definedww.4399

Governanceinwaterresourcesmanagement:progressinSouthAfricaWWF3:INBOsession20.
03.
03EIMANKARARDepartmentofWaterAffairsandForestry,PrivateBagX313,Pretoria,0001,SAEmail:Karare@dwaf.
gov.
za1.
IntroductionSouthAfricahasatotalareaof1,219millionsquarekilometresinhabitedby40.
5millionpeople1,ofwhich89,1%arefromthedesignatedgroups(African/blacks,ColouredsandIndians).
Livingstandardsarecloselycorrelatedwithrace.
Whilepovertyisnotconfinedtoanyoneracialgroup,itisconcentratedamongthedesignatedgroups,particularlyblackAfricans.
Accordingtothe1999Householdsurvey,52%peoplearepoor2.
Africans/blacksmakeup78%ofthepopulationandtheyaccountfor95%ofthepoor.
17%oftheCoulouredsarepoor,incomparisonwithratesoflessthan5%amongIndiansandWhites.
74%ofthepoorliveinruralareasand62%oftheruralpopulationarepoor3.
EightmillionSouthAfricansstilldonothaveaccesstosafedrinkingwater,about40%ofhouseholdsarepoor,andsome25%of'blackAfrican'SouthAfricanadultsareilliterate4ThepoorliveintheoldHomelands-Bophutatswana(NorthWest),CiskeiandTranskei(EasternCape),KwaZuluNatal,LebowaandVenda(Limpopo)Provinces.
Overandabove,SouthAfricareceiveshalftheworldaverageofrainfallwithmarkedspatialandtemporalvariation.
TheSouthAfricanVisionformanagingitswaterresourcesispresentedbelowfromChapter1oftheNationalWater:Act(NWA)of1998:thepurposeoftheActwhichistoensurethatthenation'swaterresourcesareprotected,used,developed,conserved,managedandcontrolledinwayswhichtakeintoaccountamongstothers;(a)Meetingthebasichumanneedsofpresentandfuturegenerations;(b)Promotingequitableaccesstowater;(c)Redressingtheresultsofpastracialandgenderdiscrimination;(d)Promotingtheefficient,sustainableandbeneficialuseofwaterinthepublicinterest;(e)Facilitatingsocialandeconomicdevelopment;(f)Providingforgrowingdemandforwateruse;(g)Protectingaquaticandassociatedecosystemsandtheirbiologicaldiversity;(h)Reducingandpreventingpollutionanddegradationofwaterresources;(i)Meetinginternationalobligations;1StatisticsSouthAfrica,1996.
ThePeopleofSouthAfricaPopulationCensus.
ReportNo.
03-01-11(1996).
2PoormeansahouseholdincomeislessthanR800permonth(Woolard,I.
,2002.
AnoverviewofpovertyandinequalityinSouthAfrica.
ReportpreparedforDFID(SA).
iwoolard@iafrica.
com3StatisticsSouthAfrica,2000.
1999OctoberHouseholdSurvey,rawdata.
4SACountryReport:AfricanCharteronHumanandPeople'sRights,1998.
2(j)Promotingdamsafety;(k)Managingfloodsanddroughts'Andforachievingthispurpose,toestablishsuitableinstitutionsandtoensurethattheyhaveappropriatecommunity,racialandgenderrepresentation.
2.
WRMinstitutionalreformInaccordancewiththenewdemocraticallyelectedgovernment,SAisalongwaythroughdevelopingnewrevolutionarypoliciesfollowingnationalandgloballyrecognisedbestpractices.
Inthewatermanagementarena,theNWAensuresequitable,efficientandeffectivemanagementofwaterresources.
Asreviewedabove,theActalsoencompassestheprinciplesubsidiarityunderwhichwaterresourcesmanagementistobedevolvedtothelowestappropriatelevel.
Otherprinciplesincludetheintegrationofsurfaceandgroundwatermanagement,selffinancingofwatermanagementbyusergroups,publicparticipationandcommunityinvolvementinwatermanagement,thepreservationofwaterforecologicalpurposes,demandmanagementofwaterresourcesandashiftfromadministrativetohydrologicalbasinboundaries.
ThesuccessintheimplementationoftheActheavilydependsupontheestablishmentofstakeholdersdialogueandmanagementplatformsatdifferentscalesofhydrologicalboundaries.
Generallyabidingbythehydrologicalboundaries,thecountryhasbeendividedinto19WaterManagementAreas(WMAs).
Aschematicrepresentationofthelinkagesbetweenthevariousinstitutionsinvolvedisdepictedbelow;5.
ThechallenginginstitutionalreformimplementationasperNWAnecessitated,ontheonehand,thedevelopmentofvariouspolicyclarifications,guidelinesandregulationsthatareatprogressivestagesof5RO=DWAFRegionalOffice;CMA=CatchmentManagementAgency;CMC=CatchmentManagementCommittee;WUA=WaterUserAssociation;WSA=WaterServicesAuthority;WSP=WaterServicesProvider.
