PROTECTION OF THE QUALITY AND SUPPLY OF FRESHWATER RESOURCES: APPLICATION OF INTEGRATED APPROACHES TO THE DEVELOPMENT, MANAGEMENT AND USE OF WATER RESOURCES 18.1. Freshwater resources are an essential component of the Earth’s hydrosphere and an indispensable part of all terrestrial ecosystems. The freshwater environment is characterized by the hydrological cycle, including floods and droughts, which in some regions have become more extreme and dramatic in their consequences. Global climate change and atmospheric pollution could also have an impact on freshwater resources and their availability and, through sea-level rise, threaten low-lying coastal areas and small island ecosystems. 18.2. Water is needed in all aspects of life. The general objective is to make certain that adequate supplies of water of good quality are maintained for the entire population of this planet, while preserving the hydrological, biological and chemical functions of ecosystems, adapting human activities within the capacity limits of nature and combating vectors of water-related diseases. Innovative technologies, including the improvement of indigenous technologies, are needed to fully utilize limited water resources and to safeguard those resources against pollution. 18.3. The widespread scarcity, gradual destruction and aggravated pollution of freshwater resources in many world regions, along with the progressive encroachment of incompatible activities, demand integrated water resources planning and management. Such integration must cover all types of interrelated freshwater bodies, including both surface water and groundwater, and duly consider water quantity and quality aspects. The multisectoral nature of water resources development in the context of socio-economic development must be recognized, as well as the multi-interest utilization of water resources for water supply and sanitation, agriculture, industry, urban development, hydropower generation, inland fisheries, transportation, recreation, low and flat lands management and other activities. Rational water utilization schemes for the development of surface and underground water-supply sources and other potential sources have to be supported by concurrent water conservation and wastage minimization measures. Priority, however, must be accorded to flood prevention and control measures, as well as sedimentation control, where required. 18.4. Transboundary water resources and their use are of great importance to riparian States. In this connection, cooperation among those States may be desirable in conformity with existing agreements and/or other relevant arrangements, taking into account the interests of all riparian States concerned. 18.5. The following programme areas are proposed for the freshwater sector:Â 18.6. The extent to which water resources development contributes to economic productivity and social well-being is not usually appreciated, although all social and economic activities rely heavily on the supply and quality of freshwater. As populations and economic activities grow, many countries are rapidly reaching conditions of water scarcity or facing limits to economic development. Water demands are increasing rapidly, with 70-80 per cent required for irrigation, less than 20 per cent for industry and a mere 6 per cent for domestic consumption. The holistic management of freshwater as a finite and vulnerable resource, and the integration of sectoral water plans and programmes within the framework of national economic and social policy, are of paramount importance for action in the 1990s and beyond. The fragmentation of responsibilities for water resources development among sectoral agencies is proving, however, to be an even greater impediment to promoting integrated water management than had been anticipated. Effective implementation and coordination mechanisms are required. 18.7. The overall objective is to satisfy the freshwater needs of all countries for their sustainable development. 18.8. Integrated water resources management is based on the perception of water as an integral part of the ecosystem, a natural resource and a social and economic good, whose quantity and quality determine the nature of its utilization. To this end, water resources have to be protected, taking into account the functioning of aquatic ecosystems and the perenniality of the resource, in order to satisfy and reconcile needs for water in human activities. In developing and using water resources, priority has to be given to the satisfaction of basic needs and the safeguarding of ecosystems. Beyond these requirements, however, water users should be charged appropriately. 18.9. Integrated water resources management, including the integration of land- and water-related aspects, should be carried out at the level of the catchment basin or sub-basin. Four principal objectives should be pursued, as follows: 18.10. In the case of transboundary water resources, there is a need for riparian States to formulate water resources strategies, prepare water resources action programmes and consider, where appropriate, the harmonization of those strategies and action programmes. 18.11. All States, according to their capacity and available resources, and through bilateral or multilateral cooperation, including the United Nations and other relevant organizations as appropriate, could set the following targets: It is understood that the fulfilment of the targets quantified in (i) and (ii) above will depend upon new and additional financial resources that will be made available to developing countries in accordance with the relevant provisions of General Assembly resolution 44/228. 