|
INTERNATIONAL YEAR OF FRESHWATER
2003
Transboundary Water Management Experience of International River
and
Lake Commissions
Berlin, Villa Borsig, 27 to 30 September Í998
Federal Ministry for the Environment, Nature Conservation and
Nuclear Safety (BMU)
Federal Ministry for Economic Cooperation and Development (BMZ)
Federal Foreign Office (AA)
The World Bank
Development Policy Forum/DSE
Berlin Recommendations
Preface
Water
is a key natural resource that will have a crucial impact on
future prosperity and stability. Yet water is surrounded by
conflicts over its use, and thus by conflicts of interest. The
need to manage the availability of, access to and utilization of
water can act as a catalyst for transboundary cooperation.
Water
as an opportunity for intensive regional cooperation, and an
exchange of corresponding experiences, was the theme of the 1st
Petersberg Round Table on "Global Water Politics – Cooperation
for Transboundary Water Management". The International Dialogue
Forum was held from March 3 to 5, 1998 at Petersberg near Bonn,
and was co-hosted by the German Federal Ministry for Economic
Cooperation and Development (BMZ), the German Federal Ministry
for the Environment, Nature Conservation and Nuclear Safety (BMU),
the German Federal Foreign Office, the Development Policy Forum
of the German Foundation for International Development (DSE),
and the World Bank. According to the Petersberg Declaration, the
integrated management of transboundary river systems is one
especially positive example of such regional cooperation. The
earth’s largest freshwater reserves are contained in its more
than 200 transboundary river systems. For some two-thirds of
these systems, cooperative arrange-ments that are already in
place were developed, and are being implemented and monitored,
by river basin commissions. Their success will be a crucial
factor in effectively tackling the water issue in the future. In
recognition of this fact, the German Government has helped move
the issue of an inte-grated transboundary water management
further up the international agenda. The Petersberg Declaration
was discussed at the Paris Water Confer-ence in March 1998, and
at the 6th Meeting of the Commission on Sustain-able Development
(CSD) of the United Nations in April 1998.
This
Round Table was designed, in dialogue with representatives of
river and lake commissions, to exchange practical experiences
and draw-up recom-mendations as to how such commissions might be
better promoted and supported in the future, for instance
through mutual exchange of informa-tion.
In the
established tradition of the Development Policy Forum, the
meeting addressed those issues on the international agenda where
an informal exchange of experiences can help identify common
ground, and draw-up proposals for further action. A small group,
comprising representatives of German Ministries for various
sectors, high-ranking representatives from the water management
sector, Executive Secretaries of river and lake commissions, and
representatives of international organizations from all parts of
the world, looked at the experiences of international river and
lake commissions in transboundary water management, analyzing
them in detail on the basis of representative case studies
presented by various commissions.
The
objectives of the Round Table were to discuss key challenges,
identify the problem areas which the commissions will face in
the future, and on that basis to elaborate recommendations for
action. This will be relevant both to existing commissions and
to those just emerging. The results and recommen-dations will be
further pursued in the context of Germany’s membership in the
Global Water Partnership, and will provide a solid foundation on
which to build closer cooperation with the commissions.
Gudrun
Kochendörfer-Lucius Fritz
Holzwarth
Director
Deputy Director-Genera
Development Policy Forum
German Federal Ministry
for
DSE
the Environment,
Nature Conservation and
Nuclear Safety (BMU)
A.
OVERVIEW
1.
Introduction. The Development Policy Forum (EF) of the German
Foundation for International Development (DSE) hosted an
International Round Table on "Transboundary Water
Management—Experience of International River and Lake
Commissions" at Villa Borsig, Berlin, from 27 to 30 September
1998. The Round Table was a collaborative effort of the Federal
Ministry for Environment, Nature Conservation and Nuclear Safety
(BMU); the Federal Ministry of Economic Cooperation and
Development (BMZ); the Federal Foreign Office (AA); the World
Bank; and the EF/DSE. The Round Table was designed to provide a
forum for selected representatives of international river and
lake commissions (commissions) to exchange practical experiences
and to identify measures that could be taken to promote and
support their work in the future. The recommendations of the
Round Table will be used as a reference document for German
Government participation in international water resources
management activities and will provide a solid foundation on
which to build closer cooperation with the commissions.
2.
