Water Sector Strategy - StrategieS 152
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S t r at eg i e S 1 5 2 Water Sector Strategy
Water Sec tor Strategy
Content
1 Purpose and Scope of the Strategy 4
1.1 Purpose of the Strategy 4
1.2 Scope of the Strategy 4
2 The Importance of the Water Sector and Challenges
in the Partner Countries 5
2.1 Importance of the Water Sector 5
2.2 challenges in the Partner countries 8
3 Principles and Objectives of Development Cooperation
in the Water Sector 10
3.1 general Framework for Development cooperation 10
3.2 Sector-Specific goals 11
3.3 the Human rights Dimension 12
3.4 Sector-Specific Principles 12
3.4.1 Integrated Water resources Management (IWrM) 12
3.4.1.1 core elements 12
3.4.1.2 objectives 14
3.4.1.3 conflicts Between the Various objectives 16
3.4.1.4 guidelines for the Implementation of IWrM in Development
cooperation 17
3.4.2 Multilevel approach 17
4 Lessons Learned from Development Cooperation
in the Water Sector 18
5 Target Groups, Partners, Instruments and Fields of Action 21
5.1 target groups 21
5.2 Partners 21
5.3 Instruments 22
5.3.1 Multilateral and european Development cooperation 22
5.3.2 Bilateral Development cooperation 22
5.3.3 Support for Non-governmental organisations/actors 22Water Sec tor Strategy
5.4 Fields of action 23
5.4.1 reforming the Framework conditions in the Water Sector
and Water resources Management 23
5.4.2 Water for People: Water Supply and Sanitation 24
5.4.3 Water for Food 25
5.4.4 Water for ecosystems 25
5.4.5 Water for other Purposes 26
5.4.6 Special areas: Flood Management and Dams 26Water Sec tor Strategy 1 Purpose and Scope of the Strategy 1.1 Purpose of the Strategy 1.2 Scope of the Strategy T T
Water Sec tor Strategy
2 the importance of the Water Sector and
Challenges in the Partner Countries
2.1 Importance of the Water Sector Water also plays a key role in crisis prevention
and conflict management. Water can worsen
crises, but it can also act as a catalyst for coopera-
“Clean water and sanitation can make or break
tion between countries and between actors
human development. They are fundamental to
within individual states.
what people can do and what they can become
– to their capabilities. Access to water is not just
interdependencies exist between the types of use
a fundamental human right and an intrinsically
described below. Often, several types of use are
important indicator for human progress. It also
reliant on a single resource. Water is generally
gives substance to other human rights and is a
used several times in a usage cascade, during
condition for attaining wider human develop-
which its quality may deteriorate. these interde-
ment goals”.
pendencies, and therefore also water competition
and conflicts, become more apparent as scarcity
Source: Human Development Report 006:
and water quality problems intensify. Further-
Beyond scarcity: Power, poverty and the global
more, larger interventions in one sector invari-
water crisis, UNDP, 2006.
ably have a knock-on effect on other types of use
and must therefore be monitored carefully.
Water is an essential element for life on earth.
the problems of water pollution, scarcity/ excess Water for People
and major fluctuations in water availability,
all of which are increasing in severity in many Drinking water supply, basic sanitation, and waste-
countries, have an impact on human health, food water and waste management are key prerequi-
availability, and economic and social develop- sites for a life in dignity. they prevent many of
ment. Poor countries are especially hard hit by the diseases which impair quality of life, impose
poor water quality, inadequate supply, droughts financial burdens on households and limit their
or floods as their institutions are weaker and they income-generation opportunities.
have fewer financial resources to meet these chal-
lenges. it is also the poor who suffer particularly in many countries, it is the task of women and
from water-related problems, e.g. because they girls to carry home the drinking water for their
lack access to clean water, cannot afford medical families. Often, they spend many hours a day
treatment for waterborne diseases, live in areas at fetching water – with ensuing impacts on their
risk from floods and mudslides, or because their health, schooling, vocational training, and
agricultural systems are entirely dependent on income-generation opportunities. Waterborne
erratic rainfall. diseases within the family may also take up more
of women‘s time as they are the main caregivers
when family members fall sick. Women and girls
according to the World Health organization, 80 percent of diseases in
the developing world are caused by unsafe water, poor sanitation and
a lack of hygiene education.6 Water Sec tor Strategy
therefore benefit especially from improvements A
in water supply and sanitation, as this can reduce
the physical burden and amount of time spent
fetching water, caring for the sick, disposing of
wastewater, and dealing with domestic hygiene.
With more time available, women are able to pur-
sue other activities, including income generation.
in addition, many girls can only attend school
once appropriate sanitary facilities are provided.
Drinking water supply accounts for around 10
percent of global water consumption. in rural
areas, drinking water withdrawal often does not A
inflict stress on the resource situation. in today‘s
expanding urban centres, however, it has a major
impact on the quality and quantity of surface
water and groundwater. in particular, contamina-
tion of watercourses due to poor wastewater and
waste management can cause irreversible damage
if the environment‘s pollution absorption capaci-
ties are exceeded.
