Le Huu Ti
Economic Affairs Officer Water Resources Section
Senior Water Management Officer
FAO Regional Office for Asia and the Pacific
Building on the enthusiasm for better management of water resources in the region generated by the World Water Vision development process, a project of cooperation between the Food and Agriculture Organization of the United Nations (FAO) and the United Nations Economic and Social Commission for Asia and the Pacific (UNESCAP) was initiated in 1999 with a view to promoting the development of national water visions in Southeast Asia. The joint initiative was conceived of as an anchoring component of a learning process, the aim of which was integrated water resources management in the region. It was planned that the joint project would be a cornerstone of the continuing national water vision building process and would thus help to establish a firm foundation for a regional water vision development programme. In the initial phase of the joint effort, four pilot countries, namely Malaysia, the Philippines, Thailand and Viet Nam, were selected to capitalize on the achievements of the Global Water Partnership for the World Water Vision process. On completion of the initial phase of this joint effort in 2000, the results were disseminated to all the participating countries as well as other countries in the region, posted on the Internet1 and published by the FAO Regional Office for Asia and the Pacific2 for wider dissemination.
In the second phase of the project, further joint efforts were made to assist three least-developed countries (LDCs) in Southeast Asia, namely Cambodia, Lao PDR and the Union of Myanmar, to formulate programmes to transform their national water visions to action.
“The Vision Exercise's ultimate purpose is to generate global awareness of the water crisis that women and men face and the possible solutions in addressing it. This awareness will lead to the development of new policies, legislative and institutional frameworks. The world's freshwater resources will be managed in an integrated manner at all levels, from the individual to the international, to serve the interests of humankind and planet earth—effectively, efficiently and equitably.” (Source: W.J. Cosgrove and F.R. Rijsberman. 1999. World Water Vision: Making Water Everybody's Business, page 1)
Keeping the above purpose in mind, considerable national efforts have been made to manage water resources sustainably over the past few decades, particularly since the adoption of the Mar del Plata Action Plan by the United Nations in 1977. The National Water Vision to Action programme formulation process introduced a new methodology aimed at developing a more “strategic approach” to the management of the world's water resources. Within this process and in line with the above purpose of the joint technical cooperation project between FAO and UNESCAP, national expert teams of the three selected countries in Southeast Asia carried out the following tasks:
The vision process was viewed from the perspective of “a pragmatic programme or framework of action” to respond to the different development needs (short-term, and thus urgent, as well as long-term needs) and to ensure sustainable management of the country's water resources. Discussions focused on the national formulation processes and related experiences.
From the experience of the World Water Vision process and subsequent exercises, which involved different levels of consultation and different components, such as subsector visions, regional visions and thematic and regional vision syntheses, it was expected that the key components of the corresponding processes of formulating a national water vision would be identified. As the importance of the subsectors may be different from one country to another, this section was expected to examine how the important subsectors were identified and integrated into the process of formulating a national water vision. In order to ensure active participation of stakeholders it was intended that the relative importance of the components would be viewed from the perspective of the key stakeholders.
In view of the importance of the development and management of a national shared water vision, it was expected that a pragmatic framework for such a shared vision would be formulated in order to ensure the feasibility of implementation and management. It was concluded that water resources management is increasingly practiced worldwide at river basin level, meeting both society's economic and social needs and the needs of nature. Discussions therefore focused on the relative importance of the framework of water resources management at the river basin level, within the water vision formulation process.
A two-day round-table discussion of national experts was organized in each of the three selected countries by the respective supporting national institutions and the national expert teams, with the participation of FAO and UNESCAP officers, to discuss the findings for finalization of the country reports.
This synthesis was prepared as part of the second phase of the project, which has assisted in developing stronger and closer regional cooperation, and in synchronizing regional efforts for better IWRM and more effective contributions to economic and social development in the region. Within this regional context, the synthesis describes how the processes of formulating national water visions were carried out, discusses the findings and recommendations derived from these efforts, and the possible strategies for further strengthening related regional efforts.
The second phase of the project was devoted to assisting the three LDCs in this subregion, namely Cambodia, Lao PDR and the Union of Myanmar. It should be pointed out that a number of studies had been carried out in Cambodia and Lao PDR in previous years in the context of formulating a regional water vision for Southeast Asia, and technical assistance had already been given by the Asian Development Bank and the Global Water Partnership. These studies (together with previous studies undertaken by the relevant authorities in Myanmar) were used as a basis for formulating a national water vision to action programme for each of the three countries. The findings and experience derived from these previous studies were also adopted to improve the way in which the strategic approach was applied to the implementation of the second phase of the project.