Petersberg Declaration. The Round Table built upon the findings
and recommendations of the International Dialogue Forum on
"Global Water Politics—Cooperation for Transboundary Water
Management" held in Petersberg, near Bonn in March 1998 with the
support of the German Government and the World Bank. The outcome
of this major meeting has been presented in the "Petersberg
Declaration" which focuses on the theme of "Water—A Catalyst for
Cooperation." The declaration emphasizes the importance of water
as an opportunity for regional cooperation; integrated
management of transboundary river and lake systems as an
especially positive example of regional cooperation; and
international commissions in addressing management of
transboundary water resources in the future.
3.
"Breaking Down the Walls in Our Minds." A major focus of the
Berlin Round Table was on "breaking down the walls in our minds"
which separate parties from effectively cooperating in the
management of transboundary rivers and lakes. To achieve this
objective, participants reviewed several framework agreements,
basin-level programs and the on-going activities of a
representative selection of international river and lake
commissions. The discussions focused on three complementary
themes—lessons learned, challenges, and issues for the
future—which provided a basis for identification of an agenda
for the future. The findings are intended to be relevant both to
existing commissions and those just emerging.
B.
LESSONS LEARNED
4. The
need to cooperatively manage shared water resources and to
resolve and prevent conflicts over their use has resulted over
the last century in the establishment of many commissions for
transboundary rivers and lakes throughout the world. During this
period a number of lessons have been learned that can be more
broadly applied to the activities of established and new
commissions.
5.
Importance of the Development and Environment Context. The
approach to cooperative management of transboundary water
resources must be based on a realistic view of the development
and environment context. Realization of the promise of
cooperative management depends on strategies that take full
cognizance of socio-economic development constraints and
issues—such as poverty, scarcity of capital, or the imbalance
and low levels of managerial and technical capacity—and their
often strong linkage to environmental conditions, particularly
those which affect public health or degrade natural resources
such as land and forests. Many initiatives for cooperative water
management were founded on the premise that supply expansion was
the primary goal, but recent experience suggests that this
strategy may not result in environmentally sustainable water use
even where an integrated planning approach was adopted.
Recognition also should be given to special factors such as
widespread use of perverse incentives that cause inefficient
water use.
6.
Wealth of Experience. The diversity of existing river and lake
commissions has yielded a wide range of experience in the
cooperative planning and management of shared water resources.
These experiences range from programs which have adopted a fully
integrated approach to those which have a special focus on
specific elements of the water sector such as water supply,
water quality, power generation or flood control, among other
objectives. Increasingly commissions are addressing
environmental concerns as a primary objective or broadening
their programs to more fully address emerging environmental and
sustainable development issues. Although considerable experience
exists, there are limited fora and mechanisms for the sharing of
knowledge among commissions at the international and regional
levels, which reduces the opportunities for dissemination of
knowledge gained from practical experience.
7.
Diversification in the Roles of Commissions. Commissions are not
static in their nature. The development of conventions and other
related types of agreements, which provide the framework for the
operation of commissions, should allow for modifications in the
role of these organizations over time to meet changing
conditions and to address emerging issues. This is important
since many existing commissions were originally established with
single rather than multiple objectives.
8.
Multiple Approaches and Frameworks for Cooperation. A comparison
of the current structure of commissions suggests that no single
model or approach to cooperation is appropriate for all or even
most situations. This diversity is a major strength and is a
consequence of the large variety of political and physical
settings, various origins and mandates of the institutions, and
the current and emerging problems they are required to address.
There are no fixed models and the range of institutional
examples and experiences should be reviewed in the process of
establishing the framework of any new organization.
9.
Legal Frameworks. Legal instruments are essential, but the
process of their development is as important as their
substantive content. An early agreement without commitment is
not enforceable or sustainable. Also, there is no blueprint for
an effective legal framework for cooperation on transboundary
waters. As a general rule, building confidence and nurturing
cooperative action will lead to the security that a legal
agreement will provide. In some cases, particularly where
issues—such as water quality—are unthreatening, conventions have
been developed early in the cooperative process. In other cases,
particularly where water scarcity puts water allocation at the
center of debate, agreements will be much harder to reach,
requiring a high level of commitment and trust. In this case,
cooperative action and investment may need to be identified in
order to define the legal instruments required to move forward.