A
Water for Ecosystems
E
Water for Food
TWater Sec tor Strategy
and therefore the value put on them, increase The Importance of Flood Management
significantly.
E
I
Water for Other Purposes, Including Energy
Besides food security, the availability of water
is an important basis for all other productive
activities. Water is essential for commerce and
industry, where it is used as a medium (e.g. as a
solvent), coolant or mode of transport in most
production processes. according to UNeSCO, The Importance of Dams
industrial uses currently account for about 20
percent of global water consumption, and this is Dams are important for flood protection, irri-
likely to increase to 50 percent by 2020. in some gation, drinking water supply and renewable
countries, tourism is also responsible for a large energy production. in light of population growth,
percentage of water consumption. economic development, climate change and,
to some extent, the still untapped potential of
Water is also an important resource for energy hydropower, dams can offer useful opportunities
production, especially via hydropower plants. for development in many areas. in the past, how-
thermal power stations require water for cooling ever, many dam construction projects had devas-
during operation or as a conveyor of heat energy. tating social and environmental impacts and
Hydropower is likely to become increasingly also proved to be unprofitable. there are often
important in the context of the global climate alternatives to large dam construction, e.g. better
change debate, as it is often a cheap renewable rainwater harvesting, small-scale dams, artificial
energy resource, which generally causes far fewer groundwater recharge, demand management, etc.
negative environmental impacts than other
energy sources. Harnessing the energy contained
in wastewater and human excreta through the
use of heat pumps or via methane production can
also make a contribution to energy supply. Water Sec tor Strategy
2.2 Challenges in the Partner Countries neglected. if they are considered at all for the
expansion of water services, local households are
“In many countries water governance is in a state of in some cases unable to afford the charges for
confusion: in some countries there is a total lack of connection to the system.
water institutions, and others display fragmented
institutional structures or conflicting decision- if local residents meet their drinking water needs
making structures. In many places conflicting from natural sources, their health may be at risk
upstream and downstream interests regarding from waterborne diseases. Furthermore, women
riparian rights and access to water resources are and girls in particular may have to shoulder the
pressing issues that need immediate attention; in considerable physical and time burden associated
many other cases there are strong tendencies to with fetching water from natural sources. Waste-
divert public resources for personal gain, or unpre- water and human excreta from sewers, cesspits
dictability in the use of laws and regulations and and people defecating in the open air further
licensing practices impede markets and voluntary impair the living environment and the water sup-
action and encourage corruption.” ply of the poor.
Source: The nd United Nations World Water
When drinking water is supplied from house con-
Development Report: Water – a shared
nections, yard taps or public water points, high
responsibility, World Water assessment Programme,
prices may be charged for the water. However, if
New york, 2006.
people have no connection to a water supply sys-
tem or access to a natural source, they may have
Water crises can be triggered by hydrological to purchase water from private water vendors,
factors but generally have institutional and socio- often paying even higher prices and putting their
economic causes as well; indeed, these may be the health at risk if these sources are not monitored
primary factors. a major cause of water shortage, effectively by the state.
pollution and inadequate access to water services
and sanitation is the lack of, and misallocation of, Water Scarcity on the Increase
public funds to finance investment and maintain
infrastructure. Other major factors are poor Hydrological conditions in the partner countries
resource management and ineffective legislation, vary very widely: some of them have large vol-
regulation and planning. Hydrological and institu- umes of water available, whereas others have to
tional weaknesses and under-funding often occur contend with acute regional or seasonal water
in combination and are mutually reinforcing. scarcity. However, supply bottlenecks are gener-
ally not just a hydrological problem but are often
Inadequate Provision for poor Population caused by poor general and sector governance
Groups and inadequate resource management.
Despite major advances since 1990, around Overall, water scarcity is noticeably increasing
1.1 billion people worldwide still lack access due to the inadequate response by water sector
to a safe drinking water supply and more than actors and strategies to high population growth,
2.6 billion people lack access to adequate sani- rapid urbanisation, industrial development and
tation. the poor in rapidly growing urban periph- the expansion of irrigated agriculture, generally
eries, rural settlements and the margins of small with negative impacts on soils and watercourses
and medium-sized towns and cities are especially (groundwater, rivers and lakes). Overexploitation
hard hit. the development of these areas is often of water resources causes a drop in the waterWater Sec tor Strategy
table and increases salt water intrusion in coastal agement and the operation of water treatment
aquifers. it may also reduce the ecologically plants are not a political priority.
necessary residual water flow in watercourses to
below minimum requirements, causing environ- G
mental problems such as lakes drying out, deltas
silting up, etc.
Water scarcity is often coupled with short-term
water excess, even in countries where water is
generally scarce. Drought destroys vegetation
cover and causes hardening of the soil, thereby
reducing its water-holding and thus its buffer
capacities. as a result, droughts are followed by
floods and vice versa.
