% & 7 & - 0 1 . & / 5 0 ' 5 ) & " $ 5 * 0 / 1 - " / ' 0 3 5 ) &
$ 0 / $ 0 3 % * " m 4 " - 5 0 1 * - 0 5 1 3 0 + & $ 5
" 3 ( & / 5 * / " m 6 3 6 ( 6 " :
CODE 5011.1
Jorge Montaño Xavier
Doctor in Geologic Sciences
montanox@movinet.com.uy
Consultant
& 9 & $ 6 5 *7 & & 9 5 & / % & % 4 6 . . " 3 :
. P O U F W J E F P
% F D F N C F S
DEVELOPMENT OF THE ACTION PLAN FOR THE CONCORDIA SALTO (ARGENTINA URUGUAY) PILOT PROJECT
Code: 5011.1
1. INTRODUCTION
It is presented the Executive Extended Summary prepared by the Consultancy for the development of
the Action Plan for the Concordia - Salto Pilot Project (Argentina - Uruguay) within the frame of the
Environmental Protection and Sustainable Development of the Guaraní Aquifer System Project,
financed by the GEF - World Bank and whose management exerts the General Secretariat of OAS
(GS/OAS).
2. CONCORDIA SALTO PILOT AREA (COSAPA)
2.1. Geographic location and scale of work.
The Concordia Salto pilot area is located in both sides of Uruguay River, which is an international
limit between Argentina and Uruguay. The area comprises approximately 500 km2 (figure 1) where
Concordia in Argentina and Salto in Uruguay are the major cities. The proposed scale of work for the
COSAPA is 1:50.000 on agreement with Dr. Lilián Techeira.
2.1.1. Election of the area
For the election of the area and its limit definitions, the following features were considered:
· It has the greatest density of population (approximately 200,000 inhabitants) in the
Argentinean - Uruguayan coastal zone.
· They constitute the most important centers of thermal tourist activity on the GAS, foreseeing
that it will become in medium-term into a Tourist Thermal Attraction of South America.
· It presents interference between wells that brings as a consequence, loss of flowing volumes.
This situation can cause conflicts among neighboring wells at national and transnational level.
· It has the greatest density of wells in the thermal zone.
· It has a homogenous hydrogeologic behavior, being easy to implement the conceptual and
numerical models.
· There are two wells working to a distance of 300m (Daymán and Kanarek), ideal to make the
hydraulic test of interference.
· It is included San Nicanor well (Uruguay) as a "satellite" due to its strategic position as
reference for the hydraulic studies (potentiometry, flow direction, etc).
3. ANALYSIS OF THE PRESENT MANAGEMENT - LEGAL AND INSTITUTIONAL
FRAME
The countries involved in the COSAPA show several similarities in legislation related to the thermal
hydric resource. In table 1 are summarized the authorities and institutions responsible for the
management in each country.
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Dr. JORGE MONTAÑO - Consultant
EXECUTIVE SUMMARY
December 2003
DEVELOPMENT OF THE ACTION PLAN FOR THE CONCORDIA SALTO (ARGENTINA URUGUAY) PILOT PROJECT
Code: 5011.1
Figure 1. Location of the COSAPA
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Dr. JORGE MONTAÑO - Consultant
EXECUTIVE SUMMARY
December 2003
DEVELOPMENT OF THE ACTION PLAN FOR THE CONCORDIA SALTO (ARGENTINA URUGUAY) PILOT PROJECT
Code: 5011.1
Table 1. Analysis of the present management framework in both countries. Summary
ARGENTINA
URUGUAY
TYPE OF
P
M
ROVINCIAL
NATIONAL
ANAGEMENT
NS
O
OF
INSTITUTIONAL
IZATI
Secretaría de Recursos Hídricos de Entre Ríos
Dirección Nacional de Hidrografía
FRAMEWORK
ARGE
GEMENT
AN
NA
G
R
O
IN CH
MA
LAW/
L
C
AW/
C
D
ONTENTS
ONTENTS
ECREE
DECREE
Name: Reglamento de Estudio, Planificación y Preservación del Agua Termal
EWORK
en Entre Ríos
Name: Plan de Gestión del Acuífero Infrabasáltico Guaraní en el
Date: august 21st, 1998
Territorio de la República Oriental del Uruguay
AM
Authorities concerned: Council: Subsecretaría de Turismo; Dirección de
Date: august 3rd, 2000
Hidráulica y Recursos Hídricos; Subsecretaría de Obras y Servicios Públicos;
Authorities concerned: Ministerio de Obras Públicas Dirección
Dirección General de Ciencias, Tecnología y Minería; Dirección General de
Nacional de Hidrografía. Consulting board: Junta Asesora del
NT FR
Acuífero Basáltico Guaraní
E
Decree Desarrollo, Ecología y Control Ambiental
Decree
SIMILARITIES
3413/98 Contents:
214/000
Contents:
K
Exploration and drilling:
Withdrawal and use permission: Chapter I: Art 1 to 9
GEM
R
O
Pre-feasibility request: Art. 12 to 18
Test hole permission: Chapter II: Art 10 to 16
W
SSIBLE
Exploitation authorization: concession Art. 16 to 34
* Coincidences exist on many requisites prior to new undertakings
E
P
O
*Coincidences exist on many requisites prior to new undertakings realization,
realization, work monitoring and technical requirements, except for
MANA
work monitoring and technical requirements, except for some aspects stated
some aspects stated below.
