IWRM best practices in the 4-Ps Pilot Basin - towards Integrated River Basin Management

i KINGDOM OF CAMBODIA Nation Religion King IWRM best practices in the 4-Ps Pilot Basin - towards Integrated River Basin Management contributed to International Conference on WATERSHED MANAGEMENT: "From Local Watershed Management to Integrated River Basin Management at National and Transboundary Levels", 9-11 March 2011, Chiang Mai, Thailand, Convened by the Mekong River Commission By Watt Botkosal (H.E. Mr.) Deputy Secretary General, Cambodia National Mekong Committee CAMBODIA NATIONAL MEKONG COMMITTEE Contents List of Abbreviations...ii Abstract...ii 1. Introduction... 1 2. Legal Framework for IWRM and River Basin Management Aspects... 2 3. Lessons Learnt and Experiences... 3 5. Conclusion... 6 6. Recommendations for the Future... 7 References... 7

ii List of Abbreviations ADB BDP BCCDM CamboWP CNMC GWP IWRM MDGs MOWRAM NGOs RBOs RGC UNCED : Asian Development Bank : Basin Development Plan : Basin Coordinating Committee for Development and Management : Cambodia Water Partnership : Cambodia National Mekong Committee : Global Water Partnership : Integrated Water Resources Management : Millennium Development Goals : Ministry of Water Resources and Meteorology : Non-Governmental Organizations : River Basin Organizations : Royal Government of Cambodia : United Nations Conference on Environment and Development Abstract The 4-Ps Basin is located in two provinces, Kratie and Mondulkiri, in the northeastern part of Cambodia. Pilot activities were initiated by the Cambodia Royal Government to implement the IWRM concepts in Cambodia, with financial support of Global Water Partnership (GWP) and Asian Development Bank (ADB). With a good understanding of Integrated Water Resources Management (IWRM) and with clear supporting government policies, strategies and legislations, the IWRM process was implemented. It established a strong knowledge and good communication among watersheds of the 4-Ps Basin, and gained experiences and lessons learnt on how the 4-Ps Basin shall be managed and developed. The IWRM process created a good coordination and widely participatory process among stakeholders from different sectors and geographical locations (upstream and downstream). IWRM best practices were introduced with significant results and outcomes, forming a supportive political will in the local basin, and an approach to promote local knowledge and capacity building for sustainable water resources management and development. Integrated river basin management was initiated around a proposed IWRM-based development roadmap and recommendations on investment that very much support the socio-economic development, environment protection and poverty reduction in the 4-Ps Basin. At this stage, keys to success have been 1) involvement of key institutional stakeholders, such as the two provinces and various national line agencies; 2) an active dialogue between stakeholders with confidence and willingness to collaborate; and 3) a holistic (IWRM-based, multi-sector) perspective. It is important to seek a mutual adaptation between the (integrated) basin-level development and the (sector-wise) national and province-level public investment planning.

1 1. Introduction The Pilot 4-Ps Basin was determined by the Royal Government of Cambodia, initiated to implement the IWRM concepts in Cambodia as the first pilot basin during 2007-2010 with financial support of GWP and ADB. The 4- Ps Basin is located in two provinces (Kratie and Mondulkri) in the Northeastern part of Cambodia. It is formed by four tributaries (preks) and their separate watersheds on the left (or eastern) bank of the Mekong. The basin area is 12,500 km2 and the population is around 143,000 persons. The 4-Ps Basin is the least developed area in the country. Most people are subsistence farmers depending principally on natural resources such as agriculture, often conducted on a subsistence basis, timbers and nontimber products and fisheries. The average rice yield ranges from 1.4 to 1.9 tons per ha that shows low food productivity, and the area is affected by floods and drought. Newcomers in the area are unfamiliar with sustainable agricultural practices under local conditions and add to the risk of environmental degradation. 4-Ps Basin Location in Cambodia The poverty rate is among the highest especially among the ethnic minority groups. The water-related infrastructure is incomplete and often ill designed, built during the Pol Pot period and concentrating mainly on the river branches of the 4-Ps Basin around and downstream of national road number 7. Until now there is no comprehensive planning for sustainable development and use of the basin's resources. Recent forest concessions, economic land concessions and mining concessions pose a new threat to sustainable development of the basin especially to ethnic minority groups due to social disadvantage. Application of IWRM is known with countries commitment in the World since 1992 (Dublin). IWRM is defined by Global Water Partnership (GWP) in 2000 as a process to be applied for sustainable development. Existing Governmental Policies, Strategies and Legislations such as Law on Water Resources Management, Rectangular Strategy enable the IWRM process in this pilot basin. An IWRM-based development will support improved livelihoods and risk exposure, covering flood management, water supply and sanitation, irrigation for agriculture development, and small scale hydro-power development. It will support the sustainable development generating benefits to local economies and minimize the negative environmental impacts in the basin. The 4-Ps Basin applied a participatory approach that plays as a central role in the development of the basin development planning process. Apart from significant achievements in their own right, the work has demonstrated the benefits of political will; basin-level management, inter-sector coordination, and a functional public participation, feeding valuable local knowledge into the planning process and IWRM based development Roadmap.