Instruments such as agreed minutes and memoranda of
understanding allow expressions of commitment, and create
enabling conditions for collaboration, without an
internationally binding agreement.
10.
Framework Agreements. The "framework agreement," often based on
the principles of the United Nations "Convention on the Law of
Non-Navigational Uses of International Water Courses" (1997), is
an emerging instrument in several regional economic blocks which
defines broad commitment for cooperation. The framework
agreement model has great relevance for transboundary waters,
where early commitment to cooperation is essential but details
of cooperative arrangements need time and dialogue. "Subsidiary"
agreements can be developed later, as information becomes
available and confidence grows to address specific needs such as
quality standards, cost allocation and benefit sharing.
11.
Careful Design of Management Structures. The long-term success
of commissions is based on the careful design of management
structures that provide for effective planning and management,
allow managers and technical staff to operate efficiently and
are affordable for the cooperating parties. The sustainability
of agreements to cooperate is dependent on a number of factors
including their financial structure. The structures that succeed
often are based on joint fact-finding and sharing of information
that create a climate of trust among the parties. The
institutional sustainability of commissions ultimately rests on
a high level of political commitment in each country. Through
this commitment and trust developed with transparent structures,
and with the participation of stakeholders and civil society
institutions, the prospects for sustainability are increased.
Often the capacity and skills of those involved in transboundary
water resources management issues are low in the early phases,
and the use of a "step-by-step" process can be important to the
development of institutions and management structures.
12.
Sustainable Financing of Commissions. The experience of existing
commissions shows that their financial capacity to undertake
activities must be guaranteed by the cooperating parties if they
are to fulfill their mission in a sustainable fashion. High
level political commitment, trust among parties, and stakeholder
and civil society support are elements to be achieved in order
to nurture and assure continued financing. The scope of
commission programs and size of their staff and structure should
be consistent with available financial resources. External
support should not be viewed as a medium or long-term means to
meet the financial requirements of commissions.
13.
National and External Support. Transboundary management
organizations do not need to be large bodies. They can rely on
available national technical support from their cooperating
parties in joint committee structures and avoid becoming
competitors for scarce human and financial resources. External
support is best directed to complement the technical work that
the management institution requires to develop policy and
provide guidance on issues of common interest. It should be
designed with a view toward phasing out donor support for
institutions once their management, administrative and human
resource capacities are adequately developed. The preparation of
Strategic Action Programs (SAPs), as supported by the Global
Environment Facility (GEF) and other organizations, has proven
to be a useful tool for developing experience and expertise
within new commissions and reaching a shared vision by the
cooperating parties concerning priorities for management
activities.
14.
Selection of Staff. Although it is fully recognized that the
executive management of commissions should respond to the
political realities of cooperating parties, these individuals
should have broad qualifications that allow them to show
independence in judgment and to take a leadership role on behalf
of the jointly established organization. Experience has shown
that competitive selection of professional, technical and
support staff, with adequate consideration given to nationality
mix, contributes significantly to the performance and efficiency
of such organizations. In this context it is desirable that
commissions be staffed with a mixture of long-term and
time-limited staff at all levels.
15.
International, National and Subnational Level Participation.
Experience with transboundary river and lake management clearly
illustrates the importance of working at three complementary
levels—international, national and subnational—to achieve
successful and sustainable management programs. At the
international level a commission provides a basis for joint
approaches and actions among the cooperating parties. At the
national level, different ministries integrate the actions of
the commission into national policies, strategies and programs.
At the subnational level, the participation of local
governments, private sector, nongovernmental organizations,
civil society institutions and various stakeholders is needed to
translate these policies and programs into actions and provide
feedback. Civil society institutions are often important
mechanisms for expression of views by parties concerned with
environmental issues as well as marginalized social groups who
with support can become advocates for sustainable water use.
C.
CHALLENGES
16.
Emerging issues and problems of water resources management
present new challenges to policy makers, public and private
sector managers, technical specialists and the public. The
adoption of an integrated approach to water resources management
increases the complexity of coordination efforts and analytical
work; however, it results in outcomes which have lower levels of
conflict between user groups, lower long-term costs, and
facilitates more sustainable use of available resources. A major
challenge to all commissions and their cooperating parties is to
provide open access to basic information and data sets by the
public, in order to support informed decision making and foster
frank discussion of key issues regarding transboundary water
resources management.
