Co-Chairpersons' Report of the AD-Hoc Intersessional Working Group of the U.N. Commission on Sustainable Development on Strategic Approaches to Freshwater Management New York, February 23 - 27, 1998
I. INTRODUCTION
1. The Ad Hoc Intersessional Working Group on Strategic Approaches to Freshwater Management met in New York on 23-27 February, 1998 in preparation for consideration of this issue at the sixth session of the Commission on Sustainable Development (New York, 20 April - 1 May, 1998). The discussions were based on the recommendations and proposals for actions contained in the reports of the Secretary-General E/CN.17/1998/2 and Add. 1 and E/CN.17/1998/3, as well as in the report of the Expert Group Meeting on Strategic Approaches to Freshwater Management held in Harare, Zimbabwe 27-30 January, 1998 (E/CN.17/1998/11). The discussions also benefitted from national presentations by the Kingdom of the Netherlands and the Russian Federation describing their efforts in achieving integrated freshwater development and management.
2. The participants noted the forthcoming Ministerial Meeting on Water Resources and Sustainable Development (Paris, France, 19-21 March, 1998) that is expected to provide an additional opportunity for further consideration of various aspects of strategic approaches to freshwater management in preparation for the sixth session of the CSD, in particular the need for improving knowledge of water resources and water users; promoting human resources and institutional capacity building; and identifying appropriate financial resources. Similarly, a contribution to the sixth session of the CSD is expected from an international forum "Global Water Policy - Cooperation in Transboundary Water Management" (Bonn, Germany, 3-5 March, 1998).
3. The outcome of the Working Group meeting is not a negotiated text, although its contents were thoroughly discussed. In accordance with the expert nature of the Working Group and the functions assigned to it, the report focuses on key issues and conclusions and suggests elements and policy options for further consideration and negotiation during the sixth session of the Commission on Sustainable Development.
II. BACKGROUND
4. Water resources are essential for satisfying basic human needs, health and food production, and the restoration and maintenance of ecosystems, as well as for social and economic development in general. Agriculture accounts for the majority of the global freshwater uses. It is imperative that water resources development, management and protection should be planned in an integrated manner, taking into account both short- and long-term needs.
5. The priority to be accorded to the social dimension of freshwater is of fundamental importance. This should be reflected in an integrated approach to freshwater in order to be coherent with objectives aimed at achieving people-centred sustainable development.
6. The objectives of sustainable development and the links among its three components - economic development, social development and environmental protection - were clearly articulated in Agenda 21 and the Rio Declaration. The specific decisions and policy recommendations concerning freshwater development, management and use in Chapter 18 of Agenda 21, and the identification of the seven key programme areas contained in that Chapter, continue to be a basis for action.
7. There is evidence of progress in improving some aspects of freshwater resources management since 1992. Marked improvements in water quality have occurred in a number of river basins and groundwater aquifers where pressures for action have been strong. However, while many lessons have been learned, overall progress has been neither sufficient nor comprehensive enough to reduce general trends of increasing water shortages, deteriorating water quality and growing stress on freshwater ecosystems. Water need not become a limiting factor for sustainable development and human welfare. A series of potential crises can be averted if vigorous action is taken now toward an integrated approach to freshwater resources development, management and use.
8. Competition for limited freshwater increasingly occurs between agriculture, urban, industrial and environmental uses. In adopting the Programme for the Further Implementation of Agenda 21, in particular its paragraph 34, the United Nations General Assembly articulated the multiple dilemmas and challenges associated with the management of freshwater. They recognized, inter alia, the urgent need to formulate and implement national policies of integrated watershed management in a fully participatory manner aimed at achieving and integrating economic, social and environmental objectives of sustainable development. In addition to agreeing to these strategic principles, the General Assembly also recognized an urgent need to strengthen international cooperation to support local and national action, in particular in the fields of environment and development, safe water supply and sanitation, food security and agricultural production, and flood and drought control through efforts in areas as information exchange, capacity building, technology transfer and financing.
9. In accordance with the Programme for the Further Implementation of Agenda 21, Governments called for a dialogue under the aegis of the Commission on Sustainable Development, beginning at its sixth session, aimed at building a consensus on the necessary actions, and in particular, on the means of implementation and on tangible results, in order to consider initiating a strategic approach for the implementation of all aspects of the sustainable use of freshwater for social and economic purposes, including, inter alia, safe drinking water and sanitation, water for irrigation, recycling, and wastewater management, and the important role freshwater plays in natural ecosystems. This intergovernmental process will be fully fruitful only if there is a proven commitment by the international community to the provision of new and additional financial resources for the goals of this initiative.