Following the experience of the first phase of this project, and taking into account the limited absorption capacity of the LDCs, the project put greater emphasis on the implementation modalities that would ensure continuity of the efforts and sustainability of the momentum generated by the country case studies. Such modalities would need to build on the central role of the national agency responsible for the formulation of national water resources policies or plans in each of the selected countries. In the implementation of the country case studies, the project received considerable assistance from various national experts and the support of senior officials of the three national governments concerned, especially from the Ministry of Agriculture and Irrigation of Myanmar. The focal points of the country studies are listed below:
The project required substantive contributions from UNESCAP and FAO, not only to coordinate contributions and review the country case studies, but also to provide advisory services, including the organization of seminars and the preparation of technical papers on international experiences and approaches adopted in the formulation of national water visions for integrated water resources management and for agriculture and rural development. This synthesis is also part of the substantive contribution to the project made by the technical staff of UNESCAP and FAO.
Following the review of the draft reports on the country case studies by the UNESCAP and FAO officers concerned, a two-day round-table workshop of national experts was organized in each of the countries by the respective supporting national institutions and experts according to the following schedule:
In all these round-table workshops, FAO and UNESCAP officers presented their findings on recent studies related to the formulation of a national water vision to action programme and took part in subsequent detailed discussions.
After the completion of the round-table workshops, the country study reports were revised jointly by the national experts and UNESCAP and FAO officers to incorporate the findings and recommendations of the round-table discussions. In the chapters following this synthesis the main findings and recommendations of these country reports are summarized and examined in the context of a regional cooperation project, taking into account any developments that have occurred since the round-table discussions. The country case study reports and other relevant reports are listed in the bibliography at the end of this synthesis.
The three countries, Cambodia, Lao PDR and Myanmar, provide an interesting picture of LDCs with different political and socio-economic conditions within the region. As can be seen from Table 1.1, extracted from the Report on the Asian Development Outlook 2004 of the Asian Development Bank (ADB), Cambodia and the Lao PDR recorded similar economic growth rates between 2001 and 2004. Over the next few years, the Lao economy is expected to grow faster than that of Cambodia because of the increase in foreign direct investment, particularly in the hydropower subsector, e.g. the Nam Theun 2 project3. With respect to the Union of Myanmar, the economy recorded higher rates of growth for the same period than those of the other two countries. However, according to ADB:
Table 1.1 GDP growth of LDCs in Southeast Asia (in percent)
Source: Asian Development Outlook 2004, Asian Development Bank, Oxford University Press, 2004.
“[i]n view of the very limited reform agenda apparent at this time, growth prospects of Myanmar in the medium term are limited. International sanctions look likely to continue curbing exports and foreign direct investment. Insufficient investment in social areas and the slowdown in fixed investment suggest less than satisfactory reductions in poverty. The longer-term prospects for sustained growth are good, but only if the Government moves toward policies that reduce the macroeconomic imbalances and structural distortions.”
As agriculture accounts for the main share of the gross domestic product (GDP) and represents the most important sector in terms of the use of water resources, the solid growth of this primary sector is expected to make an important contribution to poverty reduction.
The “strategic approach” referred to in Section 1.2 emphasized the formulation and implementation of a national water vision to action programme, especially for the priority components (sectors or areas) of integrated water resources management in each of the three countries.
a. National water vision statements
- Access for all to safe, adequate and affordable drinking water, hygiene and sanitation.
- Freedom for all from the threat of loss of life and livelihood as a result of floods and droughts.
- Sufficient water where it is needed, to provide for food security, people's livelihoods, and economic activity.
- A water environment that is unpolluted and supports healthy fisheries and aquatic ecosystems.
- The coordinated development and management of water and water resources for the health, wealth and happiness of the people.
- A national programme of poverty alleviation and the socio-economic development objective of liberating the country from the status of least-developed country.
Sustainability of water resources by the year 2030 to ensure sufficient water quantity of acceptable quality to meet the needs of the people in terms of health, food security, economy and the environment.
The process of formulating the national water visions varied among the three countries. For example, the Cambodian national water vision was derived from the policy formulation process and thus was much more detailed than that of Lao PDR or Myanmar. However, in the process of developing an overall framework for action on IWRM for the three countries, a consolidated and integrated vision was adopted to guide the formulation of targets in each country. Therefore, the frameworks for action developed in the three countries are more or less similar in terms of the linkage between the national water visions and the various programmes of action. However, the details of the various subsectors were different as the priorities in each country depended on the potential and opportunities available to it. Further details can be found in the country study reports.
b. Fundamental features of the national water vision to action programmes
All representatives of line ministries and related agencies recognized the importance of the national water vision as a guide for integrated water resources management in all sector activities and at all levels of water resources management in the country. It was also recognized that enhancing awareness and acceptance of the national water vision would facilitate coordination of activities among all relevant sectors and at all management levels.