17.
Changing the Paradigm of Transboundary Water Management. In many
river and lake basins, commissions and riparian states may be
forced to change from the old paradigm of supply-side management
to address four enormously important issues:
-
Water scarcity, and its attendant threat to food security and
the economic well being of rural and urban populations, will
emerge as an important imperative in regions formerly thought
to have adequate freshwater supplies.
-
Control of rising salinity, prevention of environmental
degradation and maintenance of aquatic ecosystems will be
recognized as critical factors in sustainable management of
water resources.
-
Inefficient surface and groundwater use tied to supply-side
management approaches will become a major issue in
transboundary water resources management given constraints
posed by water scarcity and degradation.
-
The
imperative of socio-economic development and poverty
alleviation will become the central focus of transboundary
water management and will require a complete rethinking of
strategies to directly deliver these benefits to people.
Each
of these issues will require new thinking about strategies for
transboundary water resources management in which the central
focus is environmentally and financially sustainable water use.
Such strategies are likely to place much greater emphasis on
water conservation, efficient and sustainable water use and
appropriate incentives. Proper attention to incentives may be
critical in overcoming barriers to changing patterns of water
use.
18.
Shifting to Integrated Water Resources Management. Major
opportunities exist for commissions to lead and support the
critical process of shifting water management paradigms from
traditional and often fragmented approaches to the adoption of
integrated approaches to water resources management. The aim is
to move the focus of the dialogue on transboundary water
resources management issues from irreconcilable differences to
areas that provide new opportunities for cooperation and common
ground, and to avoid unsustainable strategies that are costly in
the long run.
19.
Sharing Benefits Rather Than Sharing Water. Many commissions
have focused mainly on the issue of water sharing, an issue that
is often a source of discord and stress between the cooperating
parties. Greater emphasis in the future should be given to the
identification and mutual understanding of all the benefits that
can be obtained by all parties. The sharing of economic,
environmental, and social benefits transforms what is often seen
as a "win-lose" trade-off into "win-win" agreements, establishes
the basis for cost sharing, and creates incentives for cost
efficiency. In order to achieve these objectives, an effective
flow of good and reliable information is essential to properly
evaluate benefits, create confidence among cooperating parties,
and guarantee political commitment and public support. It should
be recognized that equitable sharing of both water and benefits
is not "static" but rather a "dynamic process" which requires
that agreements in many cases provide mechanisms for periodic
review and negotiations.
20.
Promoting Efficient Water Use. Actions to promote efficient
water use need to be an integral part of water resources
management strategies supported by commissions at the
international level, by national governments at the country
level and by a wide range of authorities at the subnational
level. As opportunities arise for more efficient use of water
resources for different sectoral needs, the environment’s need
for water should be incorporated into management frameworks that
recognize this essential use as part of the environmentally
sustainable use of water resources. Efficient use of water
includes actions to promote pollution prevention and wastewater
minimization that avoid excessive emphasis on wastewater
treatment and "end of pipe" solutions. Implementation of water
conservation programs and other measures that alter current
streamflow conditions should include an analysis of the
potential positive and negative impacts of the proposed
interventions on various sections of the drainage area. Support
should be given to a range of government and nongovernmental
organizations to promote professional and public recognition of
the importance of efficient water use as a critical aspect of
water resources management.
21.
Use of Incentives for Cost Efficiency in Cooperative Programs.
The experience of commissions illustrates the importance of
appropriate structuring of incentives to ensure cost control and
promote efficiency in cooperative development of basin
infrastructure. When costs of capital works are shared, parties
to agreements will be equally concerned about such costs. In
some cases co-financing and co-ownership of infrastructure
assets, irrespective of their physical location, appear to
provide strong incentives to cooperate and to ensure cost
effectiveness. Other instruments—which allow recovery of
recurrent costs through charges for services (e.g. levies on
licenses, or on water and power sales), or performance-related
payments to contractors and even staff of commissions—need to be
considered to improve performance and cost efficiency. On the
other hand, where one party owns and develops the infrastructure
and the other contributes to financing but has no role in the
decision making process, cost control can become difficult and
disputes can occur. In the case of major projects shared between
two or more countries in a larger basin, consideration should be
given to the establishment of project specific commissions that
would operate in a manner complementary to existing
international agreements and the commission responsible for the
basin as a whole.
