Gabcikovo-
       Nagymaros case )

IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO   Slide | 10
Participation in regional conventions
 Convention                                                  Af     Kz     Kg Tj        Tm Uz
 1992 UNECE Water                                              ?      √     -      -      -     √
 1991 UNECE Espoo                                              -      √     √      s      -      -
 1992 UNECE Industrial accidents                               -      √     -      -      -      -
 1998 UNECE Aarhus                                             -      √     √      √     √       -
 1992 CIS Environmental Interaction                            -      √     √      √     √      √
 1998 CIS Transboundary Watercourses                           -      s     -      √      -      -
 1998 CIS Informational Cooperation                            -      √     √      √      -      -
1992 Water – UNECE Convention on the Protection and Use of Transboundary Watercourses and
International Lakes (2003 Amendment to allow accession by countries outside the UNECE region, not
in force yet); 1991 Espoo – UNECE Convention on Environmental Impact Assessment in a Transboundary
Context; 1992 Industrial Accidents – UNECE Convention on the Transboundary Effects of Industrial
Accidents; 1998 Aarhus – UNECE Convention on Access to Information, Public Participation in Decision-
Making and Access to Justice in Environmental Matters; 1992 CIS Environmental Interaction –
Agreement on Interaction in the field of ecology and the environmental protection; 1998 CIS
Transboundary Watercourses - Agreement on the Main Principles of Interactions in the field of Rational
Use and Protection of Transboundary Watercourses of the CIS; 1998 CIS Informational Cooperation -
Agreement on Informational Cooperation in the field of Ecology and the Environmental Protection
 IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO           Slide | 11
Participation in global conventions

    Convention                                       Af Kz Kg             Tj       Tm     Uz
    1997 UN Watercourses                              -      -      -       -       -       √
    1971 Ramsar                                       -      √      √       √       √       √
    1992 UN CBD                                       √      √      √       √       √       √
    1992 UN FCCC                                      √      √      √       √       √       √
    1994 UN Desertification                           √      √      √       √       √       √


1997 UN Watercourses - Convention on the Non-navigational Uses of International Watercourses
21 contracting states - 14 short of the number required for entry into force
MEAs: 1971 Ramsar - Convention on Wetlands of International Importance, especially as Waterfowl
Habitat; 1992 CBD – UN Convention on Biological Diversity; 1992 UNFCCC – UN Framework Convention
on Climate Change; 1992 Desertification – UN Convention to Combat Desertification in those Countries
Experiencing Serious Drought and/or Desertification, particularly in Africa

IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO         Slide | 12
Customary law

  • Equitable and reasonable use
  • No significant harm
  • Duty to cooperate
  • Obligation to exchange information on a regular basis and on
    planned measures
  • Obligation to consult with other riparian states
  • Obligation of prior notification on planned measures
  • Obligation to conduct assessments

        1997 UN Convention – codification, clarification and the
             framework for development of customary law
IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO   Slide | 13
Key elements of legal regime or
        ‘the rules of the game’
Identifying the key elements of legal regime

                                                          What uses?
                   Scope                                What waters?
        Who is entitled to use what water
                                                         What users?



                                                       Defines rights &
        Substantive Rules                             responsibilities of
        Equitable and reasonable use                        users



          Implementation
              • Procedural Rules                     Ensures compliance
          • Institutional mechanisms                 and accommodates
                  • Dispute
                                                         changes in
            avoidance/settlement                       circumstances


                                                                     Adapted from Wouters, 2009
IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO     Slide | 15
Key elements of legal regime in the ASB
            Scope                                     Don’t include all riparians
                                                     Ecosystems? Groundwaters?

    Substantive rules                       Equitable and reasonable use; No significant
                                                  harm; Environmental protection

    Procedural rules                         Duty to cooperate; exchange information;
                                                     consult; notify and assess

       Institutional                               Basin: IFAS, ICWC & BWOs
                                            UNECE: MoP, Implementation Committees
       mechanism
                                                CIS: Interstate Ecological Council
                                               Global: MEAs institutional bodies

                                          The Ministers of Water Resources of the CARs,
  Dispute settlement                        impartial 3rd party (1992 Almaty); ad hoc
                                          arbitral tribunal (1998 Syrdarya), other means
IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO    Slide | 16
Points for reflection
Legal cooperation between Afghanistan and CARs
       Existing fora
          Customary law: ERU, no-harm rule, duty to cooperate, exchange
           information, consult, notify, assess
          Water-related MEAs: CBD, UNFCCC, Desertification
       Future developments
          Possibly within 1997 UN and 1992 UNECE Conventions
          New basin agreements to include Afghanistan and specify the general
           rules of customary law for the basin needs
       Focus on implementation and compliance
          Highly contextual substantive rules requires well developed procedural
           and institutional systems at place
          Responses are layered: multi-level governance context
          A sense of obligation must be cultivated at the international level and
           connected into states’ domestic spheres
          Lawyers, policy-makers, and scholars can promote norm-
           internalization – one of the ways to build capacity on IWL
 IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO   Slide | 18
UNESCO HELP Centre for Water Law, Policy
and Science