Water as a Source of Conflict
A
Due to the rising demand for water for all types
of use and their strong interdependencies,
freshwater competition within and between the
individual types of water use is intensifying in
many water-scarce countries and regions. it is
becoming increasingly difficult to guarantee the
water supply to the urban centres as well as to
Water Pollution on the Increase agriculture and industry, especially during peri-
ods of drought. the main areas of conflict are the
Worldwide, 90 to 95 percent of the wastewater competition between drinking water supply and
from industry and households is discharged un- agricultural irrigation, and between the urban
treated into watercourses. Microbial contamina- and rural water supply systems.
tion of water resources by domestic wastewater
has increased substantially. there is also contami- However, lines of conflict may also transcend
nation from fertilisers and pesticides used in agri- national borders. For example, within trans-
culture. as a result, in some partner countries, boundary river or groundwater catchment areas,
making water resources available for use entails there is often great inequality between regions
high and rising costs of water treatment. increas- and countries in terms of the availability of water
ing pollution is also accelerating the degradation resources. Downstream riparian states are suffer-
of ecosystems (e.g. loss of biodiversity) and reduc- ing increasingly from water shortage and quality
ing their environmental performance. Unless it is problems because countries upstream are with-
coupled with wastewater management, the ur- drawing larger amounts of water, or are allowing
gently needed expansion of water supply systems wastewater or contaminated runoff from agricul-
can worsen the often already problematical hy- ture to flow back untreated into the hydrological
giene conditions at local level, while freshwater cycle. Yet studies also show that water conflicts
resources and aquatic ecosystems are put at risk are no less likely to occur where there is adequate
from the increase in the volume of wastewater. in access to water. Conflicting territorial, economic
many cases, the available financial resources are and security interests often play a background
inadequate, and investments in wastewater man- role in inter-state disputes over water. Conversely,10 Water Sec tor Strategy
transboundary water cooperation offers oppor- Impacts of Climate Change
tunities for coordinated joint water utilisation
in which complementary interests facilitate I
mutually beneficial solutions. in many cases, this
can bring about a general improvement in neigh-
bourly relations between riparian states.
3 Principles and Objectives of Development
Cooperation in the Water Sector
3.1 General Framework for Development I
Cooperation
T
l to reducing poverty worldwide,
l building peace and achieving democracy,
l achieving justice in globalisation, and
l protecting the environment.
I
GWater Sec tor Strategy 11
T
“We, Ministers of developed and developing coun-
tries responsible for promoting development and
Heads of multilateral and bilateral development
institutions, meeting in Paris on 2 March 2005,
resolve to take far-reaching and monitorable
actions to reform the ways we deliver and man-
MDg 7 (ensure environmental sustainability) is
age aid (…).We reaffirm the commitments made
the key international goal here. it requires states
at Rome to harmonise and align aid delivery. (…)
to commit to the sustainable development of
We acknowledge that enhancing the effective-
environmental resources in order to halt and
ness of aid is feasible and necessary across all aid
reverse their loss (target 9). the sustainable man-
modalities. In determining the most effective
agement of water resources for food security and
modalities of aid delivery, we will be guided by
economic development is an important requisite
development strategies and priorities established
for achieving MDg 1 (eradicate extreme poverty
by partner countries. (…) Partner countries [will]
and hunger) and contributes to the attainment of
exercise effective leadership over their develop-
most of the other MDgs. target 10 aims to halve2,
ment policies, and strategies and co-ordinate
by 2015, the proportion of people without sustain-
development actions.”
able access to safe drinking water and basic sani-
Source: Paris Declaration on Aid Effectiveness tation. target 10 is also closely linked with other
(Paris Declaration), Paris, 2005. MDgs. Because better access to clean drinking
water and basic sanitation has a positive impact
on health, nutrition and education and also on
3.2 Sector-Specific Goals gender equality, it can make a key contribution
to the attainment of the following MDgs: MDg
1, MDg 2 (achieve universal primary education),
“In adopting the Millennium Development Goals, MDg 3 (Promote gender equality and empower
the nations of the world pledged to halve by 2015 women), MDg 4 (reduce child mortality), MDg 5
the proportion of people without sustainable ac- (improve maternal health), and MDg 6 (Combat
cess to safe drinking water and basic sanitation. HiV/aiDS, malaria and other diseases).
Unless the world redeems that pledge, we will be
hard-pressed to meet the MDG targets in other T
vital areas such as nutrition, education, poverty
eradication, and environment, for water is life. But
so far progress in meeting the MDG water and
sanitation target has been fitful and slow.
We need radical change and swift, resolute
action.”
Source: Hashimoto Action Plan adopted by the 2 as well as aiming to achieve the quantitative goal set out in target 0,
development cooperation in the water sector also focusses on improv-
United Nations Secretary-general‘s advisory Board ing the quality and environmental sustainability of supply as well as
on Water and Sanitation (UNSgaB) and presented at safeguarding the economic sustainability of infrastructural investments
on a long-term basis.
the 4th World Water Forum in Mexico, 2006.
at the 2002 World Summit on Sustainable Development (WSSD) in
Johannesburg, the sanitation target was adopted, inter alia at germany‘s
initiative.1 Water Sec tor Strategy
T government pledges to make targeted efforts to
promote economic, social and cultural rights.