18.12. All States, according to their capacity and available resources, and through bilateral or multilateral cooperation, including the United Nations and other relevant organizations as appropriate, could implement the following activities to improve integrated water resources management: areas related to water resources management; Dissemination of information, including operational guidelines, and promotion of education for water users, including the consideration by the United Nations of a World Water Day. (a) Financing and cost evaluation 18.13. The Conference secretariat has estimated the average total annual cost (1993-2000) of implementing the activities of this programme to be about $115 million from the international community on grant or concessional terms. These are indicative and order-of-magnitude estimates only and have not been reviewed by Governments. Actual costs and financial terms, including any that are non-concessional, will depend upon, inter alia, the specific strategies and programmes Governments decide upon for implementation. (b) Scientific and technological means 18.14. The development of interactive databases, forecasting methods and economic planning models appropriate to the task of managing water resources in an efficient and sustainable manner will require the application of new techniques such as geographical information systems and expert systems to gather, assimilate, analyse and display multisectoral information and to optimize decision-making. In addition, the development of new and alternative sources of water-supply and low-cost water technologies will require innovative applied research. This will involve the transfer, adaptation and diffusion of new techniques and technology among developing countries, as well as the development of endogenous capacity, for the purpose of being able to deal with the added dimension of integrating engineering, economic, environmental and social aspects of water resources management and predicting the effects in terms of human impact. 18.15. Pursuant to the recognition of water as a social and economic good, the various available options for charging water users (including domestic, urban, industrial and agricultural water-user groups) have to be further evaluated and field-tested. Further development is required for economic instruments that take into account opportunity costs and environmental externalities. Field studies on the willingness to pay should be conducted in rural and urban situations. 18.16. Water resources development and management should be planned in an integrated manner, taking into account long-term planning needs as well as those with narrower horizons, that is to say, they should incorporate environmental, economic and social considerations based on the principle of sustainability; include the requirements of all users as well as those relating to the prevention and mitigation of water-related hazards; and constitute an integral part of the socio-economic development planning process. A prerequisite for the sustainable management of water as a scarce vulnerable resource is the obligation to acknowledge in all planning and development its full costs. Planning considerations should reflect benefits investment, environmental protection and operation costs, as well as the opportunity costs reflecting the most valuable alternative use of water. Actual charging need not necessarily burden all beneficiaries with the consequences of those considerations. Charging mechanisms should, however, reflect as far as possible both the true cost of water when used as an economic good and the ability of the communities to pay. 18.17. The role of water as a social, economic and life-sustaining good should be reflected in demand management mechanisms and implemented through water conservation and reuse, resource assessment and financial instruments. 18.18. The setting afresh of priorities for private and public investment strategies should take into account (a) maximum utilization of existing projects, through maintenance, rehabilitation and optimal operation; (b) new or alternative clean technologies; and (c) environmentally and socially benign hydropower. (c) Human resources development 18.19. The delegation of water resources management to the lowest appropriate level necessitates educating and training water management staff at all levels and ensuring that women participate equally in the education and training programmes. Particular emphasis has to be placed on the introduction of public participatory techniques, including enhancement of the role of women, youth, indigenous people and local communities. Skills related to various water management functions have to be developed by municipal government and water authorities, as well as in the private sector, local/national non-governmental organizations, cooperatives, corporations and other water-user groups. Education of the public regarding the importance of water and its proper management is also needed. 18.20. To implement these principles, communities need to have adequate capacities. Those who establish the framework for water development and management at any level, whether international, national or local, need to ensure that the means exist to build those capacities. The means will vary from case to case. They usually include: (d) Capacity-building 18.21. Institutional capacity for implementing integrated water management should be reviewed and developed when there is a clear demand. Existing administrative structures will often be quite capable of achieving local water resources management, but the need may arise for new institutions based upon the perspective, for example, of river catchment areas, district development councils and local community committees. Although water is managed at various levels in the socio-political system, demand-driven management requires the development of water-related institutions at appropriate levels, taking into account the need for integration with land-use management. 18.22. In creating the enabling environment for lowest-appropriate-level management, the role of Government includes mobilization of financial and human resources, legislation, standard-setting and other regulatory functions, monitoring and assessment of the use of water and land resources, and creating of opportunities for public participation. International agencies and donors have an important role to play in providing support to developing countries in creating the required enabling environment for integrated water resources management. This should include, as appropriate, donor support to local levels in developing countries, including community-based institutions, non-governmental organizations and women’s groups. 