All representatives of line ministries and related agencies agreed that the Ministry of Water Resources and Meteorology (MOWRAM) should be the key agency responsible for the implementation and realization of the national water vision. In this connection, they identified various aspects and key activities required to create an effective framework for turning the vision into reality. These activities include those related to the water law, policies and regulations as well as the mobilization of resources and the participation of the key stakeholders in the management and development of the country's water resources. The participants recognized the importance of successful implementation of the national water vision in different sectors and for different priorities of the national development process. Of these, the participants focused on four themes suggested by MOWRAM: poverty reduction and rural development; economic development and nature conservation; pilot basin management for the Prek Thnot river basin; and the establishment of a framework to turn the national water vision into reality. The participants identified indicators and targets as well as the expected role of MOWRAM in facilitating efforts to achieve the proposed targets. These initial efforts identified a number of challenges to MOWRAM as leader of the water sector, especially with respect to the mobilization and allocation of financial resources to the water sector. Responses to these challenges would therefore need to be included in the strategy and programme of work of MOWRAM. The participants therefore expected the support of UNESCAP and FAO, as well as other international organizations, to continue. These findings suggest the need for a systematic and coordinated approach to the introduction of integrated water resources management in Cambodia. This systematic approach is centred on the key role of MOWRAM. This is the most important and fundamental difference when compared to the previous findings related to the implementation of the national water vision. Efforts should be made to identify the core activities that MOWRAM would undertake to build on the confidence entrusted to it by the representatives of the line ministries and related agencies.
In the above context, efforts should be made to introduce a dual approach to realizing the national water vision:
- Overall approach: MOWRAM is to undertake the programmes related to the framework of turning the national water vision into reality and to the implementation of the pilot river basin management project.
- Sectoral approach: Related subsector agencies are to undertake priority activities related to the programmes on poverty mitigation and rural development, and economic development and nature conservation.
During the past three years, important progress in the improvement of water resources management in the Lao PDR has been made, especially following the establishment of the Water Resources Coordination Committee. The most important achievements were related to the coordination of activities and the increase of interest and attention by the government and the donor community in the management of water resources. Among these achievements was the development of the national water vision and the related change in perception of key water resources stakeholders on the need for better coordination. These changes enabled the round-table workshop on turning a national water vision into action to introduce a more centralized approach to coordination in the realization of the national water vision. All participants recognized the importance of the coordinating role of the Water Resources Coordination Committee in the promotion of integrated water resources management at the national and river-basin levels. This change in perception made it possible to introduce a two-pronged approach in the programme of action for the realization of the national water vision:
- Overall approach: The Water Resources Coordination Committee is to undertake the programmes related to the framework of turning the national water vision into reality and the implementation of the pilot river basin management project.
- Sectoral approach: Related subsectoral agencies are to undertake priority activities related to the programmes on poverty mitigation and rural development, and economic development and nature conservation.
To achieve the priority objectives of the national water vision, the working-group members recommended the following actions:
- A national-level water authority should be instituted first to adopt the policies regarding the control, conservation, development, use and protection of the country's water resources.
- All existing laws, rules and regulations should be reviewed with a view to enacting a unified water resources law so as to promote a more effective legal framework for coordination and management of water resources.
- Resources for the development and management of water resources for the socio-economic development of the country should be mobilized.
- An IWRM plan should be formulated to guide the coordination of development activities.
- Effective measures should be taken on the basis of community participation through educational programmes and programmes designed to help meet the basic needs of the communities.
- The specific responsibilities of the focal agencies, especially in developing national water quality standards and control, should be identified.
c. Programme to turn the national water visions into reality
The results of the national consultations conducted for the country studies revealed that the consultations had reinforced the acceptance of the national water visions, thus making them “shared visions”. All key agencies have thus recognized and appreciated the need to establish concrete programmes of action for consistent and fruitful implementation of the national water visions. These key agencies have thus expressed their interest in and commitment to implementing the respective national water visions. In this context, the establishment of the frameworks for turning the national water visions into reality was studied and discussed during the preparatory seminars and national round-table workshops using the strategic planning process. In this strategic planning process, the analysis focused on the need for the effective integration of relevant efforts and activities into the national development process and a sustainable programme of action. The planning analysis also included the implications of the participatory approach (shared vision), the need for brief institutional analyses (key agencies and their respective missions), key approaches to planning and management (integrated river-basin approach) and good governance principles (performance indicators and monitoring). It should be pointed out that from the strategic planning analysis mentioned above, the opportunities identified by the participants in the various consultative workshops differed, depending on the actual conditions and stage of development of each country, including ongoing efforts and existing policies. As such, no attempt was made to bring these opportunities together under a single framework.
The key elements of the frameworks to turn the national water visions into reality are summarized in the following sections.
To turn the national water vision into reality, the roundtable workshop identified the following three priority objectives:
- To strengthen the mechanism for coordination of and stakeholder participation in water resources management and development.
- To strengthen through human resources development for the water sector.
- To improve financial resources mobilization and allocation.