A
Water must be available, accessible, of acceptable
quality, and affordable. in individual cases, this
may entail an obligation to provide people living
in extreme poverty with the minimum amount
of water necessary for life at no charge if need be.
it is a matter for states to decide whether to fulfil
their obligations relating to the right to water
through private providers or the public sector.
3.3 The Human Rights Dimension
3.4 Sector-Specific Principles
in water supply and sanitation, development coop-
eration also contributes to the realisation of the 3.4.1 Integrated Water Resources
human right to access to drinking water and basic Management (IWRM)
sanitation. this right is an element of the right to an
adequate standard of living enshrined in articles 11 3.4.1.1 Core Elements
and 12 of the international Covenant on economic,
Social, and Cultural rights (iCeSCr)4. it is closely “IWRM is a process which promotes the co-ordi-
linked with other human rights, notably the rights nated development and management of water,
to food, education and health as well as to political land and related resources, in order to maximise
and economic participation. in its Development the resultant economic and social welfare in an
Policy action Plan on Human rights5, the german equitable manner without compromising the
sustainability of vital ecosystems.”
4 the International covenant on economic, Social, and cultural rights Source: Global Water Partnership: technical Paper
was adopted unanimously by the United Nations general assembly
on 6 December 966 and has now been ratified by most UN member
No. 4, Stockholm 2000.
states (5 parties as of 8 May 2006).
5 See “Seventh report of the government of the Federal republic of
germany on its Human rights Policy in the context of Foreign rela-
tions and other areas of National Policy”, Section D, Federal Foreign
office, June 2005.Water Sec tor Strategy 1
I I
1) for the selection of priority subsectors as
fields of action for development engage- Participation and Transparency
ment, and
A
2) for the development of assistance strate-
gies within these subsectors.
I
I
T
Water Resources Management According to
Natural Boundaries
Water does not respect political or administrative
boundaries. Water flow is determined by geologi-
cal and geomorphological structures and may
also cross national borders. Sustainable water
resources management should therefore be
based on water catchment areas.
For example, in the past, private-sector involvement in drinking water
supply and sanitation was often an area of conflict.1 Water Sec tor Strategy
process onwards. Furthermore, appropriate cal access to, water services for the poor and other
structures are being demanded and supported marginalised groups. in order to identify the most
so that users and stakeholders are represented in discriminated groups and provide appropriate,
planning, implementing and supervisory bodies, problem-oriented support, data on the poverty
if necessary via civil society organisations. appro- situation and, if appropriate, on gender-specific
priate preparatory, monitoring and/or follow-up factors as well as information on discrimination
management of the social environment can make caused by other factors must be collected on a
a key contribution to project sustainability. differentiated basis and made available to all the
relevant actors.
Subsidiarity
I 3.4.1.2 Objectives
I
Environmental Sustainability
Water will continue to be vital for future genera-
tions. Water resources management therefore
aims to achieve a balanced water budget, which
means that water withdrawals should not
exceed the amount of available renewable water
resources in order to avoid a drop in groundwater
levels or the drying out of surface watercourses.
if there is a need to draw on fossil water reserves
because there is insufficient renewable water
Knowledge Management available for the drinking water supply, new
methods of providing water should be developed
Developing a knowledge base about water – as long as they are economically and ecologi-
resources and water use is the basis for problem- cally viable – such as seawater/brackish water
oriented decision-making in the water sector. desalination, artificial groundwater recharge, or
Many developing countries lack adequate the use of treated wastewater, in order to avoid
basic data about water quality and quantity in long-term supply bottlenecks and ecosystem
the catchment areas and on sociocultural and disruptions.
socioeconomic factors. in many cases, data is
only available to administrative bodies whose A
geographical range does not match the water
catchment areas in question.
AWater Sec tor Strategy 1
and recycling/reuse substantially expanded. in compensation mechanisms, support must also
this context, the avoidance, collection, treatment, be provided to build or improve the political
reuse or proper disposal of all types of pollutants dialogue capacities of poor and disadvantaged
and waste play an important and complementary groups (empowerment).
role.8
Economic Efficiency
Social Justice
Many of the mistakes made in water resources
E management arise from the fact that water
prices, as a key benchmark of scarcity and prefer-
ences, and therefore a steering instrument for
efficient, needs-related water allocation, do not
exist, are distorted, or do not have the impact
they should have. this is apparent from the fact
that the value put on water as a resource is often
too low (e.g. omitting environmental services)
I or non-existent, does not take full account of the
costs of treating and supplying the water, and
does not aim to cover the costs of water services.
tariff and charging systems play a key role in this
context, but other demand management and
regulatory instruments – such as rationing, quotas
and tradable water rights – all play a part in deter-
mining whether water, as a scarce resource, is
managed efficiently and sustainably and can thus
be supplied to everyone on an equitable basis.