18.23. Water resources assessment, including the identification of potential sources of freshwater supply, comprises the continuing determination of sources, extent, dependability and quality of water resources and of the human activities that affect those resources. Such assessment constitutes the practical basis for their sustainable management and a prerequisite for evaluation of the possibilities for their development. There is, however, growing concern that at a time when more precise and reliable information is needed about water resources, hydrologic services and related bodies are less able than before to provide this information, especially information on groundwater and water quality. Major impediments are the lack of financial resources for water resources assessment, the fragmented nature of hydrologic services and the insufficient numbers of qualified staff. At the same time, the advancing technology for data capture and management is increasingly difficult to access for developing countries. Establishment of national databases is, however, vital to water resources assessment and to mitigation of the effects of floods, droughts, desertification and pollution. 18.24. Based upon the Mar del Plata Action Plan, this programme area has been extended into the 1990s and beyond with the overall objective of ensuring the assessment and forecasting of the quantity and quality of water resources, in order to estimate the total quantity of water resources available and their future supply potential, to determine their current quality status, to predict possible conflicts between supply and demand and to provide a scientific database for rational water resources utilization. 18.25. Five specific objectives have been set accordingly, as follows: 18.26. All States, according to their capacity and available resources, and through bilateral or multilateral cooperation, including cooperation with the United Nations and other relevant organizations, as appropriate, could set the following targets: 18.27. All States, according to their capacity and available resources, and through bilateral or multilateral cooperation, including the United Nations and other relevant organizations as appropriate, could undertake the following activities: Means of implementation (a) Financing and cost evaluation 18.28. The Conference secretariat has estimated the everage total annual cost (1993-2000) of implementing the activities of this programme to be about $355 million, including about $145 million from the international community on grant or concessional terms. These are indicative and order-of-magnitude estimates only and have not been reviewed by Governments. Actual costs and financial terms, including any that are non-concessional will depend upon, inter alia, the specific strategies and programmes Governments decide upon for implementation. (b) Scientific and technological means 18.29. Important research needs include (a) development of global hydrologic models in support of analysis of climate change impact and of macroscale water resources assessment; (b) closing of the gap between terrestrial hydrology and ecology at different scales, including the critical water-related processes behind loss of vegetation and land degradation and its restoration; and (c) study of the key processes in water-quality genesis, closing the gap between hydrologic flows and biogeochemical processes. The research models should build upon hydrologic balance studies and also include the consumptive use of water. This approach should also, when appropriate, be applied at the catchment level. 18.30. Water resources assessment necessitates the strengthening of existing systems for technology transfer, adaptation and diffusion, and the development of new technology for use under field conditions, as well as the development of endogenous capacity. Prior to inaugurating the above activities, it is necessary to prepare catalogues of the water resources information held by government services, the private sector, educational institutes, consultants, local water-use organizations and others. (c) Human resource development 18.31. Water resources assessment requires the establishment and maintenance of a body of well-trained and motivated staff sufficient in number to undertake the above activities. Education and training programmes designed to ensure an adequate supply of these trained personnel should be established or strengthened at the local, national, subregional or regional level. In addition, the provision of attractive terms of employment and career paths for professional and technical staff should be encouraged. Human resource needs should be monitored periodically, including all levels of employment. Plans have to be established to meet those needs through education and training opportunities and international programmes of courses and conferences. 18.32. Because well-trained people are particularly important to water resources assessment and hydrologic forecasting, personnel matters should receive special attention in this area. The aim should be to attract and retain personnel to work on water resources assessment who are sufficient in number and adequate in their level of education to ensure the effective implementation of the activities that are planned. Education may be called for at both the national and the international level, with adequate terms of employment being a national responsibility. 18.33. Recommended actions include: (d) Capacity-building 18.34. The conduct of water resources assessment on the basis of operational national hydrometric networks requires an enabling environment at all levels. The following national support action is necessary for enhanced national capacities: 18.35. Freshwater is a unitary resource. Long-term development of global freshwater requires holistic management of resources and a recognition of the interconnectedness of the elements related to freshwater and freshwater quality. There are few regions of the world that are still exempt from problems of loss of potential sources of freshwater supply, degraded water quality and pollution of surface and groundwater sources. Major problems affecting the water quality of rivers and lakes arise, in variable order of importance according to different situations, from inadequately treated domestic sewage, inadequate controls on the discharges of industrial waste waters, loss and destruction of catchment areas, ill-considered siting of industrial plants, deforestation, uncontrolled shifting cultivation and poor agricultural practices. This gives rise to the leaching of nutrients and pesticides. Aquatic ecosystems are disturbed and living freshwater resources are threatened. Under certain circumstances, aquatic ecosystems are also affected by agricultural water resource development projects such as dams, river diversions, water installations and irrigation schemes. Erosion, sedimentation, deforestation and desertification have led to increased land degradation, and the creation of reservoirs has, in some cases, resulted in adverse effects on ecosystems. Many of these problems have arisen from a development model that is environmentally destructive and from a lack of public awareness and education about surface and groundwater resource protection. Ecological and human health effects are the measurable consequences, although the means to monitor them are inadequate or non-existent in many countries. There is a widespread lack of perception of the linkages between the development, management, use and treatment of water resources and aquatic ecosystems. A preventive approach, where appropriate, is crucial to the avoiding of costly subsequent measures to rehabilitate, treat and develop new water supplies. 