T
F
RAM
below.
L
REN
-
It sets maximum drawdown to 150m from S.L. (art 1)
-
Demand of environmental impact studies (art 22)
EGA
UR
L
Decree
-
It sets maximum instant flow: 150m3/h (art 1)
-
Well closing by competent authority in cases stated in art 31. (also see
Decree
C
3413/98
art 32 and 33)
214/000 -
It sets minimum distance between wells: 2000m (art 1)
-
It anticipates the therapeutic or nourishing use of thermal water (art 6)
-
It sets maximum exploitation rate: 16 h/day
SIMILARITIES
IS
D
Possible categorization of thermal groundwaters as "geothermal resources",
bringing them under control of the present mining legislation, hence
matching them to metalliferous minerals. It would be possible to make
SSIBLE
concessions to private entities for exploitation and profit, changing the
P
O
organizations in charge of the thermal water management and control.
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Dr. JORGE MONTAÑO - Consultant
EXECUTIVE SUMMARY
December 2003
ELABORATION OF THE ACTION PLAN FOR CONCORDIA SALTO (ARGENTINA URUGUAY) PILOT PROJECT
Code: 5011.1
4. IDENTIFICATION OF PROBLEMS
The most important problems that affect the management of the thermal hydric resource are:
a. Possible differences between rules in each country
Solution:
· Analyzing the present rules in both countries (common points, near points and opposite
points) and elaborating a uniform regulation.
· Proposed in: Terms of reference nº 2, 9 and 12 (CHAP 11 of the Complete Final Report).
b. Well interference
Solution:
· Establishing from hydraulic tests the radii of influence of wells and determining the optimal
range of well location. Hence, an exploitation based on the appropriate use of the flowing and
well pumping in a future scenery.
· Results should be included in future legislations.
· Proposed in: Terms of reference nº 6 and 12 (CHAP 11 of the Complete Final Report).
c. Differences in the projects and constructions of wells
Solution:
· Making regulation rules to project, to construct, to control and to monitor deep wells. These
regulation rules should be accepted and agreed for their immediate application in the
COSAPA.
· Proposed in: Terms of reference nº 9 and 12 (CHAP 11 of the Complete Final Report)
d. Lack of water usage planning - Management of water exceeding in the thermal resorts.
Solution:
· Studying the efficiency conditions of water distribution and use. Water reuse with or without
heating, always considering the characteristics of the thermal resorts. The results of these
works should be included in a plan of recommendations to save water.
· Evaluating the possible Environmental Impacts derived from the disposal of exceeding
thermal water.
· Defining precisely the existing demand in the thermal resorts and recommending the use of
cold water wells as supply sources for baths, motels, laundries and irrigation. In this way, an
optimum use of the thermal resource will achieve.
· Proposed in: Terms of reference nº 7, 8 and 12 (CHAP 11 of the Complete Final Report).
e. Insufficient formal and non-formal education provoking a lack of qualified technical
personnel
Solution:
· Courses: they must be created to satisfy the detected demand, generating two kind of courses:
one for technical levels and the other one for professional levels.
· Communication: planning the introduction of different means of communication to cover the
lack of "water culture". This allows planting in people minds the "Resource Protection"
concept as a desirable value.