I
E
16 Water Sec tor Strategy
For efficient water resources management, an regional water scarcity, conflicting priorities can
operational perspective is also of key importance rapidly arise between the need to expand water
alongside macroeconomic considerations. in services, on the one hand, and environmental sus-
line with this approach, the full economic cost tainability, on the other. in water catchment areas
(operating expenditures and capital charge, with a strained or negative water balance, the
including appropriate minimum interest pay- drinking water supply can only be safeguarded –
ments) at the level of the public or private utility if no water is to be diverted away from agriculture
company must be covered from revenue. Full cost – through the temporary or permanent overex-
recovery is a key prerequisite to ensure the sus- ploitation of groundwater or from rivers and, in
tainable operation of systems and must include extreme cases, the utilisation of fossil groundwater.
appropriate funding for investment in renewal in such situations, the need to ensure a basic supply
and expansion. Due to the positive externalities of of water services to poor population groups must
pro-poor and environmental measures in water be brought into line with the need for environ-
and wastewater management9, full cost recovery mental sustainability. in the long term, social jus-
can also be achieved through supplementary tice can only be achieved on the basis of ecologi-
state subsidies. For development cooperation, cally sustainable resource management.
this means that in sector dialogue and practical
cooperation, the aim must be to improve the For development cooperation, this means that
institutional, financial, legal and organisational promoting measures to supply the population
framework for sustainable service delivery. with water can be considered even in cases of a
negative water balance, if these measures are
Compliance with the principle of full cost recov- likely to result in substantial and positive devel-
ery does not rule out the option of providing opment impacts. in humanitarian emergencies,
poorer social groups with a basic drinking water the use of non-renewable fossil groundwater as
supply to meet their essential daily needs as well a source of drinking water is also tolerable in the
as basic sanitation at lower prices, i.e. prices short term. in both cases, however, every opportu-
which generally do not cover the costs, or even nity must be utilised to improve the water balance
at no charge in extreme cases. the same applies both beforehand and as a flanking measure. in
to sanitation. a socially compatible system of particular, the use of fossil water must always be
charging or, alternatively, direct person-specific subject to a comprehensive evaluation of alterna-
transfer payments enable water and sanitation to tive options.
be supplied to low-income or other marginalised
groups in order to meet their basic needs. A
3.4.1.3 Conflicts Between the Various
Objectives
When adopting individual measures in the water
sector, it is not always possible to achieve all the
above-mentioned objectives to an equal extent.
For example, in situations of severe seasonal or
Water Sec tor Strategy 1
I with development measures linking in with
existing water management plans. However,
development cooperation is particularly engaged
in those sectors where german development
agencies have comparative advantages, where
partners are willing to engage in dialogue and
undertake reforms, where it can have a signifi-
cant impact, and where appropriate institutional,
legal and political frameworks ensure that devel-
opment measures have a sustainable effect. this
decision is taken in agreement and – wherever
possible – in cooperation with other donors.
3.4.2 Multilevel Approach
I
3.4.1.4 Guidelines for the Implementation of
IWRM in Development Cooperation
I
Wherever possible, development cooperation
is integrated into ongoing iWrM processes,1 Water Sec tor Strategy
T
“Considering the environmental damage, the
health risks, and the worsening water crisis, a
revolutionary rethink of our current sanitation
practices is urgently needed. Ecosan provides a
solution by applying the basic principle of closing
the loop through the application of modern and
safe sanitation and reuse technologies, thereby
continuing the historic tradition of recycling
human wastes once applied in most farming-
societies.”
Source: Poverty-Environment Partnership:
Linking poverty reduction and water management,
Stockholm environment Institute and United
Nations Development Programme (eds.),
published online in 2006.
the holistic approach to water sector develop-
ment, taking account of all types of use and
incorporating socially compatible and economi-
cally efficient allocation mechanisms, is still in
its infancy in many countries, however. there are
many reasons for this:
l iWrM principles are not yet adequately
embedded in many partner countries‘
strategies. in most cases, the requisite
reform processes have been initiated by
donors. Some partner countries have only
internalised the principles underlying the
reforms to a limited extent. in some coun-
tries and regions that are particularly hard
hit by water scarcity, sector reforms have
only been implemented in areas where little
political resistance has been encountered,
notably the adoption of legislation: the
legislative framework for the water sector,
and indeed environmental legislation inWater Sec tor Strategy 1
general, are generally fairly well developed. l implementing comprehensive multisec-
Many countries already have quite a few toral water programmes based on iWrM is
elements of legislation governing the water often very complex. it is often more effec-
sector which take account of sustainability tive to implement clearly focussed sectoral
aspects and make drinking water a priority. projects that aim to facilitate local capacity-
the problem, however, is often the imple- building and reforms and achieve social,
mentation and enforcement of new regula- environmental and economic objectives.