22.
Moving from Supply-Side to Demand Management. One of the
greatest challenges in transboundary water resources management
and the work of commissions is moving from continuous
augmentation of supply to the management of water demand.
Growing water scarcity—a result of both rising demand in
relation to availability of water and deteriorating water
quality—is rapidly increasing economic costs of water in many
basins. Inappropriate prices stimulate greater water use,
perpetuate inefficient use, and result in increased stress on
water resources, which in turn leads to disputes between
different uses and different users. Rational economic
instruments, including water tariffs with incentives for
conservation and appropriate sanctions, are a necessary element
of effective water management, ensuring that water is treated as
an economic good and used efficiently. At the same time,
"lifeline" tariffs provide an essential safety net to ensure
that the poor have access to adequate quantities of water.
Demand management will also reduce the marginal cost of water,
postponing or even canceling the need for enhancing water
supplies through further storage and abstraction. Unless sound
approaches to water management in transboundary basins are
adopted, demand will increasingly exceed supply and unilateral
action and dispute will replace cooperation.
23.
International Relations and Information Asymmetry. Growing
demands on, and potential conflicts over, shared rivers are
likely to arise in countries whose medium-term development plans
require considerable increases in water use. Many countries lack
significant alternatives to the development of international
basins and the sum of these mounting demands claimed by riparian
countries is unlikely to be met. In many cases, development
goals in different countries are premised on mutually exclusive
claims for water from international basins. Negotiations and
opportunities for joint development should take into account
capacity imbalances among countries, an inability in many
countries to analyze and inform policy positions and decisions,
and a threat of dominance by the interests of the stronger
nations since they often face the greatest water scarcity.
24.
Fundamental Importance of Information and Knowledge. Information
acquisition and sharing is a fundamental and critical issue in
the development of transboundary waters. Where management of
international water resources is concerned, knowledge is power.
Without knowledge, riparian states are extremely nervous about
threats to sovereignty, especially when another riparian
(particularly, but not necessarily, upstream) is deemed to have
that knowledge and is therefore "powerful." In this situation,
any attempts at rational negotiations are seriously hindered. At
the same time, basin development paradigms will tend to be those
of the stronger riparian, often inadequately recognizing the
needs of others. It is in the interests of both powerful and
less powerful riparians to increase the parity of skills and
information of the concerned parties. Impressions of dominance
of decisions in favor of one or more strong riparians need to be
replaced with trust and partnership based on recognizing and
sharing common goals. At times this can mean counter-intuitive
behavior by a powerful riparian such as ceding leadership to
other cooperating parties on issues. Building confidence and
capacity is a slow process. Although the issues will be with
cooperating countries and commissions for decades, efforts to
build capacity and confidence cannot wait.
25.
Downstream Linkages to Estuaries and Coastal Zones. Increasing
attention should be given by commissions to the implications of
current and proposed water resources development strategies on
estuaries and coastal zones. At the heart of transboundary water
management is the strong and complex hydrologic linkage between
freshwater management, coastal and marine resources, and
environmental and socio-economic conditions in these areas,
which are used intensively worldwide—an estimated 70 percent of
the population in developing countries lives in the coastal
zone. Key impacts from water development programs often include
significant changes in the volume of freshwater reaching the
coast, shifts in the timing of flows due to regulation,
pollution, degradation of natural habitats and risks for
aquaculture and mariculture operations. Without proper
evaluation of these critical "downstream impacts" the work of
commissions may be effective in managing and protecting the
freshwater resources of rivers and lakes at the expense of
important estuarine and coastal resources that provide a
livelihood for currently large and rapidly growing populations.
26.
Vulnerability of Lakes and Reservoirs. The special challenges of
sustainably managing lake and reservoir ecosystems require
special vigilance and timely cooperative action. Because these
ecosystems commonly trap and recycle nutrients and other
contaminants, they are particularly vulnerable to environmental
degradation that is often difficult and costly to reverse. The
strategy of dilution or low flow management to solve water
quality and pollution problems is unsustainable in the presence
of reservoirs and lakes, and may have disastrous consequences.
Consequently emphasis must be placed on preventive actions and
establishment of effective joint management institutions to
facilitate such actions.
27.
Expanding Cooperation—Broadening the Range of Partners.