Source:Mazibuko,GandPegram,G(2002).
MINISTERDWAFCMAWSACatchmentforumWSPWUArepresentationrepresentationconsultationrepresentationMunicipalUtilityWaterboardROrepresentationcooperationWaterResourcesManagementWaterServicesLegendstatutoryaccountabilitycontractrepresentationcooperation/consultationCMCaccountabilityrepresentationaccountabilityoversightsupportaccountabilityservicescontractservicescontractaccountabilityservicescontractFigure1.
PrimaryinstitutionalrelationshipsbetweenvariouswatersectorinstitutionsInternationalbody3development.
Ontheother,theactualimplementationwithregardstoinstitutionaldevelopmentthatisprogressingatdifferentrates;3.
TheWRMInstitutionalHierarchyAtthenationallevel,thegeneralrequirementistransparentandaccountablepublicadministrationinallspheresofgovernment.
TheNWArequirestheMinistertoensurethatallaspectsofwaterresourcemanagement,whichwillaffectusersandthepublic,aredrawnupwiththeirinvolvement.
ThisisdonethroughthegazettingofaNationalWaterResourcesStrategy(NWRS)asalegallybindingdocumentwhereallinterestedandaffectedpartiesareprovidedanopportunitytohaveinput.
Ascustodiansofthenationalwaterresources,theMinisterhastheresponsibilitytodefinehowtheresourceswillbemanagedforthenationalbenefitinconsultationwiththestakeholders.
TheNWRSwillbefinalisedtowardsthemiddleof2003.
Currently,ithasbeendrafted,gazettedinthegovernmentnoticeforpubliccomments.
Morethan20nationalworkshopswereheldwherethestrategywaspresentedallowingforintensiveinteractionbetweenthedepartmentalstaffandthepublicatlarge.
Thousandsofcommentswerereceivedwhicharebeingscrutinised,someareeffectedwithinthestrategywhileothersarenot.
Allstakeholderswhocontributedwillbeinformedwhethertheirinputwasincludedandifnotwhy.
Byandlarge,thisremainstobethelargestpublicconsultationattemptcarriedouteverbythedepartmentwithjustifiableexpensethatgoeswiththemagnitudeofsuchanundertaking.
AtaWaterManagementArea(WMA)level,ofwhichthereare19,CatchmentManagementAgencies(CMAs)areresponsibleformanaging,using,conserving,protecting,controllinganddevelopingwaterresourcesineachoftheWMAs.
Theirroleistoensuretheequitableaccesstowaterresourcestoallstakeholdersespeciallythehistoricallydisadvantagedindividualswhilemaintainingefficiencyandsustainabilityoftheresources.
AgoverningboardrepresentativeofallthesectoralinterestswillleadeachCMA.
TheMinisterappointstheboardafterreceivingnominationsfromanAdvisoryCommitteespecificallysetupforthatpurpose.
Typicalissuesthatcouldbehandledbythislevelcouldinclude,amongstothersaccordingtoChapter7oftheNWA;1.
developmentofaCatchmentManagementStrategy(CMS)whichdefinesthehow,where,when,bywho,forwhomandthehowmuchofresourcescanbemanaged,used,developed,protected,conservedandcontrolled.
2.
waterallocationprinciplestoexistingandprospectiveusers.
3.
coordinationofrelatedactivitiesofwaterusersandotherrelevantinstitutions.
4promotionofcommunityparticipationinprotecting,using,developingconserving,managingandcontrollingwaterresources.
4.
promotionofcoordinationofitsactivitieswiththerelevantwaterservicesauthoritiesresponsibleforwaterservicesandsanitationdeliverytargets.
5.
settingupResourceDirectiveMeasuresaimedatsustainablewateruse.
6.
theprinciplesfordeterminingthereserve(basichumanneeds,environmentalandinternationalrequirements).
Anumberoffactorsdeterminethesuccessofinstitutionsatthislevelwheremostofthewaterresourcemanagementdecisionsaremade,suchas;1.
identifyingtheappropriatemechanismsandstructuresforsharinginformationandreachingpeopleonthegroundwithinresourceslimitations.
Thespinoffscouldbe;oAdequateparticipationoEquallyempoweredstakeholdersco-managingresourcesoPowerfulwatch-dog/whistleblowerroleplayedbystakeholders/civilsocietyorganisationsoEnsuredadequateservicesdeliveredbyWaterManagementInstitutions.
2.
Identifyingthecurrentlowestappropriatelevelofmanagementwhilepromotingtheslogan"devolveasitevolves"3.
Fosteringcooperativegovernancewheregoodworkingrelationshiparedevelopedforthebenefitofthepeople.
54.
Welldefinedperformancecriteriaforachievingpropoorservicedelivery5.
Effectingtherightcompositionandbalanceofthegoverningboardtorepresentallsectoralinterests,includingtheenvironmentandthehistoricallydisadvantagedgroupswiththe,racialandgenderdemographicsintheirrespectiveareas.