tions vis-à-vis influential elites. these elites in these cases, it is nonetheless essential
profit especially from the cheap water avail- to integrate the projects consistently into
able in irrigated agriculture, but also from the overall water sector context and thus
subsidies – supposedly granted in response to make a progressive contribution to the
to social factors – in urban water supply and establishment of a wider process which con-
wastewater management systems. forms with iWrM principles. in other cases,
an overly restrictive subsectoral approach
l the sectoral structure of the administra- may not be appropriate to achieve the
tion in many partner countries often still desired structural impacts. in such cases,
conflicts with the adoption of integrated broad-based sectoral engagement is
approaches. the geographical range of essential to achieve the necessary structural
water catchment areas generally does not outcomes in line with iWrM principles.
conform with the existing administrative
units. the administrations often show little l the majority of developing countries still
willingness to cooperate. institutions – have a long way to go to achieve full cost
such as water catchment authorities – that recovery in all areas of water use. Often,
are newly established as part of reform only the operating and maintenance costs
processes are often not properly integrated are – barely – covered, while the necessary
into existing institutional structures and cross-subsidy potential is not achieved.
socioeconomic frameworks. in most cases, improving the institutional, legal and
they have been created on top. they also organisational framework is essential for
have insufficient powers; in particular, they efficient, user-oriented service delivery.
lack clear rules for interfacing with other However, as improving the framework
institutions. the legally established water conditions is a protracted process, which
catchment authorities are often under- must form part of a wider good governance
funded, with the result that they cannot ful- policy, the aim of cost recovery can gener-
fil their mandate properly. Other agencies ally only be achieved in most developing
refuse to cede formal and policy-making countries on a progressive basis over a
powers to the water catchment authorities. period of several years.
these authorities should therefore not
be regarded as the only viable approach l in german development cooperation, the
to solving problems in water resources practical approach to prioritisation and
management. instead, a careful appraisal the selection of fields for development
should be undertaken on a country-specific intervention make it more difficult to
basis to identify the institutional form that implement a holistic approach in the water
is most appropriate for efficient iWrM sector. For example, a distinction is made
implementation. between the following priorities: drinking
water supply and sanitation; (irrigated)0 Water Sec tor Strategy
agriculture; and environmental and measures are often being developed and
resource protection. in most cases, german adapted on the basis of inadequate data.
development cooperation does not operate For that reason, greater priority must be
in all of these sectors in every partner coun- given to the systematic development of a
try, so it may not be in a position to finance data and information management system.
certain priority measures in the water
sector. to implement the iWrM approach, l even if good governance, participation,
it would therefore seem appropriate to institutions and capacities are in place,
interpret the definitions and limits of the implementing comprehensive reform
priorities flexibly, or to agree on “water” as processes may take many years. interest-
a general priority. related patterns of use by various consumer
groups can generally only be broken after
l Lack of information impedes the planning years of awareness-raising. Success factors
and management process. admittedly, include a viable and robust basis for coop-
water master plans have been developed eration with decision-makers and staff in
occasionally, often with donor financing, key sectoral institutions, appropriate
but they are not integrated into systematic involvement of representatives of interest
data collection and evaluation. the moni- groups, especially extremely poor and
toring of water quantity and quality often disadvantaged groups, and sufficient will-
only takes place within individual projects, ingness on the part of partners to under-
and the same applies to the collection of take reform. Development measures in this
information about access to water in the area must therefore be geared towards
settlement areas of the poor. as a result, long-term engagement.Water Sec tor Strategy 1
5 target groups, Partners, instruments and
Fields of action
5.1 Target Groups organisations, joint agencies, water catchment
authorities, and user groups. in order to comply
the key target group for german development with the iWrM approach, institutions operating
cooperation in the water sector is the poor and in associated sectors, such as ministries of agricul-
extremely poor population, which currently has ture, health authorities and bodies charged with
little or no access to safe and/or adequate drink- implementing the closed-loop economy, should
ing water, sanitation and/or water for farming. also be included.
the urban slums and rural regions are especially
important in this context. as experience has shown, women play a central
part in the provision, management and safe-
as a rule, it is also the poor groups who suffer guarding of water and should be included
most from contamination of watercourses, as intensively in projects at target-group level.
they are often reliant on these sources of water for their expertise and specific interests can also be
drinking, irrigation and washing. Due to a lack of utilised at higher levels of planning and adminis-
alternatives, the poor often settle in areas which tration, with intermediary organisations playing
are especially prone to flooding and mudslides. a facilitating role here.
they are also particularly hard hit by the decrease
in groundwater resources as they rarely have Partners in germany and europe include water
access to the technologies or resources required and wastewater management companies, asso-
to draw water from ever-greater depths. german ciations, plant construction companies, NgOs,
development cooperation is also addressing these consulting firms, universities and other public
problems as a priority. and private organisations operating in the water
sector. the mobilisation of private capital and
Furthermore, development cooperation in the technical and commercial know-how can also
water sector also benefits other demographic make major contributions to development coop-
groups by contributing to environmental protec- eration in the water sector. the BMZ is working
tion and sustainable development in agriculture, with other relevant federal ministries to devise
commerce and industry, thus promoting social coherent policy solutions aimed at global sustain-
and economic development as a whole. able development in the water sector.