· Proposed in: Terms of reference nº 10 and 11 (CHAP 11 of the Complete Final Report).
f. Water salinization risk of the aquifer in the area
Solution:
· The water gain of salts in the GAS has been verified during 10 years operation of thermal
wells in Uruguay. In order to measure and to predict the evolution of this chemical change, a
hydrogeochemical model has to be developed.
· Proposed in: Terms of reference nº 4 and 6 (CHAP 11 of the Complete Final Report).
g. Territorial planning
Solution:
· A future territorial planning that will consider the thermal water sources protection is
imperative.
· Proposed in: Terms of reference nº 6, 7 and 12 (CHAP 11 of the Complete Final Report).
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Dr. JORGE MONTAÑO - Consultant
EXECUTIVE SUMMARY
December
2003
ELABORATION OF THE ACTION PLAN FOR CONCORDIA SALTO (ARGENTINA URUGUAY) PILOT PROJECT
Code: 5011.1
5. INSTITUTIONAL STRUCTURE PROPOSAL
The Institutional Structure scheme proposed by the consultancy is showed in figure 2.
Superior
GEF/
BINATIONAL COUNCIL
Council
World Bank
General Direction
Executive Conducting
General
Argentina -
Uruguay
Secretariat
of
Guarani
Project
Technical Direction
Technical Direction
Argentina
Uruguay
UNEP
UNEP
UNEP
UNEP
Brazil
Argentina
Uruguay
Paraguay
Binational
Committee
Figure 2. Institutional Structure Proposal
At first stage, as an initial structure within the COSAPA management strategy, it is proposed the
creation of a Bi-national Committee. As a long-term structure, it is proposed the creation of a Bi-
national Council, composed of a General Direction, Executive Conducting and Technical Direction in
each country. Table 2 summarizes the integrants and functions of each institution created.
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Dr. JORGE MONTAÑO - Consultant
EXECUTIVE SUMMARY
December
2003
ELABORATION OF THE ACTION PLAN FOR CONCORDIA SALTO (ARGENTINA URUGUAY) PILOT PROJECT
Code: 5011.1
Table 2. Proposed structure for short and medium-term.
INSTITUTION INTEGRANTS
FUNCTION
- Intendencia Municipal de Salto
C
- Municipalidad de Concordia
ONCORDIA
To coordinate and articulate activities to
- Politic Representatives (ediles)
SALTO PILOT
develop in the COSAPA, due to its
- Public and private users
strategic location on the area, its integration
AREA
- Universities
based on multiple actors and to the local
BINATIONAL
- NGO from each country located on the area knowledge for quick implementation of
C
- Junta de aguas de Uruguay
OMMITTEE
tasks.
- Secretaría de Recursos de Entre Ríos.
COSAPA
To generate a reasonable continuity in the
INITIAL STAGE
BINATIONAL
- Concordia representative
coordination and implementation of tasks
- Salto representative
COMMITTEE
to be carried out by the Binational
SECRETARIAT
Committee
COSAPA
- General Direction
B
- Executive Conducting
INATIONAL
C
- Technical Direction
OUNCIL
- Ministerio de RREE Argentina
- Ministerio de RREE Uruguay
- Subsecretaría de Recursos Hídricos
(SSRH - Argentina)
- To agree at international level on a
- Secretaría de Recursos Hídricos (SSRH
policy for the COSAPA
I
NATIONAL
Entre Ríos)
B
- Secretaría de Desarrollo Sustentable y - To intercede on conflicts that may arise
OUNCIL
C
Medio Ambiente (SDSMA - Argentina)
and to try to conciliate interests of both
- Dirección Nacional de Hidrografía (DNH -
countries.
ENERAL DIRECTION
MTOP - Uruguay)
AGE
G
COSAPA
- Dirección Nacional de Medio Ambiente
T
(DINAMA MVOTMA - Uruguay).
· COSAPA management organism. It
participates in the elaboration of
management plan. Also, it carries out
the execution and evaluation of such
COSAPA
plans
BINATIONAL
- Subsecretaría de Recursos Hídricos de · To rule and regulate
Entre Ríos (in Argentina)
COUNCIL
- Dirección Nacional de Hidrografía (in · To participate in planning processes,
EXECUTIVE
Uruguay)
pursuing and in the evolution of the
CONDUCTING
SAG management in the pilot area
· To organize monitoring tasks,
database and future prosecution
authority for the resource
MEDIUM TO LONG-TERM S
In Argentina: "ad hoc" committee composed ·
of: a representative and its alternate from
To give advise and technical support to
SSRH, SDSMA de la Nación, la SSRH de
the management organism.