6.
Adequatemonitoringandevaluationoftheirperformancebytheregulator,thestate,toensurefairdialoguesandthecreationofadequateperformancecriteria.
TheroleoftherefereeisessentialintheSouthAfricancontextbecauseofthevastdisparitiesbetweenthedifferentusersectorsintermsofpower.
Themechanismusedtoplaythisroleisthroughthesubmissionofanannualanda3-yearstrategicplansaswellasanannualreportofachievements.
Althoughtheaccountabilityoftheseboardmembersshouldliefirstandforemosttotheirconstituencies,thecurrentsocialandeconomicenvironmentdoesnotallowforafairplay.
Todate,fourCMAestablishmentproposalshavebeenofficiallysubmittedforevaluation;theInkomati,Breede,MvotitoMzimkhuluandtheCrocodileWestMaricoCMAs.
TheInkomatiCMAiscurrentlygazettedforwidercommentwhiletheMinisterhasestablishedanAdvisoryCommitteeforidentifyingthesectoralgroupingsforitsgoverningboard.
Itisenvisagedtobeformallyestablishedbythemiddleof2003.
Atacatchmentlevel,therearetwolegalorganisationsthatwouldprovidetheplatformsforstakeholderstodiscussissuesofmutualinterestatamorelocalisedlevel.
CatchmentManagementCommittees(CMC)areadvisoryinnatureandcanbesetupasandwhenneededbytheCMAtoadviseondefinedissues.
TheCMAmightdelegatesomeofitsfunctionstoCMC.
Theyalsoplayavitalroleinactingasconduitsofissuesofcommonconcernfromwithintherespectivecatchments.
TheycouldalsoactascoordinatingstructuresforanumberofWUAs.
TypicalissueswouldbethoseentailedintheCMSsuchassettingupwaterqualityobjectivesforwaterresourcestodefinethebalancebetweenthedevelopmentaspiredforintheareaandthesubsequentenvironmentaltradeoffsthatneedtobemade.
IdentifyingandprioritisingwaterresourcesrelatedissuesthatneedtobeaddressedbytheCMAwouldbeanotheraspect.
Thecommitmentofthestakeholdersforsustainedinvolvementatthisscaleisproportionatetothelevelofinterestinwaterresourcesfromtheprotection,use,control,management,development,andconservationperspectives.
Atthiscatchmentscale,thechallengewouldbetoensurethattheplayingfieldsarelevelledtominimisethedominanceofthestakeholderswithstrongvestedinterests.
ThisresponsibilitywouldmainlyresidewiththeCMA,whichhastodemonstratethatadequateeffortshavebeenexertedtobuildtheneededcapacityinmarginalizedgroupsespeciallywomento6relatetowaterresourcesmanagementissueseventuallycontributingtothebettermentoftheirlives.
Oneofthelessonslearntinstakeholderinvolvementatabasinlevelisthatfinancialcompensationasincentiveforcontinuedparticipationfulfilsthisexpectationaslongastheincentiveisthere.
Thisisnotperceivedasbeingsustainablewhereinternalisationoftheissuesdiscussedisnotdemonstrated.
Alongertermandprobablyresourceintensiveapproachforsustainedparticipationcanbepossiblethrough;Informationsharingusingsuitablemediaandintherelevantlanguageatanappropriatelevel,Identifyingandmappingoutoverlappingneedsandaspirations,Conductingcatchmenttours,andDevelopingacatchmentvisionusingparticipatorymethodologies.
AtaWateruserAssociation(WUA)level,whichismostlyofanagriculturalschemescale,thecommitmentandsustainedinvolvementisafunctionoftheservices/benefitsderivedfrombeingpartoftheassociation.
TheWUAwouldceasetoexistwithoutitsmembers.
Theintrinsicneedtobelongtoauserassociationisbecauseoftheoverlappingneedsamongstthemembers.
ThegoalsofgovernmentinencouragingWUAformationaretoimprovetheaccessofcitizenstowaterinanegalitarianway,toreducelong-termgovernmentsubsidytoirrigators,tofosteracultureofproactiveassociations,topromoteself-determinationinlocalwatermanagement,tostimulateeconomicdevelopment,especiallyamongthepoorandtoutiliseexistingwatermanagementcapacitytothebenefitofthepopulation6.
Thetransformationofirrigationboardsintowateruserassociations(WUA)hasprogressedveryslowly.
Thisisbesideinitialpolicyguidelinesthathavebeendevelopedtoguidetheprocess.
Asitstands,43irrigationboardshavebeentransformedinto20WUAswhileoneirrigationboardhasbeendisestablished.
Thisisbecausesomeofthemhavedecidedtomerge.
Threewaterboardshavebeentransformedintowateruserassociationstoo.
Severalchallengessurroundthetransformationofirrigationboardsintowateruserassociations7mainlyinformationsharingandawarenesscreationofdefinedbeneficiariesfrommarginalisedindividuals,limitedaccesstoproductivewaterbythesametargetgroup,etc.