as part of the improved donor coordination
5.2 Partners to which the international community is com-
mitted, german development has stepped up
the challenges arising in the water sector can its cooperation with other bi- and multilateral
only be solved through cooperation on the basis donors. this cooperation primarily aims to
of partnerships. Local partners for german increase the effectiveness and efficiency of devel-
development cooperation generally include opment measures through better coordination
government institutions and administrative and synergies.
bodies, public corporations, non-governmental Water Sec tor Strategy
5.3 Instruments ties of organisations and individuals working in
the water sector. in this role, it gears its efforts
5.3.1 Multilateral and European Development towards long-term support for the partner coun-
Cooperation tries in all phases of the reform and restructuring
process. Particular importance is attached to
T building national advisory capacities and facili-
tating south-south dialogue.
I
5.3.3 Support for Non-Governmental
Organisations/Actors
Various civil society groups and organisations
are engaged in development cooperation at the
non-governmental level and implement projects
under their own responsibility.
Furthermore, the german government is engaged
in the international water sector dialogue and Non-governmental initiatives play a particularly
development-relevant international water important role in promoting broad public aware-
research. this is intended to promote mutual ness of the importance of water as a resource.
exchange and learning from experience. indeed, for many NgOs, the water sector has been
the key focus of their development policy work for
many years. the german government supports
5.3.2 Bilateral Development Cooperation this commitment in accordance with the criteria
governing cooperation with non-governmental
G organisations.
TWater Sec tor Strategy
5.4 Fields of Action prehensive, iWrM-oriented analysis of the prob-
lems facing the partner country. achievable devel-
opment policy impacts, the significance and com-
G
parative strengths and weaknesses of german de-
velopment cooperation, possibly divergent views
on the part of the partner institutions, and the acti-
vities of other donors all play an important role
when devising strategies and projects.
1. The first key is to meet the water security
5.4.1 Reforming the Framework Conditions in
needs of the poor.
the Water Sector and Water Resources
2. Decentralisation is key. The local level is
Management
where national policy meets community
needs.
3. The key to better water outreach is new
partnerships.
4. The key to long-term harmony with nature
and neighbour is cooperative arrangements
at the water basin level, including across
waters that touch many shores.
5. The essential key is stronger, better per-
forming governance arrangements.
Source: International Conference on Freshwater
001, Bonn, 2002.
Furthermore, ministries
and subordinate authorities of relevance to the
E water sector often require support, while regula-
tory and water catchment authorities must be
developed and consolidated. Mediation bodies,
water committees and water parliaments can
contribute to conflict prevention and resolution.
Other bases for sustainable water resources man-
agement include the collection and evaluation of
hydrological and socioeconomic data, and here
too, development cooperation can play a role.
A
11 Water Sec tor Strategy
clear allocation of responsibilities among the private utilities to operate economically. at the
various institutions working in this sector and same time, appropriate supervisory and control
by decentralisation of decision-making, powers mechanisms are required to guarantee adequate
and finances in a manner appropriate to the transparency and accountability vis-à-vis users
context and local capacities. effective regulation and the state‘s supervisory bodies. establishing
of service delivery must be guaranteed, especially better corporate governance structures is proving
in situations where natural monopolies exist. Pro- to be a protracted process within a wider good
fessional associations and similar participatory governance policy. thus the aim of cost recovery
institutions can make valuable contributions to in relation to water services can also only be
the further development of the water manage- achieved progressively and over a number of
ment framework, e.g. in standard- and norm- years in most developing countries.
setting or in benchmarking processes.
Operator structures and qualifications have
T emerged as a key issue. in combination with overall
improvements in corporate governance structures,
the provision of training and further education –
often in business management – for professionals
and managers is frequently needed. Private sector
involvement to support these processes may be
helpful if based on careful preparation, monitor-
ing and adequate diversification of risks.
I
5.4.2 Water for People: Water Supply and
Sanitation
A
A
1Water Sec tor Strategy
I livestock farming and forestry through better
water resources management. in this context,
improving rainwater harvesting takes priority
over the expansion of irrigated agriculture. in
irrigated agriculture, opportunities to improve
the efficiency of existing systems should be utilised
before new schemes are developed. Small and
medium-sized farms take priority over large-scale
R irrigated agriculture when it comes to the alloca-
tion of funding. Safeguarding legal certainty in
relation to the cultivated areas is particularly
important when investing in irrigation systems.
Other key starting points for better water resources
management in arable and livestock farming and
forestry include access to resources and a balance
T of uses/interests. Local self-help or community-
based programmes are promising approaches,
provided that appropriate framework conditions
are in place. traditional or socially adapted forms of
land-use and spatial planning offer an important
entry point for the development of rules, future-
oriented scenarios and paradigms and in setting
priorities for policy-makers, research, advisory
services and funding agencies.