2 2. Legal Framework for IWRM and River Basin Management Aspects Integrated Water Resources Management (IWRM) is a systematic process for the sustainable development, allocation, and monitoring of water resources. The concept and principles of IWRM were articulated at the International Conference on Water and Environment held in Dublin in 1992 and in Chapter 18 of Agenda 21, a consensus document from the United Nations Conference on Environment and Development (UNCED), held in Rio also of 1992. IWRM is a cross-sectoral holistic approach to water management, in response to the growing competing demands for finite freshwater supplies. It is an approach that aims to ensure the coordinated development of water, land and related resources to optimize economic and social welfare without compromising the sustainability of environmental systems (Global Water Partnership, 2000). Policy makers, analysts, international organizations and governments have sought consensus on principles to guide the setting of priorities, policy making and the elaboration of specific initiatives in IWRM. Key principles include: Water should be treated as an economic, social, and environmental good. Water policies should focus on the management of water as a whole and not just on the provision of water. Governments should facilitate and enable the sustainable development of water resources by the provision of integrated water policies and regulatory frameworks. Water resources should be managed at the lowest appropriate level. Women should be recognised as central to the provision, management and safeguarding of water. The Royal Government of Cambodia (RGC) has adopted IWRM as a means to sustainable development and the achievement of the Millennium Development Goals (MDGs) as well as the Cambodian MDGs. This holistic approach will directly support the implementation of Cambodia Government Rectangular Strategy putting into practice, laws and regulation in natural resources development and management with full participation of local communities and direct stakeholders. With a good understanding of IWRM concepts and with clear support by government policies, strategies and legislation, the IWRM process was clearly introduced and implemented in Pilot Basin. The Law on Water Resources Management in the Kingdom of Cambodia states: Article 1: The purpose of this Law is to foster the effective and sustainable management of the water resources of the Kingdom of Cambodia to attain socio-economic development and the welfare of the people. This Law shall determine: - The rights and obligations of water users; - the fundamental principles of water resources management; and - the participation of water users associations in the sustainable development of water resources. Article 2: Water resources shall be developed and managed following an integrated water resource management approach. An IWRM approach shall consider: - All aspects of water resources; - linkages between the water resources and other aspects of the natural environment, considering all demands for effective and sustainable water utilization for human and environmental purposes. The National Water Resources Policy (2004) integrates all aspects on water resources management: - Agricultural development; - water resources development irrigation for increasing productivity; - fisheries development - natural capture and aquaculture; - hydropower development; - navigation; - watershed management; - tourism and recreation; - water supply and sanitation; and - flood management and mitigation.