The workshop also proposed an overall strategy of promoting the adoption of the national water vision and establishing a mechanism for turning the vision into reality, including the mobilization of financial resources.
Strategy to strengthen the mechanism for coordination of and participation in integrated water resources management
- Indicators and targets: To reduce the number of conflicts related to water use and the number of violations of the water law by half within five to ten years.
- Priority actions:
- To establish a coordination committee, consisting of MOWRAM and other line ministries and agencies.
- To develop laws and regulations and strengthen their enforcement.
Strategy to strengthen human resources development for the water sector
- Indicators and targets: To double the number of experts and technical staff in the water sector within five to ten years.
- Priority action: To establish a scholarship programme for short- and long-term training within the country and abroad.
Strategy to improve financial mobilization and allocation
- Indicators and targets: To increase the total investment in the water sector by 30 to 40 percent within the next five to ten years.
- Priority action:
To collect and compile information on total investment in the water sector during the past decade.
To develop strategies for better mobilization of financial resources.
To establish a clear mechanism to implement the strategy immediately.
Possible mechanisms for coordination
Existing mechanisms include MOWRAM, Cambodia National Mekong Committee or river basin organizations. The strength of the existing agencies is that the laws and regulations are in place at all line agencies. However, the weaknesses of the existing system are the lack of effective law enforcement, lack of effective and popular mechanisms and means of communication and information dissemination, and lack of financial resources.
Possible roles of MOWRAM
- To prepare the enactment of the water law and other regulations.
- To maintain a database and disseminate information and data to the line agencies.
- To monitor the implementation process.
- To organize the preparation of the master plans for all main river basins in the country.
Suggested priority activities of MOWRAM
- To collect, compile and disseminate information and data to the line agencies.
- To monitor the implementation process of turning the national water vision into reality.
- To organize the master plan for the main pilot river basins in the country.
At the round-table workshop, all participants from the line agencies expected the Water Resources Coordination Committee Secretariat to play the main role in the realization of the national water vision. The participants also recognized the importance of such a role in the implementation of fundamental and cross-cutting activities, such as training and capacity building, and enhancement of public awareness and public participation.
Strategic roles of Water Resources Coordination Committee
These fundamental activities are necessary in view of the following priority issues identified by the working group:
- Protection of water resources and efficient use of water;
- establishment of regulations, effective enforcement, and participation of stakeholders; and
- establishment of funds for water resources development and promotion of international cooperation.
Priority indicators and targets
In order to monitor the implementation of coordinated activities designed to help achieve the priority objectives, the working group identified the following indicators and targets:
- Regarding sustainable development, it was considered necessary to develop indicators to reflect the overall quality of watersheds in the long run. In the short term, the working group recognized that the water quality should be a priority indicator for monitoring to ensure that the current good conditions were maintained.
- With respect to the need to have a clear water resources policy, it was recommended to monitor the number of conflicts in water utilization or violations of the law and to reduce the number of conflicts or violations by half in five years.
- Concerning the mobilization and utilization of resources, the working group proposed to inventory the current allocation and investment of funds in the water resources sector and recommended the preparation of a strategy to increase annual financial resources and to improve allocation among the subsectors. It was thought that this would ensure effective support to the national socio-economic development process and sustainable development. It was recommended that resource mobilization be doubled in five years.
Core mechanisms of monitoring
For proper monitoring and reporting, the working group suggested the use of the existing mechanisms as follows:
- The Science, Technology and Environment Agency and Water Resources Coordination Committee should monitor and report on water quality and Water Resources Coordination Committee to develop indicators for the watershed quality.
- Water Resources Coordination Committee should monitor and establish a programme for reduction of the number of violations of the law or conflicts in water utilization.
- Either Water Resources Coordination Committee or a new mechanism should monitor financial resources allocation and utilization for the water sector.
Priority activities of Water Resources Coordination Committee
In support of the above programme, the working group recommended the following priority activities to be undertaken by Water Resources Coordination Committee:
- Water Resources Coordination Committee to implement the plan of monitoring changes in water resources, including the new indicators of watershed quality, and report the results to the government.
- Water Resources Coordination Committee to compile the number of conflicts and violations and make reports and suggestions for improvement.
- Water Resources Coordination Committee to compile the resources allocation to water sectors and to consult all subsectors to prepare the strategy or plan to increase resource mobilization and utilization.
Among the priority activities, it was recommended that attention be paid to increasing financial resources with contributions from the government, donors and the people, and to ensuring that adequate amounts are allocated to all subsectors.
Priority programmes for coordination
In reviewing existing key programmes related to the priority objectives, the working group identified the following obstacles in the implementation of these programmes:
- Sustainable development: Lack of good coordination among the subsectors concerned, including between Water Resources Coordination Committee, Science, Technology and Environment Agency, Ministry of Agriculture and Forestry and Ministry of Public Health; lack of sufficient number of capable technical staff; and weak administration system.