T
Particular account must be taken of the water
access needs of small family farms. Water law
issues should therefore be given appropriate con-
sideration in the context of agricultural reforms
and land allocation/redistribution.
5.4.3 Water for Food
5.4.4 Water for Ecosystems
“Water for food” comprises all types of land use
which consume water for food production and I
income generation. On average, around two -thirds
of precipitation evaporates or is held in soil and
used in situ by plants (i.e. green water), while just
one-third flows into blue water (rivers, lakes and
groundwater). increasing productivity in the use of
both these water resources is therefore important.
Key activities in this context are promoting greater
efficiency, productivity and output in arable and6 Water Sec tor Strategy
the natural geographic region offers viable solu- 5.4.5 Water for Other Purposes
tions, e.g. for water retention and filtration, within
the framework of a holistic water sector policy. T
Water-related development cooperation can pro-
mote the protection and development of these
ecosystems through a variety of measures, e.g.
through regulation, the designation and estab-
lishment of protected areas, conditions of use,
mediation schemes and conflict resolution mech-
anisms, financing of incentive schemes and com-
pensation measures, development of monitoring
procedures, combating erosion, afforestation,
and catchment management. Mechanisms for
transfers from the beneficiaries of water-related
environmental services (e.g. erosion protection)
to the providers (payment for environmental Development cooperation can also provide fund-
services, PeS) can contribute to the sustainable ing for systems that promote the environmentally
protection of ecosystems in some cases. and socially compatible use of hydropower, tak-
ing account of the criteria for dams mentioned
“The concept of payments for environmental serv- below. in this context, priority is given to run-of-
ices (PES) has received substantial interest in recent river power stations and small-scale dams for the
years as a way of creating incentive measures for local energy supply.
managing natural resources, addressing livelihood
issues for the rural poor, and providing sustainable
financing for protected areas. The basic idea is 5.4.6 Special Areas:
that those who “provide” environmental services Flood Management and Dams
by conserving natural ecosystems should be com-
pensated by beneficiaries of the service.” Flood management is becoming increasingly
important in many countries. in the wider con-
Source: Payments for Environmental Services,
text of disaster reduction, the negative impacts
World Wide Fund for Nature, gland (Switzerland),
of flood events can be mitigated or averted by
2006.
means of afforestation and erosion protection
measures, improvements in rainwater drainage,
For our partners, the right to water also creates an reactivation or creation of floodplains, and ripar-
obligation to conserve scarce water resources for ian and coastal protection. regulatory measures
future generations. its implementation requires in the field of spatial and regional planning,
close interaction with the local population, along along with technical flood protection measures,
with information, awareness-raising and partici- make a contribution here. the establishment of
pation on the basis of ownership. as water resources early warning systems – especially for poor popu-
are in some cases exported by partner countries lation groups who are at greatest risk – makes an
to industrialised countries as virtual water, these important contribution to reducing vulnerability
latter countries also – ideally – have an interest in and minimising flood damage.
supporting sustainable water resources manage-
ment in the relevant products‘ countries of origin.Water Sec tor Strategy
T
The WCD report is a milestone in the evolution
of dams as a development option. The debate
about dams is a debate about the very meaning,
purpose and pathways for achieving development.
Through its Global Review of the performance of
dams, the Commission presented an integrated
assessment of when, how and why dams succeed
or fail in meeting development objectives. This
provides the rationale for a fundamental shift
in options assessment and in the planning and
project cycles for water and energy resources
development.
The Commission‘s framework for decision-making
was based on five core values-equity, sustainabil-
ity, efficiency, participatory decision-making and
accountability. It proposed:
l a rights-and-risks approach as a practical and
principled basis for identifying all legitimate
stakeholders in negotiating development
choices and agreements;
l seven strategic priorities and corresponding
policy principles for water and energy re-
sources development-gaining public accept-
ance, comprehensive options assessment,
addressing existing dams, sustaining rivers
and livelihoods, recognising entitlements
and sharing benefits, ensuring compliance,
and sharing rivers for peace, development
and security; and
l criteria and guidelines for good practice
related to the strategic priorities, ranging
from life-cycle and environmental flow as-
sessments to impoverishment risk analysis
and integrity pacts.
Source: Dams and Development: A New Frame-
work for Decision-Making. overview, World com-
mission on Dams, London, 2000.
13Published by the Federal Ministry for Economic Cooperation and Development Bonn Office Postfach 12 03 22 53045 Bonn germany Phone: + 49 (0) 228 99 535 - 0 Fax: + 49 (0) 228 99 535 - 35 00 Berlin Office Stresemannstraße 94 10963 Berlin germany Phone: + 49 (0) 30 18 535 - 0 Fax: + 49 (0) 30 18 535 - 25 01 poststelle@bmz.bund.de www.bmz.de Editor-in-chief Martin Kipping, Kirsten Doelle, anja Bentlage Final editing Jutta Wagner Officials responsible Dr. Manfred Konukiewitz As at September 2 006
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