Bettercoordinationhasbeenachievedbetweenseveralgovernmentdepartments;Agriculture,WaterAffairs,LandAffairsandPublicWorksfortherevitilisationoftheOld6DWAF,GovernmentpolicyonsupporttoWaterUserAssociations.
Draft,Sept,2002.
7TheAct(NWAsection28)stipulatestheessentialrequirementsofwateruselicences.
Alicencemustspecifythepersontowhichitisissuedandthepropertyorareainrespectofwhichitisissued.
Nomentionismadeofthelandowner.
Theintentionisthatthelicencewillbeissuedtothewateruser,andthatthissamepersonwillbecomethememberoftheWaterUserAssociation.
TheconditionoftitledeedformembershipofIrrigationBoardsunderthepreviousWaterActhasbeenremoved,becauseitexcludedhistoricallydisadvantagedindividualsfrommembership.
IncommunalareasthisholdsimportantpotentialforgenderinclusivityinWUAmembership,sincetheproductivewaterusersarepredominantlywomen,whileafocusonPTOcertificatesarelikelytoresultinapredominantlymalemembership.
IncommercialareasitopensupmembershiptoallsectorsaffectedbyWUAactivities.
7HomelandSchemes.
ThetargetfortheLimpopoProvinceistherevitilisationandtransferofownershipof150schemesinthecomingfouryears.
ThechallengesfacingtheestablishmentofWUAscouldbethefollowing;EquitablerepresentationinitsmembershipandmanagementstructuresofallcurrentandpotentialwaterusersaffectedbytheactivitiesoftheWUA;Sustainableandefficientserviceprovisioninresponsetothecollectiveneedofitsmembership(usuallythisentailsfairandreliablewatersupplytoitsmembers);Effectiveinteractionwithotherwatermanagementinstitutionsandrepresentationoftheneedsofitsmembersathigherleveldecision-makingstructures;Performanceofancillaryfunctionswithoutjeopardisingitsownsustainabilityanditsbasicrelevancetoitsmembership;Facilitationofsupportfromotherinstitutionstothebenefitofitsmembers,especiallyhistoricallydisadvantagedfarmers;andEncouragementandbrokeringofmentorshiparrangementsforhistoricallydisadvantagedfarmerswithestablishedcommercialfarmermembersoftheWUA.
Atamicro-catchmentlevel,althoughnotstatutoryorganisations,CatchmentManagementFora(CMF)havemadesignificantcontributionstowaterresourcesmanagementatalocallevelby,amongotherthings,providingessentiallocalknowledge,expertiseandinformation.
InthisrespecttheymayeventuallybeexpectedtoplayanimportantroleintheoperationofCMAwhentheyareestablished.
TheDepartmentwillcontinuetosupportexistingforums,andencouragethecreationofnewoneswherethenecessityarises.
8CMFhavealreadybeenestablishedinmanyareastoinvolvestakeholdersindecisionsaboutwaterresourcesmanagement.
TheseforahavenowbecomeimportantbodiesrepresentingstakeholdersintheestablishmentofCMAsandareenvisagedtoplayanactiveroleinassistingtheseCMAsaftertheirestablishment.
CMFareparticularlyimportantinthedevelopmentoftheCatchmentManagementStrategytoaddresslocalprioritywaterresourcemanagementissues,butalsoprovideavehicletofacilitatethecoordinationand/orintegrationofwaterresourcesmanagementwithspatialplanningandlandusemanagement.
Thefocusforinitiatingaforumismostoftendrivenbyawaterresourcesmanagementagenda.
However,whereadequatewatersupplyandsanitationdonotexist,they,understandably,dominatethediscussionsandunlesstheyhavebeensatisfactorilyaddressed,theinvolvementofthepoorinwaterresourcesmanagementwouldbemarginal.
Inbridgingthisgap,attemptstocreateliaisonbetweenthedifferentgrassrootsinstitutionssuchasCommunityDevelopmentCommittees,WaterCommittees,NGOsandotherCBOsprovedtoprovideareasonablemechanismforsharinginformationdemandedbythestakeholders.
Therolethatcanbeplayedby8Extractfrom:NWRSSummary,August20028NGOsinthisinstanceforcontinuedfacilitationandcommunicationcannotbeemphasisedenough.
However,buildingapartnershipwithNGOsisnotalwayseasy.
Thecapacitiesoftheseorganisationsparticularlyblackdominated,areoftenweak.
Theiraccountabilityandtheircomplexinternalpolitics,aswellasthefactthattheysometimesviewgovernmentasadversaryratherthananally,poseconsiderablechallengeinsustaininglong-termcapacitybuildingandcommunitydevelopmentprogrammesinruralareas.
9Itisenvisagedthatthetrueintegrationbetweenwaterservicesandwaterresourcesmanagementcanbestbeachievedatthislevel.