Expanding cooperation with a broader range of partners can
enhance the long-term success of commissions. This should
include increased work with municipal and local government;
private sector involvement; active participation of stakeholders
and civil society institutions in a manner that encourages
dialogue and discussion; and effective use of the media and
other forms of information dissemination.
-
Working with Municipal and Local Government. Municipal and
other forms of local government are the most direct form of
representation for the demands and expectations of the
population. Increasing their participation in the design and
implementation of the commission’s actions and policies would
facilitate public support for the commission’s role and
mobilize political support. A major problem in many countries,
especially those in developing and transition economies, is
the technical weakness of local governments. The commissions
can play an important role in strengthening this capacity and
the awareness of local authorities concerning the realities
and challenges they face in relation to water resources
management. Municipal and local governments, in many
countries, have the primary long-term responsibility within
drainage basins for the operation and maintenance of water
supply and wastewater treatment systems.
-
Providing for Private Sector Involvement. The private sector
can be a source of resource mobilization, complementing its
comparative advantages to manage the design, construction and
operation (both technical and financial) of water and energy
facilities located in transboundary drainage basins. In
addition to mobilizing investment and management efficiency,
the private sector can be an important source of innovation
and creativity. Private-public partnerships can be encouraged
by developing an enabling environment for involvement of the
private sector in financing interventions promoted by the
commissions. This includes national legal frameworks that
provide credibility and security, and reduce political risks.
The use of an open decision making process for major
activities and policies developed by the commissions also
provides an opportunity for constructive involvement of the
private sector. An example is the adoption of transparent
environmental impact assessment procedures, with full public
consultation that provides an opportunity for the views of all
parties to be expressed.
-
Encouraging Active Participation of Stakeholders and Civil
Society. Translating actions called for in the commission’s
work on the international level into subnational activities on
the local level is not an easy task. Commissions should focus
participation broadly on civil society to ensure that vested
interests or the lack of organization and communication skills
do not marginalize important stakeholders. Participation of
nongovernmental organizations in partnership with commission
processes can harness the energy of community organizations,
scientific and applied research groups, and other stakeholders
to promote local implementation of key measures. At the
international level their participation can also assist in
achieving transparency in the work of commissions, ultimately
improving trust and generating a commitment for action. The
participation of stakeholders and civil society institutions
allows the objectives of agreements and work programs of
commissions to benefit from a "bottom up" rather than a "top
down approach," making them more responsive to the aspirations
and needs of current beneficiaries and future generations.
-
Expanding Relationships with the Media. Commissions need to
rally support for their actions and policy proposals. To do
so, they need to communicate and make available to the media,
and through the media to the civil society, information and
data necessary for the understanding of water as a natural
resource, its specific ecological contexts, the type of
interventions proposed and the results obtained. The media is
a potential ally, but also an important reviewer of the
effectiveness of the commission, a role that must be
recognized and requires open and transparent access to
information to allow objectivity.
D.
ISSUES FOR THE FUTURE
ISSUES FOR THE FUTURE
28.
The work of commissions will need to address a wide range of
issues in the future arising from new economic, social and
environmental conditions. Representative examples include:
-
Innovations in Institutional Arrangements. It will be
increasingly important for commissions and the parties that
supervise their work to be open to innovations in
institutional arrangements, management techniques and use of
technology. In order to meet changing conditions periodic
reviews should be undertaken of the responsibilities, work
programs and priorities of commissions.
-
Increased Decentralization. The process of decentralization is
being undertaken in many countries, requiring commissions to
establish a variety of new arrangements for coordination and
cooperation. This process increases management
responsibilities at the local level and provides new
opportunities for commissions to work with a broader range of
institutions.
-
Climatic Variability. Recent El Niño cycles and possible
climate change have resulted in widespread variations in
climate manifested by significant flooding and droughts in
many river and lake basins. Predictions of climatic trends and
incorporation of these findings into management programs may
be a new activity undertaken by some commissions.
-
Large-Scale Inter- and Intra-Basin Water Transfers. In a
number of regions large-scale inter- and intra-basin water
transfers have been implemented, are under construction or are
being studied. The implications of such actions for water
resources management, environmental quality and ecosystem
maintenance, and socio-economic conditions are diverse and far
ranging, which mandates careful review and debate prior to
their implementation.