  • Vision: Water for All
  • Mission: Building a new
    generation of local water
    leaders
  • Core Activities:
     – Research
     – Water Law, Water Leaders

        www.dundee.ac.uk/water

IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO   Slide | 19
Water Law Water Leaders (WLWL)

        Focus: WLWL                                                   Water leader

     “The most creative, fruitful
                                          Water Law
     and innovative thinking
     thrives at the interfaces
     between disciplines where
     ideas, technologies and
     knowledge collide, yielding
     fresh perspectives and
     approaches” (University of
     Dundee Annual Report ‘08)


                   Science                                                         Policy
                                                                                           20
IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO     Slide | 20
Water Law Water Leaders (WLWL)

    WLWL Summer School
    Format and Features
                                                                       Core
                                                                      Modules
    • single modules available
    • distance learning induction              International
    • orientation week
    • 3 x 3 week blocks of tuition               Water Law
    and assessment (3rd week)
    • leadership training
    included.
                    Comparative National Regulation of
                        Water Law        Water Services


IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO   Slide | 21

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Ziganshina law unesco centre_brussels_7 dec 2010_dz_updated

  • 1. Consultation on Enhancing Security in IHP-HELP Centre for Water Law, Policy & Science Afghanistan and Central Asia through UNESCO Regional Cooperation on Water European Parliament, Brussels Regional Cooperation on Water: An International Law Perspective 7 December 2010 Dinara Ziganshina |
  • 2. Outline 1. Water and international law 2. Existing legal framework 3. Key elements of a legal regime 4. Points for reflection
  • 4. Water  Nature: surface/groundwater, hydrological and climate variability  Needs: food, energy, environment, health  Goals: peace and security, development, cultural, spiritual, ecological  Scale: individual, sub-national, national, transboundary, regional, global  Science: science and technology based  Actors: states, governmental and non-governmental agencies, groups, individuals, IFIs, etc  Water management is context specific  Dynamic and flexible laws to respond and adapt in a timely manner to new information, situations and scientific understandings  Predictability of actions “Water is a challenging issue for international law” Philippe Sands QC, 2010 IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO Slide | 4
  • 5. International Law  A product of the wills and practices of states (& indirectly other actors)  A product of political and social processes  An instrument to meet changing ends and value  Lacks centralised authority to determine what law is and enforce it  Operates in diverse political, economic, social and cultural environment and multi-level governance context  Stability/Predictability - Change/Flexibility  Generality - Specificity  Common values - self-interest  States - other actors  Bilateral, basin, regional, global levels IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO Slide | 5
  • 6. International law as applied to water “Rules of the game” 3 key functions  System of rules that 1. Defines rights and obligations regulate the behaviour of sovereign states and other 2. Provides tools for the actors in the area of water integrity of the regime (e.g. monitoring, compliance,  Framework for decision- dispute settlement) making and implementation 3. Allows for modifications of the existing regime  Promotes regional peace and security (adaptability) Who gets what, when, why, how? Adapted from Wouters, 2009 IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO Slide | 6
  • 7. Who gets what, when, why, how? 1. Identify the applicable law (exiting legal framework) ‘It is not a matter of finding simply an equitable solution, but an equitable solution derived from the applicable law’ ICJ, Fisheries Jurisdiction, 1974 Art 38 (1), Statute of the International Court of Justice treaties, custom, general principles and subsidiary sources (judicial decisions and the writings of experts) 2. Identify ‘the rules of the game’ (key elements) scope, substantive and procedural rules, institutional mechanism and dispute settlement IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO Slide | 7
  • 9. Treaties between the CARs  1992 Almaty Agreement – Soviet management status quo, institutions (ICWC, BWOs)  1993 Kzyl-Orda Agreement – Joint activities on Aral Sea crisis  1996 Agreement – Uzb & Tm water use on Amudarya  1998 Syrdarya Agreement – Water and energy use in Syrdarya basin  1998 Environmental Cooperation Agreement - (Kz, Kg & Uzb)  1999 Parallel Operation of the Energy Systems of CARs  1999 Int’l Fund for saving Aral Sea (IFAS) status Agreement  2006 Convention on Sust. Dev’t in CARs (not in force, signed Kz, Tj, Tm)  Draft Agreements under Aral Sea Basin Programs – 1994 – ASBP-1 – regional strategy – 2002 – ASBP-2 – 14 legal instruments – 2010 – ASBP-3 IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO Slide | 9
  • 10. Treaties between Afghanistan and USSR 1843, 1946, 1958, 1961 &1964 Agreements on boundary issues and navigation Status of the treaties Article 12 of the 1978 Vienna Convention on Succession of States in Respect of Treaties “succession of States does not affect … obligations *or+ … rights established by a treaty … relating to the use of any territory … and considered as attached to that territory” (art 11) or “relating to the regime of a boundary” (art 12) Article 12 reflects a rule of customary international law (ICJ in Gabcikovo- Nagymaros case ) IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO Slide | 10