18.36. The complex interconnectedness of freshwater systems demands that freshwater management be holistic (taking a catchment management approach) and based on a balanced consideration of the needs of people and the environment. The Mar del Plata Action Plan has already recognized the intrinsic linkage between water resource development projects and their significant physical, chemical, biological, health and socio-economic repercussions. The overall environmental health objective was set as follows: “to evaluate the consequences which the various users of water have on the environment, to support measures aimed at controlling water-related diseases, and to protect ecosystems”. 1/ 18.37. The extent and severity of contamination of unsaturated zones and aquifers have long been underestimated owing to the relative inaccessibility of aquifers and the lack of reliable information on aquifer systems. The protection of groundwater is therefore an essential element of water resource management. 18.38. Three objectives will have to be pursued concurrently to integrate water-quality elements into water resource management: 18.39. All States, according to their capacity and available resources, through bilateral or multilateral cooperation, including the United Nations and other relevant organizations as appropriate, could set the following targets: 18.40. All States, according to their capacity and available resources, and through bilateral or multilateral cooperation, including United Nations and other relevant organizations as appropriate, could implement the following activities: (a) Financing and cost evaluation 18.41. The Conference secretariat has estimated the average total cost (1993-2000) of implementing the activities of this programme to be about $1 billion, including about $340 million from the international community on grant or concessional terms. These are indicative and order-of-magnitude estimates only and have not been reviewed by Governments. Actual costs and financial terms, including any that are non-concessional, will depend upon, inter alia, the specific strategies and programmes Governments decide upon for implementation. (b) Scientific and technological means 18.42. States should undertake cooperative research projects to develop solutions to technical problems that are appropriate for the conditions in each watershed or country. States should consider strengthening and developing national research centres linked through networks and supported by regional water research institutes. The North-South twinning of research centres and field studies by international water research institutions should be actively promoted. It is important that a minimum percentage of funds for water resource development projects is allocated to research and development, particularly in externally funded projects. 18.43. Monitoring and assessment of complex aquatic systems often require multidisciplinary studies involving several institutions and scientists in a joint programme. International water-quality programmes, such as GEMS/WATER, should be oriented towards the water-quality of developing countries. User-friendly software and Geographical Information Systems (GIS) and Global Resource Information Database (GRID) methods should be developed for the handling, analysis and interpretation of monitoring data and for the preparation of management strategies. (c) Human resource development 18.44. Innovative approaches should be adopted for professional and managerial staff training in order to cope with changing needs and challenges. Flexibility and adaptability regarding emerging water pollution issues should be developed. Training activities should be undertaken periodically at all levels within the organizations responsible for water-quality management and innovative teaching techniques adopted for specific aspects of water-quality monitoring and control, including development of training skills, in-service training, problem-solving workshops and refresher training courses. 18.45. Suitable approaches include the strengthening and improvement of the human resource capabilities of local Governments in managing water protection, treatment and use, particularly in urban areas, and the establishment of national and regional technical and engineering courses on the subjects of water-quality protection and control at existing schools and education/training courses on water resources protection and conservation for laboratory and field technicians, women and other water-user groups. (d) Capacity-building 18.46. The effective protection of water resources and ecosystems from pollution requires considerable upgrading of most countries’ present capacities. Water-quality management programmes require a certain minimum infrastructure and staff to identify and implement technical solutions and to enforce regulatory action. One of the key problems today and for the future is the sustained operation and maintenance of these facilities. In order not to allow resources gained from previous investments to deteriorate further, immediate action is required in a number of areas. 18.47. Safe water-supplies and environmental sanitation are vital for protecting the environment, improving health and alleviating poverty. Safe water is also crucial to many traditional and cultural activities. An estimated 80 per cent of all diseases and over one third of deaths in developing countries are caused by the consumption of contaminated water, and on average as much as one tenth of each person’s productive time is sacrificed to water-related diseases. Concerted efforts during the 1980s brought water and sanitation services to hundreds of millions of the world’s poorest people. The most outstanding of these efforts was the launching in 1981 of the International Drinking Water Supply and Sanitation Decade, which resulted from the Mar del Plata Action Plan adopted by the United Nations Water Conference in 1977. The commonly agreed premise was that “all peoples, whatever their stage of development and their social and economic conditions, have the right to have access to drinking water in quantities and of a quality equal to their basic needs”. 