Althoughthereserveguaranteestheavailabilityofwatertomeetthebasichumanneeds,8millionpeoplestillhavenoaccesstosafedrinkingwater.
Manymoredonothaveaccesstowaterforproductiveuses.
InfrastructuredevelopmentremainstobehighintheSouthAfricanagendamainlyforwatertreatmentanddistribution.
Alayerofcomplexityisaddedwherethewaterresourcesarenotsufficientandvarywidelyintheirgeographicdistribution.
Somemorecomplexityisduetothefactthatwaterservicesandsanitationarenowtheresponsibilityoflocalgovernment,undertheWaterServicesActof1997.
Thetworoundsofelectionssince1994andtherevisedmunicipalboundariesstabilisedonlyin2000.
Asaresult,municipalitiesareattheirinfancyandhavealongwaytogotofulfiltheirmandate.
Inthequesttominimisingthedelaysinservicedeliveryresultingfromthistransition,theDWAFhasanextendedhandoverperiodofresponsibilitieswithcapacitybuildingbeingaprerequisiteforsuccessfuldevolution.
Forumexperiencetodatehasshownthatsomestakeholdersbecomefrustratedwithforathataresimplyconsultative.
Inmanycases,thereisconsiderablepressurefortheforumtosecuremore'power'andtobecomemoreinfluentialinthewaterresourcemanagementdomain10.
Commonly,therouteto'power'isseentobethatoflegislation,wheretheforumaspirestobecomeastatutorystructure(normallyaCommitteeoraWUA)tohavemore'teeth'.
Attheinternationallevel,4majorriversaresharedbetweenSouthAfricaandSwaziland,Botswana,Mozambique,ZimbabweandNamibia.
Anumberofjointstudies,agreements,bilateralcommitteesandmultilateralcommissionsexistbetweenthedifferentcountries.
ThelatestsignedinterimIncoMaputoAgreementbetweenMozambique,SwazilandandSouthAfricaatMinisterialleveltookplaceintheWSSDinAugustof2002.
TheIncoMaputoTaskTeamsaffiliatedtotheTripartitePermanentTechnical9UNDPandcivilsocietyorganisations,buildingalliancefordevelopment.
(http://www.
undp.
org/csopp/csobroch.
htm).
10DWAF,2001.
GuidelinesontheEstablishmentandManagementofCatchmentForums,insupportofIntegratedWaterResourcesManagement.
9Committee(TPTC)11,representativeofthreecountriesprovidestheplatformfordialogue.
TheagreementrepresentstheplanninglevelofmanagementoftheIncomatiandMaputoRiversystems.
Theagreementimpactsonareasandactivitieslikeoperatingrules,monitoring,protection,informationexchange,aswellascapacitybuildingandinstitutionaldevelopment.
Anumberofstudieshavebeencommissionedtosupporttheagreement;1.
IncomatiRiverBasinStudyiscompletedwiththeDanishsupport.
2.
TheLowerUsutu(Swaziland)smallholderirrigationproject.
3.
TheMaputoBasinStudyinthe3countries.
ExistingcommissionsbetweenSAandMozambiqueare;TheJointPermanentCommissionforCooperation(JPCC)andTheJointWaterCommission(JWC).
OtherTransboundaryInitiativesinclude;LimpopoBasinPermanentTechnicalCommitteeandcommissionbetweenMozambique,Zimbabwe,BotswanaandSouthAfrica.
SADCwatersectorCommittees,oSADCHydrologicalCycleObservationSystem(SADC-HYCOS).
Atotalof40ofthe50DataCollectionPlatforms(DCPs)havebeeninstalledalready.
oFurtherdevelopmentofthefloodwarningsystemsandemergency/disastermanagementmeasuresintheSADCregionareunderdiscussion.
TheroleoftheStateInessence,NationalGovernmentisthepublictrusteeofthenation'swaterresources,inthatitislegallyobligedtoadministertheNWAtoachieveitsspecifiedpurposeandgoals.
InadministeringtheAct,thestateisethicallyandmorallyresponsibletofacilitateandmonitorthedevolutionofresponsibilityparticularlywithregardtothedevelopmentofnewinstitutions.
Underpinningallofthisisawatchdogrolewithregardtoredressissues(suchasrepresentivity,equitableallocationandbeneficialuseinthepublicinterest),promotionofenvironmentalvaluesandminimizingriskstotheresource.
Withregardtothelatter,thestatehasthepower(asabackstopfacility)toregulatetheuse,flowandcontrolofallwaterintheRepublic.
Thetransitionfromastateoftotalexclusiontothatofparticipatorymanagementinwaterresourcesisaformidablechallengetohistoricallydisadvantagedlocalcommunities,whoarenowexpectedtoworkinpartnershipwithagriculture,industry,forestry,governmentandenvironmentalgroups.
Statesupportcanbeinstrumentalineasingthe11EstablishedbytheAgreementbetweentheGovernmentoftheRepublicofSouthAfrica,theGovernmentoftheKingdomofSwazilandandtheGovernmentofthePeople'sRepublicofMozambiquefortheestablishmentoftheTripartitePermanentTechnicalCommittee,signedinPretoriaon17February1983.