-
Pollution Prevention and Wastewater Reduction. Increased
attention should be given to development and implementation of
actions by commissions to promote pollution prevention and
wastewater reduction. These proactive measures both conserve
water and reduce costs for wastewater collection, treatment
and disposal.
-
Wastewater Reuse and Recycling. Commissions operating in both
humid and arid areas should anticipate that expanded emphasis
will be placed on wastewater reuse and recycling as an
integral element of water resources management programs. Water
reuse and recycling should be anticipated to involve
restricted application for agriculture, industry, shelter
belts and maintenance of aquatic ecosystems.
-
Transboundary Groundwater Resources. Growing demands for water
in many areas will increase pressure on commissions to
undertake activities for integration of groundwater resources
into what traditionally have been programs focused on surface
water. Addressing the management of groundwater will require
commissions to have access to groundwater management
specialists and the development of data collection and
monitoring programs.
-
Land
Use and Watershed Management. Greater recognition of the
complex and diverse impacts of land use problems, such as
urbanization and deforestation, on water quantity, water
quality and aquatic ecosystems creates increased demands for
commissions to include activities in these areas as elements
of their work programs. This means that the mandate of some
commissions may need to be broadened to include a stronger
emphasis on terrestrial issues.
-
Environmental Demand for Water. Significant efforts will be
required to include provisions for meeting the environmental
demand for water as an integral element of transboundary water
resources management programs. Current management frameworks
for shared river basins should be reviewed to ensure that they
adequately recognize environmental needs for water for aquatic
ecosystems, related aquatic and terrestrial biodiversity and
the people who directly rely on these resources for survival.
-
Control of Alien Species. In many regions the control of alien
species in drainage basins, watercourses and lakes is emerging
as a major and highly costly transboundary management problem.
Invasive alien vegetation in drainage basins, especially near
water courses, consumes excessive amounts of water and
produces particularly low flow in the rivers. These introduced
alien species, both plant and animal, have a diversity of
impacts on terrestrial and aquatic ecosystems and can cause
changes in species composition and structure.
-
Rapid Development of Megacities. The rapid development of
megacities in developing countries, in both interior and
coastal settings, will present issues related to water supply,
water quality and maintenance of ecosystems that may challenge
the traditional assumptions used in planning, finance and
technology of water resources management interventions, and
require identification of innovative solutions.
E. AGENDA FOR THE
FUTURE
29. In
the context of the process initiated during the Petersberg
Dialogue Forum and continued with the Berlin Round Table, it is
proposed that a series of actions be undertaken during the short
term to further strengthen the basis for effective operation of
commissions. These would include development of easily
accessible information on commissions, activities for sharing
their knowledge and experience, and continuing the global
dialogue on transboundary water management, including conduct of
two Round Tables at the regional level. It is planned that these
activities would promote development of the Integrated Water
Resources Management Window of the Global Water Partnership and
further the use of this approach as a basic element in the
strategies adopted and implemented by commissions.
Information on Commissions
30.
Expanded Cooperation with Commissions. Action should be taken to
expand cooperation with commissions in the context of the work
of the Integrated Water Resources Management Window of the
Global Water Partnership. This would establish a framework to
support increased communication and sharing of information among
the large number of existing organizations. This framework could
be developed on an incremental basis and be linked to the
evolving work programs of the Regional Technical Advisory
Committees of the Global Water Partnership. Dissemination of
information concerning work with the commissions could be
provided in hard copy and electronically through the Global
Water Forum and other mechanisms.
31.
Reference Book on Commissions. Preparation of a Reference Book
on River and Lake Commissions would facilitate opportunities for
improved knowledge of established commissions and provide a
better basis for cooperation between commissions and with other
organizations. It would include standardized information on
legal status, membership, activities and coordinates. The
Reference Book would be prepared in the context of the Global
Water Partnership and in cooperation with a range of interested
organizations. It could be disseminated in hard copy and
electronically through the Global Water Forum and other
mechanisms.
Topics
for Further Evaluation and Assessment
32. A
Series of Priority Issues. The Round Table identified a series
of topics that would benefit from further evaluation and
assessment in order to identify lessons learned, review good
practices and prepare information for dissemination to
commissions, cooperating parties, international financial
institutions, donor organizations, nongovernmental organizations
and civil society institutions. These include:
-
Sustainable Financing of Commissions. A comparative study
should be prepared examining the current financing of the work
of commissions and identifying what types of approaches can be
taken to make these organizations financially sustainable.