- Clear water policy: Water utilization regulations are not clear and not complete; and responsibility-sharing in monitoring the subsector is not clear.
- Fund raising and utilization: Insufficient budgetary resources and inadequate contribution from water users.
The working group discussed intensively the role of the Water Resources Coordination Committee in the creation of an effective framework for the realization of the national water vision and recommended the following:
- The Water Resources Coordination Committee should assist in promoting the action plan.
- The Water Resources Coordination Committee should be a neutral coordinator among subsectors.
- The Water Resources Coordination Committee should be a neutral coordinator for cooperation with international agencies, including funding agencies.
- The Water Resources Coordination Committee should assist in the coordination of activities concerned with the allocation of budgetary resources to satisfy the real needs of people.
Similarly, the working group also identified the priority activities of the Water Resources Coordination Committee and water subsectors as follows:
- The Water Resources Coordination Committee should establish a system for monitoring and assessing water resources development.
- The Water Resources Coordination Committee should establish strict regulations for water utilization.
- The Water Resources Coordination Committee should establish a system for monitoring and data collection and exchange.
In this connection, the working group also recommended that all water-related agencies and stakeholders should:
- Improve and strengthen human resources development in the water sector;
- improve coordination and corresponding implementation procedures;
- promote public participation in planning and implementation;
- enhance public awareness on the effects of water utilization; and
- increase cooperation with international organizations for more technical and financial assistance.
Priority objectives, issues and strategic approaches
- Priority objectives
In recognizing the importance of the national water vision being accepted by all key stakeholders and the creation of an effective mechanism to promote, implement and monitor priority activities to turn the national water vision into reality, the working group recommended the following priority objectives:
- To establish a national water authority.
- To provide safe and adequate water to the public as the foundation for water resources management.
- To ensure adequate availability of water for development.
- Key conditions
- Key conditions in the establishment of an effective national water authority would include the commitment of the government and acceptance by the agencies concerned.
- Key conditions in the provision of safe and adequate water to the public would include reliable accessibility and convenience for the communities, and effective water quality control.
- Important factors to ensure adequate availability of water for development would include clear action programmes of the concerned agencies, and the promotion and enforcement of water policies and action programmes for sustainable development.
- Priority issues
- National Water Policy.
- Initiative of the government.
- Coordination of agencies concerned.
- Water quality control.
- Public participation.
- Financial support.
- Economic development.
- Integrated activities among the agencies.
- Water policy and action programmes for sustainability.
- Possible courses of action
- By the Ministry of Agriculture and Irrigation and the Ministry of Electric Power
- Provision of a frame for a national water authority.
- Establishment of a national agency for water resources management.
- By the Ministry of Finance and Revenue
- Support for water resources projects.
- Support for operation and maintenance.
- By the Ministry of Planning and Economic Development
- Long-term planning for economic development.
- Development of natural resources.
- Possible strategic approaches
- Promotion of the national water vision.
- Establishment of a national water commission.
Framework for a strategic plan
- Adoption of the national water vision by the government.
- Establishment of a national water commission.
- Promotion of water resources investment.
- Improvement of community living standards.
- The Department of Agriculture Planning and the Ministry of Agriculture and Irrigation to coordinate the adoption of a national water vision.
- Ministry of Agriculture and Irrigation to formulate and coordinate the establishment of a national water vision.
- All the water-related departments and agencies need to carry out planning, prioritization and implementation of water resources projects.
- Information, education and communication through capacity building in cooperation with institutions.
- Time frame
- For Target 1: The national water vision should be adopted within one year.
- For Target 2: The national water commission should be established soon after adoption of the national water vision.
- For Target 3: Water resources investment projects should be planned with a short term of five years and a long term of ten years.
- For Target 4: The rural poverty line will be improved in parallel with the implementation of short- and long-term plans.
- Possible courses of action
- Coordination of concerned agencies; submission of the proposed national water vision to the competent authority; and collection of data and information on resources.
- Effective utilization of safe water; public awareness on education of water-related diseases; and exploitation of new water resources.
- Short- and long-term master plan(s); clear action programmes of concerned agencies; and sustainable financial support.
- Recommended immediate action
- Interim authority should be held by the Ministry of Agriculture and Irrigation.
- Interim authority should proceed to promote adoption of the national water vision.
- Interim authority to assign functions and duties to various departments and agencies.
Possible mechanism of the coordination body and priority functions
The working group also reviewed the functions of key agencies to be coordinated by the proposed national water commission and recommended that all functions of the key agencies should be executed under the guidance of the proposed national water commission. The priority activities are as follows:
- Establishing a national-level authority for water resources management to develop national policies, master plans, legal and market instruments and guidelines;
- ensuring long-term supply and demand planning and effective use of water resources including groundwater resources, in a complementary manner and with water quality control; and
- promoting better coordination among water users and the agencies dealing with water resources development, sustainable water supply, capacity building for human resources and environment impact assessment.
d. Key components and other highlights of the national consultation process
Apart from focusing on the implementation of the national water visions as discussed above, most of the countries included other key components for national consultation, depending on the number of national experts participating in the national workshops. The list of these components is given below.