Entre Ríos and from Municipalidad de · To make suggestions for ruling,
COSAPA
Concordia (in Argentina), with SSRH-ER monitoring, databases, and analysis of
BINATIONAL
acting as Executive Secretariat. It is the aquifer evolution.
C
·
OUNCIL
suggested the inclusion of user's To create management indicators
T
representatives within the structure.
allowing to establish the evolution and
ECHNICAL
the impact of the management actions in
DIRECTION
In Uruguay: "ad hoc" committee composed
the COSAPA.
of: DNH and Junta Asesora del Acuífero ·
Infrabasáltico, acting DNH as the Executive To stimulate participation mechanisms
Secretariat of this committee
with the different social actors.
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Dr. JORGE MONTAÑO - Consultant
EXECUTIVE SUMMARY
December
2003
ELABORATION OF THE ACTION PLAN FOR CONCORDIA SALTO (ARGENTINA URUGUAY) PILOT PROJECT
Code: 5011.1
6, PRELIMINARY PROGRAM OF ACTIONS
6.1. Action Plan Proposal
Every management plan has to be realistic, socially accepted, executable, and flexible enough to be
adapted to each local and temporary circumstance. And it also must be integrated into the set of
resources the community requires.
Based on the mentioned above, it is proposed the following components that should be developed in
the Terms of Reference that will be implemented in the Concordia Salto pilot area. The actions or
activities for short, medium and long-term are summarized in table 3.
Table 3. Summary of Proposed Activities
Short-Term
Medium and Long-Term
INITIAL STAGE
DEVELOPMENT
CLOSING
(6 months)
(2 years)
(6 months to 1 year)
· Numeric and Hidrogeologic
Conceptual Model and
· Monitoring of Activities
· Data Bank
Environmental Impact Evaluations
Elaboration
· In common project and thermal wells
construction regulations
· Results Communications
· Immediate
· Social Communication
Actions of
· Institutional strengthening, formal
· Final report and action proposal
Proposed activities
Coordinated
Management
and non-formal education
beyond project's temporal scope
7: ACTION PLAN
In table 4 is summarized the Action Plan that would be carried out for short-term. This schedule is
tentative and will be adapted at the beginning of the actions of the Binational Committee and to the
Guaraní Aquifer Project schedule.
Table 4. Short-term Activities
Activities
dec-03
jan-04
feb-04
mar-04
apr-04
may-04
jun-04
Information compilation, Database elaboration and
GIS implementation
Interaction between Concordia and Salto communities and the
UNEP of both countries
Dialogue with the groundwater resource
authorities of both countries
Creation of the Pilot Area Concordia-Salto Binational
Committee Secretariat
New well fulfillment communication
Analysis of economic and social info in a whole, related to
thermal water use
Communication events organization about the aquifer
management
Measure instruments installation in termal wel s
- 9 -
Dr. JORGE MONTAÑO - Consultant
EXECUTIVE SUMMARY
December
2003
ELABORATION OF THE ACTION PLAN FOR CONCORDIA SALTO (ARGENTINA URUGUAY) PILOT PROJECT
Code: 5011.1
7.1. Immediate coordinated-management actions
A framework for co-management in a transnational area must have the capability of establishing
common attributes to different social and institutional entities, from different legal scopes (as in the
case of the COSAPA). Care must be taken of not changing or violating the different identities
previously created in each country.
In a first approach for the management frame constitution, it is possible to start identifying
spontaneous interactions based on the analysis of the similarities on legislation of each country. This
activity will be included within the Term of Reference Nº 2 (Chapter 11 of the Complete Final
Report).
It is proposed the following short-term actions as well:
1. Interaction between Concordia and Salto communities and the UNEP of each country it is proposed
to create a monthly meeting mechanism, coordinated by the Project-GAS Secretariat, who convokes
local Commissions, grouped within the Bi-national Committee and the UNEP of each country. These
meetings will try to reach three basic objectives: First, to narrow the bonds between the institutions.
Second, to bring forward the updated advances. Third, to deepen in future actions making the
necessary adjustments to take ahead the schedule.