2/ The target of the Decade was to provide safe drinking-water and sanitation to underserved urban and rural areas by 1990, but even the unprecedented progress achieved during the Decade was not enough. One in three people in the developing world still lacks these two most basic requirements for health and dignity. It is also recognized that human excreta and sewage are important causes of the deterioration of water-quality in developing countries, and the introduction of available technologies, including appropriate technologies, and the construction of sewage treatment facilities could bring significant improvement. 18.48. The New Delhi Statement (adopted at the Global Consultation on Safe Water and Sanitation for the 1990s, which was held in New Delhi from 10 to 14 September 1990) formalized the need to provide, on a sustainable basis, access to safe water in sufficient quantities and proper sanitation for all, emphasizing the “some for all rather than more for some” approach. Four guiding principles provide for the programme objectives: 18.49. Past experience has shown that specific targets should be set by each individual country. At the World Summit for Children, in September 1990, heads of State or Government called for both universal access to water-supply and sanitation and the eradication of guinea worm disease by 1995. Even for the more realistic target of achieving full coverage in water-supply by 2025, it is estimated that annual investments must reach double the current levels. One realistic strategy to meet present and future needs, therefore, is to develop lower-cost but adequate services that can be implemented and sustained at the community level. 18.50. All States, according to their capacity and available resources, and through bilateral or multilateral cooperation, including the United Nations and other relevant organizations as appropriate, could implement the following activities: (a) Financing and cost evaluation 18.51. The Conference secretariat has estimated the average total annual cost (1993-2000) of implementing the activities of this programme to be about $20 billion, including about $7.4 billion from the international community on grant or concessional terms. These are indicative and order-of-magnitude estimates only and have not been reviewed by Governments. Actual costs and financial terms, including any that are non-concessional, will depend upon, inter alia, the specific strategies and programmes Governments decide upon for implementation. (b) Scientific and technological means 18.52. To ensure the feasibility, acceptability and sustainability of planned water-supply services, adopted technologies should be responsive to the needs and constraints imposed by the conditions of the community concerned. Thus, design criteria will involve technical, health, social, economic, provincial, institutional and environmental factors that determine the characteristics, magnitude and cost of the planned system. Relevant international support programmes should address the developing countries concerning, inter alia: (c) Human resource development 18.53. To effectively plan and manage water-supply and sanitation at the national, provincial, district and community level, and to utilize funds most effectively, trained professional and technical staff must be developed within each country in sufficient numbers. To do this, countries must establish manpower development plans, taking into consideration present requirements and planned developments. Subsequently, the development and performance of country-level training institutions should be enhanced so that they can play a pivotal role in capacity-building. It is also important that countries provide adequate training for women in the sustainable maintenance of equipment, water resources management and environmental sanitation. (d) Capacity-building 18.54. The implementation of water-supply and sanitation programmes is a national responsibility. To varying degrees, responsibility for the implementation of projects and the operating of systems should be delegated to all administrative levels down to the community and individual served. This also means that national authorities, together with the agencies and bodies of the United Nations system and other external support agencies providing support to national programmes, should develop mechanisms and procedures to collaborate at all levels. This is particularly important if full advantage is to be taken of community-based approaches and self-reliance as tools for sustainability. This will entail a high degree of community participation, involving women, in the conception, planning, decision-making, implementation and evaluation connected with projects for domestic water-supply and sanitation. 18.55. Overall national capacity-building at all administrative levels, involving institutional development, coordination, human resources, community participation, health and hygiene education and literacy, has to be developed according to its fundamental connection both with any efforts to improve health and socio-economic development through water-supply and sanitation and with their impact on the human environment. Capacity-building should therefore be one of the underlying keys in implementation strategies. Institutional capacity-building should be considered to have an importance equal to that of the sector supplies and equipment component so that funds can be directed to both. This can be undertaken at the planning or programme/project formulation stage, accompanied by a clear definition of objectives and targets. In this regard, technical cooperation among developing countries owing to their available wealth of information and experience and the need to avoid “reinventing the wheel”, is crucial. Such a course has proved cost-effective in many country projects already. 18.56. Early in the next century, more than half of the world’s population will be living in urban areas. By the year 2025, that proportion will have risen to 60 per