Further details can be found in the case study reports.
e. Important features in the water resources for poverty reduction programmes
The majority of the population of Cambodia is poor and about 80 percent lives in rural areas. The current five-year national social and economic development plan aims to serve this poor majority and water resources management will play an important supporting role. On the basis of the general issues related to integrated water resources management identified in the preceding sections, the working group conducted three working sessions to identify priority objectives and related programmes of action for poverty alleviation and rural development in the countries, including identification of key actors, indicators of achievements and possible roles and priority activities of MOWRAM. Further details of the discussion are presented in the following sections.
Priority objectives and related programmes of action
Three priority objectives of water resources development for rural development and poverty reduction were selected as follows:
- Increase the incomes of the poor.
- Provide clean water and sanitation to the rural area.
- Create non-farm employment.
Regarding the first priority objective, the following programmes of action are required:
- Construct or rehabilitate an irrigation system with capacity to supply water round the year (agriculture and domestic supply):
- Carry out surveys and investigations to develop projects with high economic efficiency for the government or donors to invest in.
- Ensure the participation of farmers in the operation and maintenance of the system.
- Train farmers on diversified farming systems with high economic returns incorporating vegetables, aquaculture and livestock:
- Organize a training seminar to introduce all concerned institutions to this programme (Ministry of Agriculture, Forestry and Fisheries, FAO).
- Provide seeds and extension services (Ministry of Agriculture, Forestry and Fisheries, NGOs and donors).
- Establish an agriculture credit system for rural areas (low or no interest system) (NGOs, international organizations).
- Water user communities and agriculture communities:
- Allocate water for use among the localities and individuals (MOWRAM and Ministry of Rural Development).
- Provide guidance to local authorities on water use through training seminars and legislation (Ministry of Agriculture, Forestry and Fisheries, MOWRAM).
To support efforts to increase poor farmers' incomes, the following key agencies were identified together with their priority activities:
- MOWRAM: Survey and investigate total areas for irrigation; provide training and disseminate information on good irrigation practices and the operation and maintenance of an irrigation system; provide guidance and training on water utilization technology; disseminate information on water use law to different institutions.
- Ministry of Agriculture, Forestry and Fisheries: Determine areas of cultivation suitable for different crops; disseminate advanced technology; disseminate techniques on aquaculture in ponds and paddy fields; disseminate cultivation practices and water management practices; disseminate and provide guidance on modern technology; and provide training and guidance on the cultivation of specific crops as widely as possible; provide guidance on water management practices for different crops.
- Ministry of Rural Development: Improve health and sanitation in rural areas; provide information on markets; provide guidance on water use and hygiene; monitor clean water quality.
Indicators, targets and mechanisms
- Increase income: From US$300/year to US$600/year in five years. Mechanisms include MOWRAM, Ministry of Rural Development reporting to the government. Issues and action: Capacity and skills and budget are required; planning and identifying areas for priority action. Strategy: Implementation and expansion of target areas.
- Provide clean water and sanitation: Increase from 20 to 50 percent in ten years. MOWRAM and Ministry of Rural Development are required to be accountable to the government, including the efficient use of budgetary resources and meeting the set standards. Other priority programmes may include improving the existing water supply system and creating new water supply systems.
- Create new employment opportunities: To increase non-farm activities by 60 percent in five years. Promotion could be carried out by Ministry of Agriculture, Forestry and Fisheries, MOWRAM and Ministry of Rural Development with necessary technical assistance and financial resources for the identification and planning of the priority areas for implementation.
Suggested improvement in existing programmes
- Provide and exchange information.
- Determine clearly the role of each ministry.
- Initiate collaboration between related ministries.
Three priority objectives of water resources development for rural development and poverty reduction were selected:
- Water resources development for agriculture and rural development (plantation, livestock and fisheries, etc.).
- Water resources development to meet basic needs, especially water supply for drinking and domestic uses.
- Water resources development for quality of life, including electrification: development of micro and small hydropower projects.
In order to create a conducive environment to achieve the above objectives at the national level, the working group suggested the following:
- Identification of development areas and focus areas (who, what and where, how) to create success cases for subsequent replication;
- participation of all stakeholders in all stages of development, including construction, and operation and maintenance;
- organization of water user associations and aquaculture groups; and
- promotion of conservation and management.
The working group also identified the following most common obstacles to achieving the three above priority objectives:
- Usually, the water sources or suitable sites are far from settlement areas.
- Construction cost is usually high.