III. KEY ISSUES AND CHALLENGES
10. The process called for in the Programme for the Further Implementation of Agenda 21 should focus on fostering and supporting national and international action in those areas where goals and objectives have been defined; identification of existing gaps and emerging issues; building global consensus where further understanding is required; and promoting greater coordination in approaches by the United Nations and relevant international institutions particularly in support of national implementation policy and development.
11. Numerous gaps can be identified in the path towards integrated water management, which need to be addressed by governments with support from the international community. Areas that require further attention include, among others: awareness of the scope and function of surface and groundwater resources; the need for human resource development and participatory approaches, notably including women; the role of ecosystems in the provision of goods and services; balancing structural and non-structural approaches; explicit linkages with socio-economic development, including sound economic policies, for equitable and efficient freshwater allocation and use; improved sanitation and waste water treatment; conserving biological diversity of freshwater ecosystems; understanding hydrology and the capacity to assess the availability and variability of water resources; and the mobilization of domestic and international financial resources. Strategic and integrated actions are still needed in order to adapt to ever changing social and environmental circumstances and to address fundamental concerns for combating poverty, ensuring adequate provision of public health, food security and energy, and better to protect the environment.
12. International cooperation and action needs to effectively address the above issues building on existing consensus for the successful implementation of integrated water resources development and management.
13. The implementation of integrated water development and management strategies requires action at all levels. However, most decisions and actions related to integrated water management need to take place at the local and national level. These actions should be closely related to other areas of natural resource management, including land, forestry and mountain development. Effective integrated water resources management should incorporate river basin, catchment, watershed and ecosystem approaches.
14. There is a need to ensure that local and national management plans are in a position to bring about productive and sustainable interactions between human activities and the ecological functioning of freshwater systems. There is also a need to minimize impacts from human activities on coastal areas, estuarine and marine environments, and in mountainous areas, and to reduce potential losses from droughts and floods, erosion, desertification and natural disasters. Furthermore, pollution prevention, sanitation and the treatment of waste water need to be addressed.
15. Riparian States are encouraged to co-operate among each other on matters related to international watercourses. This important issue requires further consideration in the CSD and other relevant fora.
IV. ACTIONS AND MEANS OF IMPLEMENTATION
16. Governments are invited to intensify efforts to develop local and national integrated water resources development and management programs and policies as recommended in Agenda 21. Governments at the appropriate level should set and publish target dates for the adoption, or up-dating of local or national action programs for implementing such programs. The implementation of local or national programs should form an important part of the Local Agenda 21 approach.
17. In formulating and implementing integrated water resources management policies and programs, there is a need to take into account actions to implement relevant conventions in force, in particular Conventions on Biological Diversity, Desertification, Climate Change, Wetlands (Ramsar) and International Trade in Endangered Species (CITES). In addition, consideration should be given, as appropriate to relevant recommendations and/or programs of action emanating from a number of major international conferences and events, including the Global Programme of Action for the Sustainable Developments of Small Island Developing States, the Global Programme of Action for the Protection of the Marine Environment from Land-Based Sources of Pollution, the Mar del Plata Action Plan, the International Drinking Water Supply and Sanitation Decade, the International Conference on Water and the Environment: Development Issues for the 21st Century (Dublin, 1992); the World Summit for Social Development (Copenhagen, 1995); the fourth United Nations Conference on Women (Beijing, 1995); the HABITAT II (Istanbul, 1996); and the World Food Summit (Rome 1996). Furthermore, in formulating such policies, Governments are called upon to address the need for achieving universal access to water supply and sanitation, including through poverty eradication, taking into account, in particular chapter 18 of Agenda 21, the Global Consultation on Safe Water and Sanitation for the 1990s (New Delhi, India, 1990) and the recommendations of the 1994 Noordwijk Action Program on Drinking Water Supply and Sanitation.
18. The holding of the Expert Group Meeting on Strategic Approaches to Freshwater Management (Harare, Zimbabwe, January 27-30 1998) and its report are noted with appreciation. In formulating and implementing policies and programs, Governments are invited to consider the key recommendations of the report.