10transitionforbothhistoricallydisadvantagedandadvantagedSouthAfricans,andbothproactively,throughthepreparationofguidelinesandothertools,trainingandcapacitybuilding,andfacilitatingpublicparticipationprocesses,andreactivelythroughreviewofproposals,businessplansandothersubmissions,aswellasrespondingtoenquiriesonanongoingbasis(througha"helpdesk"approach).
TheStatecouldalsobeinstrumentalinhelpingtoleveltheplayingfieldsinlowesttierinstitutionaldevelopment,particularlyatinceptionstagewhenlocalcommunitiescouldeasilybeoverwhelmedormarginalizedbystakeholderswithcontrollingorvestedinterests.
TheStatealsoensuresimplementationofmeasuresorprogrammestopromoteequityissuesatanationalscale,suchasinitswaterpricingpolicy,training,capacitybuildingandeducationalprogrammes,provisionofsubsidyschemes,andcompulsorylicensinginitiatives.
Theestablishmentofdecentralizedregionalwatermanagementinstitutionsthroughanevolutionaryprocessofincrementalinstitutionaldevelopmentisachievable,provideditisgiventhetimeandsupportitneedssothatitisseenasaninvestmentinempowermentanddevelopmentoflocalcommunitiesandinlocalwaterresourcemanagement.
Itmustalsobeacceptedthattheprocessofdevelopinginstitutionswillgraduallyadoptthetechnicalissuesofwaterresourcemanagementratherthantakeonthatresponsibilityatinception,attheriskofalienatingthelargemajoritywhosebonafidesinparticipatingintheprocessshouldnotbejudgedbytheircurrentdispositionortheirabilitytodealwiththenuancesofwaterresourceplanning.
Thebetterandmorevisiblywaterresourceplanningaddressesthewaterneedsofcommunities,thesmootherassimilationwillbe12.
DevelopmentPrerequisitesTransformationofthewatersectorinSouthAfricasince1994haswoninternationaladmirationfromalegislativepointofview,butfromanimplementationperspective,isofascalethatiswithoutprecedentinthiscountry'sandtheworld'shistory.
Thedepthandcomplexityofimbalancescreatedbypastpoliciesandpracticesgoesfarbeyondwidespreadpovertyandnoaccesstowater;ithascreatedanenormousvacuuminthesocio-economicdevelopmentofalargesectorofthecommunity,whichrequiresempathy,patienceandplanningtoredress,amuchlongerprocessthanthetimerequiredtodraftandpassnewlegislation.
Someofthekeydevelopmentprerequisitesthatareneededtofacilitateaphasedimplementationofbottom-upCMAestablishmentareoutlinedasfollows:Addressingtheservicesgap:stakeholderswithoutaccesstoasafewatersupplyunderstandablywanttoparticipateinmanagementinitiatives(such12Extractsfrom;vanKoppen,B,Mayet,MandKararE,2003.
"BottomupestablishmentofCatchmentManagementAgenciesinSouthAfrica".
PaperpresentedattheInternationalAssociationofHydrologicalEngineersSymposium,Stellenbosch,SA.
11asCMAestablishment)whenboththeirbasicconstitutionalrightofpotablewaterandtheirneedsforproductivewateraretakenseriously.
Thechallengeofdeliveringpotablewatertoallhasbeentackledadmirably,butthereinliesadilemmaaswell.
IntegrationbetweenwaterservicesandwaterresourcemanagementisacornerstoneofIWRM,buttheslowrateatwhichthisisseentobehappeningwithintheDepartmentcreatesfurtherdissensionamongststakeholders.
Ifofficialssteeringwaterresourcemanagementprocessesincorporatewaterserviceissuesinpublicparticipationinitiatives,itwouldconstituteamajorleapforwardinsolicitingbuy-infrommarginalizedstakeholderswhoarewithoutbasicservicesaswellasthosewhorallyaroundthem.
Thetrials,successesandplansofthewaterservicessectorshouldbeacommonfeatureonthepublicparticipationagenda.
Officialsshouldbewellequippedwithknowledgeofwaterserviceprogrammesandachievements,andpubliciserelevantaspectsinthepublicparticipationprocesstopre-emptanynegativecriticismthatmayariseandtoreflectanimageofintegratedandcommonconcernwithintheDepartmentasawhole.
CatchmentforumsandWaterUserAssociations:buildinganinstitutionsuchastheCMAfromthebottom-up,coveringalargegeographicareawithwiderangingfunctionsandwithrepresentativemembership,isanevolutionaryprocess.
AnessentialelementofthisprocessistohaveinstitutionsatalocallevelthatenableslocalcommunitiestobesensitizedtoIWRMandtomobilizethemselvesandworkcollectivelyoverissuesaffectingtheirenvironmentandqualityoflife.