- For water supply, water is usually of poor quality and often polluted and rural areas often lack testing equipment.
- Lack of financial resources.
- Lack of technical capacity for operation and maintenance.
Core agencies and key actors
The working group identified the following agencies to be the key actors in efforts to achieve the three priority objectives: (1) Ministry of Agriculture, Forestry and Fisheries, (2) Ministry of Public Health, and (3) Ministry of Industry and Handicrafts. The following priority actions were recommended:
- Formulation of clearer strategies for all ministries concerned for the short, medium and long terms;
- detailed planning and project investigations — human resources, funds, equipment, infrastructure facilities and time are required); and
- detailed planning with participation of local people — this would lead to (a) a feasibility study; (b) survey and design; (c) construction; and (d) operation and maintenance.
Indicators and targets
In order to help monitor progress in the implementation of priority activities, the working group identified the some key indicators and proposed targets, based on previous studies.
For agricultural development, indicators will be based on expected increase in incomes in the targeted areas. For the pilot area in the northern part of the country, GDP per capita is to increase from the current level of US$240 to US$500/yr by 2010. For this purpose, it is expected that the Ministry of Agriculture and Forestry, provincial authorities and the Ministry of Trade will play the key roles.
Specific activities to be carried out within the time frame up to 2010 would include the following:
- Rehabilitation of existing irrigation schemes to improve efficiency;
- expansion of irrigated area in appropriate locations;
- diversification of agriculture;
- improvement in agriculture extension work; and
- promotion of plantations, livestock and fisheries.
For the supply of drinking and domestic water, the number of people with access to water will increase from the current level of 52 to 60 percent in 2005 and 80 percent in 2020. To achieve these targets, the Ministry of Public Health and the Clean Water Authority will need to undertake the following priority activities:
- Planning and data collection;
- assessment of needs;
- design and construction; and
- the transfer of management to local authorities.
With the development of the region's small hydropower potential, it was expected that 20 percent of the households in the north would be provided with electricity from hydropower by 2010. It was proposed that the key agencies, the Ministry of Industry and Handicrafts, Water Resources Coordination Committee and Science, Technology and Environment Agency, undertake the following priority activities:
- Planning and data collection;
- water demand assessment;
- design and construction; and
- transfer management to local authorities.
Major priority programmes
The working group also identified major existing programmes that may have complementary roles in ensuring that the three objectives are achieved. These programmes are:
- Water for agriculture and rural development — it was considered that the rural development committees and various departments of Ministry of Agriculture and Forestry might not have functioned according to their mandates. Furthermore, problems also resulted from the lack of coordination and counterpart contribution.
- Water supply to meet basic needs — the Ministry of Public Health (Coordinating Committee for Clean Water) and Rural Development Committees are responsible for the main programmes on water supply. Improvement in communications was recommended.
- With respect to small hydropower development, the Ministry of Industry and Handicrafts is currently responsible, but it was considered that the lack of coordination with the Rural Development Committees might have hampered progress in the development of these resources for the welfare of the people.
In promoting coordination for agriculture and rural development, the working group recommended that the following key functions be played by Water Resources Coordination Committee:
- Coordinating with all above agencies to achieve the set objectives;
- seeking assistance from domestic and international resources (FAO, UNESCAP); and
- providing water resources data and information to all subsectors concerned.
In connection with these coordinating functions, the following priority activities should be undertaken by Water Resources Coordination Committee:
- Organize another meeting to present the findings of the workshop;
- draft a proposal for assistance;
- establish a team to deal with data collection; and
- promote and disseminate water resources regulations widely and at the grassroots level.
Agriculture, including livestock, fishery and forestry, is the most important sector of the national economy. Agriculture and rural poverty are closely linked. Development of the agriculture sector is the key to poverty reduction, and water is the most fundamental requirement for agricultural development.
Members in the working group discussed many topics and basic concepts reflecting the importance of water resources management for poverty reduction. After discussion and identification, working-group members selected the following priority objectives for water resources management for poverty reduction:
- To improve the quality of life of the people by developing and using the country's productive resources and social investment.
- To provide water resources for the rural population in sufficient quantity and appropriate quality for sustainable development.
- To protect the water environment so as to conserve water resources (surface and ground water) and natural flow regimes, biodiversity and cultural heritage, and to mitigate water-related hazards.
With respect to the first objectives, the following issues were identified as priority issues requiring special attention: Inadequate investment, inadequate technical know-how and inadequate infrastructure.
Regarding provision of safe and adequate water, the priority issues include: Inadequate water supply infrastructure, lack of public awareness, and lack of a water quality surveillance and monitoring system.
Concerning the protection of water resources, the working group proposed the following priority issues: Lack of public awareness, improper water resources management and a lack of effective participation of stakeholders.