Special attention would be given to assessment of approaches
and issues that should be considered in the establishment of
new commissions.
-
Use
of Incentives. A review should be prepared of the use of
financial incentives in cooperatively funded activities to
support cost effective approaches to transboundary water
resources management and environmental protection programs.
This would include development of case studies of commissions
that have used incentives in operational programs.
-
Mechanisms for Sharing Benefits. The development of a new
paradigm for regional cooperation based on the sharing of
benefits rather than the sharing of water provides a
significant opportunity to reduce conflict, enhance
cooperation and improve the efficiency of resource use. This
would include an overview of the types of interventions and
benefits associated with this approach. Supporting case
studies would be identified and prepared showing examples of
this approach at the operational level.
-
Moving from Supply-Side to Demand Management. Guidelines would
be developed for use by commissions, their cooperating
parties, water resources planners and consultants, and
stakeholders concerning practical methods for moving from
supply-side to demand management at the river or lake basin
level. This would include a review of the risks associated
with continued use of supply-side approaches and the benefits
from demand management.
-
Enhancing Stakeholder and Civil Society Participation. The
experience of stakeholder and civil society participation in
commissions is highly variable and significant opportunities
exist to enhance such participation through a variety of
interventions. A series of case studies concerning good
practice in stakeholder and civil society participation should
be prepared and actively disseminated to enhance the role of
these parties in development and implementation of strategies,
priority action programs and operational activities. It should
identify actions that can be taken to support civil society
institutions to develop their capacities to effectively and
constructively participate in dialogue and discussion of these
issues.
-
Experience from National Transboundary Water Management. An
evaluation should be made of the experience of national
transboundary water resources management programs in selected
countries to provide lessons that could be applied to
international programs and to assess the potential application
of international experience to national transboundary issues.
The review should examine representative national
transboundary water resources management institutions,
identify key concerns at the planning and operational level
and provide selected case studies.
Continuation
of the "Petersberg Process"
33.
Deepening and Expanding the Dialogue. The Petersberg Dialogue
Forum and Berlin Round Table have begun a process of dialogue on
transboundary water resources management that will be deepened
and broadened. While there is not one model for cooperation
among riparian states, the questions and issues that have
emerged during these dialogues and the very real value of
lessons learned from examination of current experience show that
more in-depth analysis, comparative study and dialogue would
greatly benefit countries that are developing frameworks for
cooperation and stimulate those that need to move in this
direction.
34.
Round Table on the Baltic Sea Region. It is planned that the
Government of Germany, Helsinki Commission and the World Bank
would support a Round Table on the Management of Transboundary
Waters in the Baltic Sea Region in 1999. The focus of the Round
Table would be on the status of and experience from a series of
activities being undertaken for cooperative management of
transboundary rivers, lakes, coastal lagoons and wetlands in the
region. This Round Table would be an element of the preparation
process for the proposed Baltic Sea Regional Project that is
being supported by the Global Environment Facility. It would
also be linked with implementation of the Joint Comprehensive
Environmental Action Program and development of the work program
of the Global Water Partnership in the region.
35.
Nile River Basin Round Table. It is anticipated that the
Government of Germany, in cooperation with the Council of
Ministers of Water Affairs of the Nile Basin States, would
support a Round Table on Management of Transboundary Waters in
the Nile Basin. The Round Table would be an element of the
on-going Nile Basin Initiative and contribute to the development
and dissemination of the "Shared Vision Strategy" of the
riparian countries. It would also be linked with the development
of the work program of the Global Water Partnership in these
countries.
36.
International Conference on Global Water Politics—2002. Germany
will host an International Conference on Global Water Politics
in 2002 which will be in the context of the process leading to
the Rio + 10 Summit to be held later in the year. The aim of
this major conference is to examine the implementation of Agenda
21 and the outcome of the 6th Meeting of the Commission on
Sustainable Development held in 1998 which focused on water, and
make a series of proposals for follow-up actions. Transboundary
management of international rivers and lakes is planned to be an
important element of this Conference and the activities
supported under the "Petersberg Process" are anticipated to
contribute significantly to the deliberations at both the
Conference and the Summit.
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