Information for decision making
19. Governments are encouraged to establish and maintain effective information and monitoring networks and further promote the exchange and dissemination of information -- including related socio- economic and environmental data, gender differentiated where appropriate -- needed for policy formulation, planning and investment decisions and operational management of freshwater resources, and encourage the harmonization of data collection at the basin/aquifer level. Public access to this information should be facilitated. This includes the need to improve the understanding of hydrology (surface and groundwater) and the function of ecosystems and to strengthen relevant information systems to better foresee and manage resource uncertainty. Such efforts on the part of developing countries, particularly the least developed countries, require support from the international community.
20. Governments are encouraged to implement and monitor national water- related indicators of progress in achieving integrated water resources management, including water quality and quantity objectives, taking into account ongoing work of the CSD on indicators of sustainable development.
21. In addition, in accordance with their policies, priorities and resources, Governments may find it useful to carry out national water quality and quantity inventories for surface and groundwater, including the identification of gaps in regard of available information.
22. Governments are invited to establish or strengthen mechanisms for consultations on drought and flood preparedness and early warning systems and mitigation plans at local and national levels. Governments are encouraged to consider the establishment of Systems, which may take the form of emergency funds where appropriate, to ensure that individuals and communities can be compensated for the damage that they suffer from such extreme events. At the international level, there is in particular a need to maintain support of these activities following the end of the International Decade on Natural Disaster Reduction (IDNDR) (1999).
23. The international community should support national efforts in the areas outlined above. The United Nations system is called upon to play a central role in the development and coordination of relevant data and information networks, strengthen regional and global monitoring systems, carry out periodic global assessments and analyses, and promote the broadest exchange and dissemination of relevant information, in particular to developing countries.
Institutions, capacity building and participation
24. Governments are urged to establish national coordination mechanisms, as already envisaged in the Mar del Plata Action Plan, providing for the involvement of all relevant parts of government and public authorities, in the formulation and implementation of integrated water resources development and management plans and policies. Such mechanisms should also provide for consultation with major groups. This involves the participation of water users and the public in planning, implementing, and evaluating water projects.
25. Governments are invited to take the necessary steps to establish legislative and regulatory frameworks, and to improve such frameworks where they exist, to facilitate integrated water resources management and strategies, including both demand and supply management, taking into account the need to improve capacity, to apply and enforce such legislative and regulatory frameworks. In this context, each Government needs to define its relevant functions and distinguish between those related to standard and regulation setting and control on the one hand, and the direct management and provision of services on the other.
26. In view of the complexity of implementing integrated water resources development and management strategies, Governments should strengthen institutional and human capacities at national and local levels. At the local level, this could be done through local Agenda 21 processes where they exist. Effective water resources management and protection requires appropriate tools for educating and training water management staff and water users at all levels, and for ensuring that women and youth have an equal access to education and training programmes.
27. Governments are encouraged to establish an enabling environment to facilitate partnerships between public and private sectors and NGO's, aiming towards improved local capacity to protect water resources, through significant outreach, educational programmes and improved public access to information. The pivotal role of women should be reflected in institutional arrangements for the development and management of water resources. In this context, there is a need to strengthen the role of women who should have an equal role with regard to water resources development and management and sharing of benefits
28. In support of national efforts in this field, the international community, in particular the organizations of the United Nations system, should strengthen capacity building programmes, taking into account the special needs of developing countries, in particular the least developed countries and the specific circumstances of SIDS, including in such areas as training, institutional development and the participation of women.
Technology transfer and research cooperation
29. Governments are encouraged to stimulate and remove impediments to research and development cooperation, together with the development of technologies for sustainable water management and use; to increase efficiency, reduce pollution and promote sustainable agriculture and food production systems. This involves the adaptation and diffusion of new and innovative techniques and technologies, both private and public, and the transfer of technologies to developing countries, including on concessional terms, as mutually agreed, taking into account the need to protect intellectual property rights. The use of local and traditional technology and knowledge should be promoted, and South-South cooperation should be encouraged.
30. Governments, industry and international organizations should promote technology transfer and research cooperation to foster sustainable agriculture practices that integrate efficient water use and prevent pollution of surface and groundwater. These technologies should include improvement of crops grown on marginal sites, erosion control practices, and the adaptation of farming systems. They should also improve water efficiency in both irrigated and rain-fed areas and improve adaptation and productivity of drought tolerant crop species. Farmer participation in farm research, irrigation projects and watershed management should be encouraged. Research results and technologies should be available to both the small and large producers.
31. In order to help increase the supplies of freshwater, research cooperation and technology transfer to developing countries are desirable in areas of desalination, brackish water treatment, wastewater treatment, desert dew catchment, the use of remote sensing techniques and other relevant modern technologies.