  • 11. Participation in regional conventions Convention Af Kz Kg Tj Tm Uz 1992 UNECE Water ? √ - - - √ 1991 UNECE Espoo - √ √ s - - 1992 UNECE Industrial accidents - √ - - - - 1998 UNECE Aarhus - √ √ √ √ - 1992 CIS Environmental Interaction - √ √ √ √ √ 1998 CIS Transboundary Watercourses - s - √ - - 1998 CIS Informational Cooperation - √ √ √ - - 1992 Water – UNECE Convention on the Protection and Use of Transboundary Watercourses and International Lakes (2003 Amendment to allow accession by countries outside the UNECE region, not in force yet); 1991 Espoo – UNECE Convention on Environmental Impact Assessment in a Transboundary Context; 1992 Industrial Accidents – UNECE Convention on the Transboundary Effects of Industrial Accidents; 1998 Aarhus – UNECE Convention on Access to Information, Public Participation in Decision- Making and Access to Justice in Environmental Matters; 1992 CIS Environmental Interaction – Agreement on Interaction in the field of ecology and the environmental protection; 1998 CIS Transboundary Watercourses - Agreement on the Main Principles of Interactions in the field of Rational Use and Protection of Transboundary Watercourses of the CIS; 1998 CIS Informational Cooperation - Agreement on Informational Cooperation in the field of Ecology and the Environmental Protection IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO Slide | 11
  • 12. Participation in global conventions Convention Af Kz Kg Tj Tm Uz 1997 UN Watercourses - - - - - √ 1971 Ramsar - √ √ √ √ √ 1992 UN CBD √ √ √ √ √ √ 1992 UN FCCC √ √ √ √ √ √ 1994 UN Desertification √ √ √ √ √ √ 1997 UN Watercourses - Convention on the Non-navigational Uses of International Watercourses 21 contracting states - 14 short of the number required for entry into force MEAs: 1971 Ramsar - Convention on Wetlands of International Importance, especially as Waterfowl Habitat; 1992 CBD – UN Convention on Biological Diversity; 1992 UNFCCC – UN Framework Convention on Climate Change; 1992 Desertification – UN Convention to Combat Desertification in those Countries Experiencing Serious Drought and/or Desertification, particularly in Africa IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO Slide | 12
  • 13. Customary law • Equitable and reasonable use • No significant harm • Duty to cooperate • Obligation to exchange information on a regular basis and on planned measures • Obligation to consult with other riparian states • Obligation of prior notification on planned measures • Obligation to conduct assessments 1997 UN Convention – codification, clarification and the framework for development of customary law IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO Slide | 13
  • 14. Key elements of legal regime or ‘the rules of the game’
  • 15. Identifying the key elements of legal regime What uses? Scope What waters? Who is entitled to use what water What users? Defines rights & Substantive Rules responsibilities of Equitable and reasonable use users Implementation • Procedural Rules Ensures compliance • Institutional mechanisms and accommodates • Dispute changes in avoidance/settlement circumstances Adapted from Wouters, 2009 IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO Slide | 15
  • 16. Key elements of legal regime in the ASB Scope Don’t include all riparians Ecosystems? Groundwaters? Substantive rules Equitable and reasonable use; No significant harm; Environmental protection Procedural rules Duty to cooperate; exchange information; consult; notify and assess Institutional Basin: IFAS, ICWC & BWOs UNECE: MoP, Implementation Committees mechanism CIS: Interstate Ecological Council Global: MEAs institutional bodies The Ministers of Water Resources of the CARs, Dispute settlement impartial 3rd party (1992 Almaty); ad hoc arbitral tribunal (1998 Syrdarya), other means IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO Slide | 16
  • 18. Legal cooperation between Afghanistan and CARs  Existing fora  Customary law: ERU, no-harm rule, duty to cooperate, exchange information, consult, notify, assess  Water-related MEAs: CBD, UNFCCC, Desertification  Future developments  Possibly within 1997 UN and 1992 UNECE Conventions  New basin agreements to include Afghanistan and specify the general rules of customary law for the basin needs  Focus on implementation and compliance  Highly contextual substantive rules requires well developed procedural and institutional systems at place  Responses are layered: multi-level governance context  A sense of obligation must be cultivated at the international level and connected into states’ domestic spheres  Lawyers, policy-makers, and scholars can promote norm- internalization – one of the ways to build capacity on IWL IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO Slide | 18
  • 19. UNESCO HELP Centre for Water Law, Policy and Science • Vision: Water for All • Mission: Building a new generation of local water leaders • Core Activities: – Research – Water Law, Water Leaders www.dundee.ac.uk/water IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO Slide | 19
  • 20. Water Law Water Leaders (WLWL) Focus: WLWL Water leader “The most creative, fruitful Water Law and innovative thinking thrives at the interfaces between disciplines where ideas, technologies and knowledge collide, yielding fresh perspectives and approaches” (University of Dundee Annual Report ‘08) Science Policy 20 IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO Slide | 20
  • 21. Water Law Water Leaders (WLWL) WLWL Summer School Format and Features Core Modules • single modules available • distance learning induction International • orientation week • 3 x 3 week blocks of tuition Water Law and assessment (3rd week) • leadership training included. Comparative National Regulation of Water Law Water Services IHP-HELP Centre for Water Law, Policy and Science | under the auspices of UNESCO Slide | 21