2. To gather the involved authorities of each country related to the groundwater resources to begin a
dialogue forum where common points can be identified in the hydric resources legislation. And to
agree on the beginning of an immediate transnational management built up on coincidences.
3. Accomplishment of new wells communication. One of the basic tasks to cover by this Bi-national
Committee is to receive the information about new well projects that will be constructed in the pilot
area. So, during the November 2003 - April 2004 period, the committee will try to know in advance
about the future well projects in the pilot area.
4. Analysis of economic and social information with respect to the thermal water use. It is very
important to be able to know the economic and social impact on the pilot area caused by the thermal
water use. With this in mind, it is proposed the creation of a Commission in charge of the compilation
and processing of the information, in the scope of the Binational Committee.
5. Organization of communication events about the aquifer management. The idea is to spread the
aquifer topics among local people. This will allow keeping a constant presence in the community,
taking advantage of the synergy effect of combining the interest that already exists by local people and
the planning of communication mechanisms. It is proposed to carry out three communication events in
this first stage.
A first event: at school level, to be carried out in the beginning of the new school year in March 04.
The event will consist in a one-day activity about the aquifer in Concordia and Salto as well.
Participation and promotion of school authorities and municipalities in each country have to be asked
for.
A second event: radio broadcast campaign, for which it is considered advisable to look for local
sponsors institutional referents and companies- that support the concept to spread. The bi-national
range of the local radio broadcaster will allow covering the whole pilot area. The development of this
campaign would last three months, starting on March 04, being necessary to define its frequency and
characteristics.
A third event: corresponding to a technical speech that will be held in March 04. The idea is to
communicate all the advances achieved until the management integration time. Also, to insist on the
aquifer knowledge and its potential, gathering interest and ideas for a future. These must be kept in
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Dr. JORGE MONTAÑO - Consultant
EXECUTIVE SUMMARY
December
2003
ELABORATION OF THE ACTION PLAN FOR CONCORDIA SALTO (ARGENTINA URUGUAY) PILOT PROJECT
Code: 5011.1
mind as main point, looking forward the interest, motivation and commitment of people in the
different scopes of society.
6. Measuring instrument installation: it is proposed to install measurement instruments -temperature,
pressure and volume-, as well as the construction of well stream gauging in the thermal wells that do
not have it yet. This will allow unified and standardized data in each well.
7. Thermal Center Administrators visits to important international Thermal Centers (for instance
Portugal, Italy)
8. Managing Organism Members visits to countries that share transnational aquifers (for instance
Switzerland and France)
9.Fulfilment of rules and regulation in force in both countries
7.2. Information compilation, database elaboration and GIS implementation
All technical-scientific, legal, administrative, economic and social data will have to be successfully
compiled. This information will have to be stored in a database and under a Geographic Information
System (GIS) for better visualization.
8. MEDIUM TO LONG TERM PLAN OF ACTION
This second stage has the objective to obtain a detailed knowledge on geologic and hydrogeologic
aspects that are tied to specific data that will be used for the integrated management and they were not
covered in the short-term stage. For example: exploitable reserves, well interference, protection
perimeter, radius of influence, evolution of chemical and thermal characteristics. All these elements
will contribute in a hydrogeologic conceptual model and a mathematical model to simulate the present
situation and future scenes of the aquifer use, together with social aspects of communication and
institutional strengthening. The results will be added to the management frame coordinated by
COSAPA. The medium to long-term plan of action includes the following points:
8.1. Conceptual and Numerical Hydrogeologic Model and Evaluation of Environmental Impact
a. Geology
b. Geophysics
c. Hydrogeology
d. Hydrochemistry
e. Isotopes
f. Hydrothermalism - Optimization of water supply to thermal resorts
g. Monitoring Network implementation during the COSAPA period
h. Numerical models
i. Vulnerability
j. Environmental Impacts
8.2. Rules and Regulations in common for Thermal Well Project and Construction
8.3. Social Communication
8.4. Institutional Strengthening, formal and non-formal Education
8.5. Development of the Management Model
9. FINAL STAGE
The final stage will consider the closing of the Project, in which three activities will be developed:
· Monitoring Plan
· Communication of Results
· Action proposals beyond the period of the Project
- 11 -
Dr. JORGE MONTAÑO - Consultant
EXECUTIVE SUMMARY
December
2003