The principal actors responsible for each of the above-mentioned issues would include:
- Department of Agriculture Planning, Irrigation Department, Myanmar Agriculture Services.
- Department of Health, Ministry of Industry, General Administration Department.
- Irrigation Department, Department for the Progress of Border Areas and National Races and Development Affairs.
- Irrigation Department, Water Resources Utilization Department, General Administration Department.
- Department of Health, Department of Health Planning, Department of Development Affairs; General Administration Department, Ministry of Industry.
- Irrigation Department, Water Resources Utilization Department, General Administration Department, Ministry for the Progress of Border Areas and National Races, and Development Affairs.
- Irrigation Department, Water Resources Utilization Department.
- Ministry of Industry, General Administration Department, Yangon City Development Committee, Mandalay City Development Committee, Department of Development Affairs.
- Irrigation Department, Water Resources Utilization Department, Department of the Progress of Border Areas and National Races, Department of Development Affairs.
From the nine principal actors mentioned above, the working group identified the Irrigation Department, the Water Resources Utilization Department and the Department of Development Affairs as the three key agencies in the efforts to achieve the priority objectives.
Possible strategic approaches
Possible strategic approaches recommended under water resources management for poverty reduction include the following:
- Extension of irrigated land;
- proper operation and maintenance of existing irrigation facilities;
- improved technology (tillage, seeds, mechanization etc.);
- improvement of the economy of rural areas;
- facilitation and formulation of related laws and regulations;
- community participation and involvement; and
- adoption of an integrated approach.
Framework of a strategic plan
The working group identified the three top indicators of success as income generation, water consumption, and water conservation including water quality.
Regarding income generation, it was proposed that attempts be made to reach 1 million Kyat per household by 2005 through various economic measures, including an increase of the irrigated area from 4.5 million acres in 2000 to 5.89 million in 2005 and an increase in yield from 66 baskets/acre to 100 baskets/acre in 2005. The responsible agencies are the Ministry of Agriculture and Irrigation, Ministry of Home Affairs, Ministry of Labour, Ministry of Industry.
In addition, promotion of model villages with safe and sufficient water supply will be carried out in order to reach 65 000 villages by 2030. Water quality monitoring and surveillance systems will be established to cover all townships from the current level of 200 townships. The responsible agencies are the Ministry of Health, Ministry of Agriculture and Irrigation, Ministry of Home Affairs.
Concerning water conservation, the working group proposed the establishment of a national water authority by 2005 to unify all laws and regulations related to water resources utilization and protection and to improve law enforcement. The responsible agencies are the Ministry of Agriculture and Irrigation, Ministry of Home Affairs, Department of Development Affairs, Ministry of Industry.
Priority action programme
- Establishment of model villages;
- measures to increase yield and quality; and
- establishment of a water quality monitoring and surveillance programme.
Achievements in the implementation of the pilot project can be considered at two levels, national and regional.
In all three selected countries, the government agencies invited to take part in the pilot project were recognized through their respective internal processes by all water-related bodies as key agencies in the formulation and implementation of a national water vision. In Cambodia, the Ministry of Water Resources and Meteorology and in Lao PDR, the Water Resources Coordinating Committee Secretariat — both project counterparts — were recognized as the lead agencies for the implementation of national water visions of those countries. In the Union of Myanmar, the process of identifying the focal point required more time as there had not been such a coordinating body previously. The study team, headed by the Director General of the Irrigation Department with participation of many other agencies, was established to undertake the work. This resulted in a major input by the participating agencies.
It must be pointed out, however, that the success in the implementation of the pilot project was also due in large measure to the results of previous efforts made by the Southeast Asia Technical Advisory Committee of the Global Water Partnership in Cambodia and Lao PDR and to a certain extent in the Union of Myanmar.
Through the partnership of FAO and UNESCAP in the implementation of the second phase of this joint regional project, exchange of information on ongoing activities as well as on existing networks has greatly increased. The driving forces behind important achievements of this regional project can be identified as the ongoing efforts of FAO in modernizing the irrigation sector and of UNESCAP in promoting strategic planning and management in the water resources sector. These activities have also provided opportunities for FAO and UNESCAP to enhance the impact of their ongoing activities. Where possible, project activities were coordinated with the activities of other regional organizations, as follows:
The above achievements of the partnership of FAO and UNESCAP in collaboration with other regional institutions provided not only important evidence of the benefits of cooperation, but also strategic elements in the development of a regional strategy and programmes for long-term collaboration in the sustainable management of water resources in the region.
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2 Le Huu Ti and Thierry Facon. 2001. From Vision to Action: A Synthesis of Experiences in Southeast Asia. The FAO-ESCAP Pilot Project on National Water Visions. RAP Publication 2001/06, Bangkok.
3 According to the ADB, the Electricity Generating Authority of Thailand (EGAT) has agreed to buy electricity from the Nam Theun 2 plant over a period of 25 years.