32. Water management provides an opportunity for technology cooperation projects involving partnerships between the public and private sector. Government are urged to promote innovative approaches.
33. CSD should call upon all relevant parties to develop and implement best practices and appropriate technologies in the area of water development and management. Codes of conduct, guidelines and other voluntary agreements can
enhance the positive role that industry and agriculture can play and should address activities of companies operating and investing outside their home countries.
34. Governments are encouraged to make the best use of national, regional and international environmentally sound technology centers.
35. Donor countries and international organizations are urged to intensify their efforts to facilitate their transfer of environmentally sound technologies, including publicly owned technology, and also to accelerate their technical assistance programmes to developing countries, aimed at facilitating the choice and acquisition of appropriate technologies and their transfer and diffusion, and to promote exchanges of know-how. The United Nations system has an important role to play as a clearing house in putting those in need of assistance in contact with those able to provide it.
Financial resources and mechanisms
36. As stated in the Programme for the Further Implementation of Agenda 21, the intergovernmental process under the aegis of the CSD on freshwater will be fully fruitful only if there is a proven commitment by the international community for the provision of new and additional financial resources for the goals of this initiative.
37. New and additional financial resources for developing countries, in particular least developed countries, will need to be mobilized for the development and management of freshwater resources if the broader aims of sustainable development are to be realized, particularly in relation to poverty eradication. Existing resources, currently allocated to the freshwater sector, should be used effectively which should help mobilize additional finance from all sources, both public and private.
38. Official Development Assistance should complement, and focus on, programmes aimed at meeting basic human needs, including freshwater development and management, structural reform, protection of ecosystems, sustainable management of resources and promoting participation and capacity building. Donors, including multilateral donor institutions, should further be ready to continue, or even reinforce, the support for programmes and projects in the water sector where they will reduce or eliminate poverty. In addition, donors should persist in trying to meet international development targets. Projects supported by donors need to be capable of becoming financially self-sustaining, once the initial investment is complete. Donors should also consider support for the freshwater sector in the light of cross-sectoral interests such as desertification and climate change.
39. The private sector represents an important new source of investment in the water sector. Local and national water management systems should therefore be designed in ways which encourage and support public/private partnerships. It is important to ensure that water management systems are organised so that they are robust and, once established, can support themselves. The introduction of enabling financial framework conditions will be of paramount importance if private sector finance is to be mobilized.
40. Governments are urged to strengthen consultative mechanisms aimed at improving donor/recipient schemes for the mobilisation of financial resources in a well-targeted and predictable manner based on local and national programmes of action with a special focus on integrated water resources management which recognises the needs of vulnerable groups and people living in poverty.
41. All costs must be covered, whether by water users or the public-sector budget, if the provision of water is to be viable. Costs recovery needs to be gradually phased in by water utilities or the public sector, taking into account the specific conditions of each country. Subsidies for specific groups, particularly people living in poverty, are required in some countries. Governments could benefit from sharing experience in this regard.
42. In the light of commitments on resources in relation to water made at the World Summit for Social Development in Copenhagen and the 4th United Nations Conference on Women in Beijing, initiatives should be undertaken to help identify and mobilize more resources - human, technical (know- how) and financial - and take into account the 20/20 initiative in accordance with national policies. Resources should be focused on local and national programmes that are consistent with the key issues. A fundamental aim must be to promote the generation of the resources needed for proper water supply, sanitation and water management systems, and their efficient and effective deployment. Governments are invited to allocate sufficient public financial resources for the provision of water supply and sanitation to meet basic human needs and for waste-water treatment.
43. Governments, when using economic instruments for guiding the allocation of water, are urged to take into account considerations of environmental requirements, efficiency, transparency and equity, taking into particular account the needs of vulnerable groups and people living in poverty.
44. International financial support will continue to be important, particularly in helping to find ways of removing constraints on the development of local and national water management systems. Existing international financial support arrangements should be reviewed to see if they can be made more effective in this task. Governments, with the support of the international community, needs to promote and conduct research and analysis to examine the economic, social and environmental values provided by ecosystems and the cost of their degradation.
45. The international community could give consideration to creating a financial mechanism to promote developing countries' efforts in the development, management, distribution and use of water resources. Such a mechanism could draw upon existing funds and be supported by existing administrative arrangements. The discussion of this proposal should include consideration of the following challenges/issues:
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