CatchmentforumsandWaterUserAssociations(WUA)areappropriateinstitutionsforthispurpose.
Astheseinstitutionsgrowinnumber,confidence,andinaccomplishments,theycanformanetworkcoveringlargerareas,graduallyprovidingsecondandthirdtierinstitutionsinreadinessforinvolvementatCMAlevel.
Thistypeof"organic"growthininstitutionsforIWRMistherecipeforsustainableparticipation,aslongaslowest-tierinstitutionsupholdfreedomofassociationandexpression,focusoncommongoodandhavesufficientparticipationfromlocalandprovincialgovernmenttoensuremaximumfiltrationofcommunityissuesthroughthewidestpossiblenetwork.
Thereareseveralhighlysuccessfulexamplesofmeaningfulpublicparticipationatalocalinstitutionallevelfromwhichlessonscouldbedrawnforwiderapplication.
Information,capacitybuildingandeducation:withincreasingusageoftheterm,onehopesthatcapacitybuildingdoesnotloseitssignificanceasaconcertedandmethodicalplantoinformandredressthelevelofreadinessofpreviouslydisadvantagedcommunitiestounderstandthewatercycleatfurtherdistances,theimportanceofresourcemanagementandofworkingwithothersinabasincontexttosetandachievegoals.
Initswidestsense,capacitybuildingcanalsoanticipateresistance,pre-emptconflictandbuildtrust,allofwhichisessentialforsustainableparticipation.
Ausefulpointofdepartureinthecaseofpreviouslydisadvantagedcommunitiesisanauditofexistingknowledge,skillsandcapacity,andexistingcommunityandculturalactivities.
Thishastheadvantageofworkingfromapositionofstrength12(withinthecommunity)ratherthanstrivingpurelytofillavoidthatfocusesoninherentweaknesses.
Co-operativegovernance:Asanaturalresource,waterisnotlimitedbyboundaries,politicalpreferencesordividedresponsibilities.
Theriverisanaturalintegratorofamyriadoflanduses,cultures,politicalboundariesandlandscapesasitweavesitswayfromheadwaterstothesea.
Itisonlybefittingthatthesocietythatderivesbenefitfromtheresourcetakescollectiveresponsibilityforitsmanagement.
AsaconstitutionalimperativeforGovernmentDepartmentstoworkcollectivelyandavoidduplication,oneshouldbesafeinassumingthatco-operativegovernancewilltakeplace.
Inpractice,however,linesarestilldrawnbetweenDepartments,andsometimeswithinDepartments,whichdoesnotcreateanenvironmentconducivetoworkingtogether.
ManysplinteredeffortstointegrateactivitiesacrossDepartmentsarelaunched,butamorecomprehensiveprogrammeisneeded,atnationalandprovinciallevel.
ForCMAswhoseboundariescrossseveralprovincesandmunicipalities,theneedforintegrationisevenmorepronounced.
PerformanceIndicatorsInordertosteerthisbroad,evolutionaryprocessofinstitutionalbuildingontwofronts,namelythebuildingblockapproachtocommunityparticipation,andinterimwaterresourcemanagementmeasuresuntilfullyfledgedCMAsareinplace,performanceindicatorsareneededtoserveasyardsticksforevaluatingprogress,acknowledgingachievementsandamendingplans.
Becauseoftheinherentcomplexityofthetask,thereisnosingleindicatorthatstandsoutastheobviouschoice,butafewcrucialonesarelistedbelow.
Goals:Basedontheoverallpolicyforintegratedwaterresourcemanagement,theNWAoutlinesultimategoals,andprovidestheframeworkwithinwhichthesegoalscanbeachieved.
ThereissufficientlatitudeintheNWAforcommunitiestosettheirowngoalsthataremoremeaningfulintheircontext,aslongastheydonotconflictwiththoseoftheNWA.
Themajorchallengeliesininterpretingthegoalsintoshortandmediumtermgoalsthatarepracticallyachievablewiththeresourcesthatareavailable.
AmongthemoredifficultinterpretationsarethosesectionsoftheNWAthatrefertoequity,redressingimbalances,adequaterepresentation,"enabling"publicparticipationetc.
GuidelinesandotherdocumentscoveringsomeoftheseissueshavealreadybeenpreparedbytheDepartment,butalotmoreisstillopentointerpretation.
AparticularlyillustrativewayfortheDepartmenttopresentitsinterpretationoftheNWAisthroughthedevelopmentofMinimumRequirementsGuidelines,particularlyforinteractionswithstakeholdersatalllevels.
Theseguidelinescanbestructuredinsuchawayastoillustratetheelementsofaprocess,andthe"benchmark"requirementsofeachelementthataredeemedbytheDepartmentasaminimumrequirement.
Theprogressiontowardsthosegoalsisitselfaperformanceindicator.
Apoignantissuethatcouldbeaddressedinthisregardisthatofinstitutional13formatandinstitutionbuilding.
Thetraditionalprocessofinvitationthroughvariousmedia,publicmeting(s),establishmentofacommitteeorforumandsub-committees/workinggroupswithofficebearersetcmaybequiteinappropriateandinsensitivetopreferencesorcustomsoflocalcommunities.
Otheroptionsneedtobeexploredbytappinglocalresources,andtoaccommodatenovelinstitutionalarrangementsthataremorepalatabletothecommunities,istoinvestintheirsustainedparticipation.
Planningtoolsneedtobemorewidelyusedtoencouragecommunitiestodeveloptheirownindicatorsandmonitorthem.
PerhapsoneofthemostversatiletoolsinthisregardistheLogframeMatrix,whichasaplanningtoolisjustaspowerfulatfirsttierorganizationlevelasitisfortheCMA.
Itrequirestheestablishmentofassumptionsandmeansofverification,inadditiontogoals,whichservesasadynamictoolthroughouttheprojectduration.
ItisimportantthatPDIshaveaplanningtoolthattheycanshapethemselves,identifywith,andown,ratherthanrelyonlyonlookingatIntegratedDevelopmentPlansandWaterServicesDevelopmentPlanspreparedbygovernmentstructures.
Infactitwouldbemoreusefultointegrateorrefertotheseplanswhendevelopingthelogframe.
Built-inperformanceindicators:AmongtheinstrumentsprescribedbytheNWA,areseveralbuilt-inperformanceindicatorsthatprovideconvenientcheckmechanismsatsuitableintervalssothatcorrectiveactionmaybetakentimeously.
Someexamplesareasfollows:thelimitedtermofofficeformembersoftheGoverningBoard,thefiveyearreviewperiodforaCatchmentManagementStrategy,submissionofannualbusinessplansbywatermanagementinstitutions,etc.
Despitethesemechanisms,theDepartmenthasaresponsibilityaspublictrusteeandcustodianto(initiallysupportand)monitortheactivitiesofwatermanagementinstitutions,andtoensurethatthepurposeandgoalsoftheNWAareinfactimplemented.
IntheMeanTimeDespitethepoliticalwilltodevolvethemanagementofwaterresourcestothelocallevel,numerouschallengesareforcingthestatetoplaytheroleofinitiator,facilitator,refereeandregulator,inthemeantime.
ThisshouldnotimplythatSouthAfricaiscompromisingitsvisionbutdiscoveringthatitwouldberealisedinaphasedandprogressivemanner.
Alleffortsaremadetoovercomethereviewedchallengesonessentialimperativessuchascapacity,empowerment,socialjustice,cooperativegovernance,informationsharing,etc.
Checksandbalancesarebeingdevelopedtoensurethatthefuturedesiredstatebecomesachievableovertime.
Thisapproach/conclusionisnotstaticandshouldbeviewedasworkinprogresswhichwillbemonitoredandreviewedonaregularbasis.
Thereisanelementofpre-emptionregardingtheestablishmentofCMAthatarenotestablishedyet.
Questionsthatstillneedtobeexplored,researchedandanswered,include;141.
thecreationofincentivesfortheruralpoortoengageindialoguebyprovidingareasonableanswertothequestion"whatsinitforyou"Thedevelopmentalnatureofwaterresourcemanagementinstitutionswillcontributetosocialandeconomicdevelopmentmainlycanalisedthroughlocalgovernmentinitiatives.
TherecenttransformationoflocalgovernmentandtheirnewcompositioncandelaytheoperationalisationandrealisationoftheCMAdevelopmentalcontributions.
BothinstitutionsstrivingtofulfiltheirrespectivelegalmandatesunderdifferentActswherethereisnoaccountabilityfromonetotheother.
2.
Thelongtermvisionforwaterresourcesmanagementwhereequitableaccesstowaterisimplemented,representativeinstitutionsareestablished,etcmightnotbe"goodenough"forthosewhoarestillwaitingtofeelthepositiveimpactofthegovernmenttheyelectedsevenyearsagoontheirlives.
3.
InthishierarchyofgovernancestructuresinSouthAfrica,"whatisthemostappropriatelevelfordecisionmaking,nowandinthefuture"Thisvarieswiththegeographicscaleofoperation,asdiscussedearlierbutappropriatemethodsforitsidentificationarestilltobedeveloped.
4.
Themonitoringandevaluationtoolsforcapacitybuildingprogrammesaimedatensuringtherightimpactismadethroughachievingthetime-boundtargetsofthevision,needtobedesigned.
5.
AttractingbusinessesandinternationaldeveloperstoinvestinoldhomelandareastoensurethefinancialviabilityofdialogueplatformssuchasCMAswheretheyhavebeenear-markedasdevelopmentnodes.
6.
Institutingtherightchecksandbalancestoensureadequatecompliance,atalllevels,overtimecanbecumbersomebothonthesideofthecomplierandtheregulator.
Performanceindicatorsandauditingregulationsneedtobesimplifiedenoughforconsistentimplementationfortimeousandaccurateinterventions.