3 The watershed or river basin approach is one of the key principles of the National Water Policy and the Law on Water Resources Management for IWRM application in the country. From the institutional aspect, the Royal Government of Cambodia established Cambodia National Mekong Committee (CNMC) with capacity as a national coordinating agency, working with international partners in addition to its mandate within the Mekong River Commission Framework since 1995. This effort is to promote the IWRM process and its implementation in the country. In 2006, CNMC became the host institution of Cambodia Water Partnership (CamboWP) as a network for IWRM in Cambodia, liaising with agencies, institutions, businesses, social entities, professional associations, scientists, NGOs, and water users relating to water sector and related management areas in the country. CamboWP collaborates with other South East Asian Water Partnerships and with GWP, who initiated this first pilot project for IWRM implementation. 3. Lessons Learnt and Experiences The 4-Ps Basin established a strong knowledge and good communication among its watersheds and gained experiences and lessons learnt on how the 4-Ps Basin shall be managed and developed. The management aspect is based on the natural geographical lane of 4-Ps Basin and its hydrological unit-preks. It brought exisitng Governmental policies and strategies to deal with management and development of water and related resources, which can be enhanced with IWRM and basin-level aspects, and strengthened the inter-sector integration. Also, incentives and supportive financial instruments are needed, as well as continued awareness and capacity-building, to provide for simple and effective implementation and enforcement, not to speak of public participation. Some key challenges were identified from the Pilot Basin but can relate to the entire country: Establishment of a national IWRM-based governance framework for water and related resources, consistent with the Water Law, aligned with the Government Rectangular Strategy Phase 2; effective and sustainable coordination between national and sub-national line agencies and other stakeholders for water management and development; strong commitment for cooperation between different water related sectors to discuss on common issues for water management and development; strong commitment for IWRM promotion and implementation of agencies related to water management and development by overcoming their fragmented responsibilities and overcome and change the traditional single sector management approach to integrated or multi-sector management approach; proper mechanisms with full participatory approach for monitoring and evaluating the degree of enforcement of policies and strategies as well as the Water Law; continued upgrading of existing management instruments towards a more holistic (cross-sector and inter-agency) perspective; and mobilizing financial resources for IWRM investment at national and local level for water and related sectors. The IWRM process created a good coordination and widely participatory process among stakeholders from different sectors and geographical locations (upstream and downstream). The involvement of key institutional stakeholders of the two provinces and various national line agencies was important. They agreed to formulate a local river basin organization and management. The proposed 4-Ps Basin Coordinating Committee for Development and Management (BCCDM) is considered by the Government as a good starting point to promote IWRM-based management of water and related resources in the country basin. This Committee would engage and include local stakeholders involved in the process of consultation, dialogues and forum and in administrative work. The 4-Ps Basin was studied on its natural resources and development potential integrating all sector aspects based on IWRM principles and set its development roadmap. The IWRM-based development roadmap is basic for investment programmes and projects formulation in the context of a development framework for 4-Ps Basin medium and long term investment plan. The roadmap was approved by BCCDM and coordinated by the National Coordination Team. The IWRM application in river basin management is to promote full participation of stakeholders that were indentified during consultations including key representatives of communities, governmental agencies, NGOs, and provincial/district administrative representatives. The 4-Ps Basin institutional framework has a strong political will and provides support to the IWRM process at the local basin level, because the two provincial authorities and other agencies concerned work together for participation and decision making in the development planning cycle. They set up a clear, shared development vision and objectives and development roadmap and investment plan shared by the two provinces. This is a national champion for the steps towards IWRM-based investment in the country.

4 Beneficial and sustainable resource governance in the basin can form the basis for access to water for safe and sustainable use for domestic consumption, agricultural production, environmental protection and electricity generation. This requires 1) A river basin management organization capable of assuring good governance of water and related resources of the 4Ps river basin for their sustainable social and economic development; 2) a network of shared knowledge on the 4Ps' natural and human resources, their use and management for the benefit of the people and the country; 3) a capacity of local communities to cope with natural calamities such as flood and droughts as well as climate changes; and 4. a river basin management context. IWRM best practices for the 4-Ps Basin created an active dialogue between stakeholders with confidence and willingness to collaborate. Effective basin-level IWRM implementation can serve as a local platform for national policy implementation, and a link to people involved in or depending on management of water and related natural resources. This can take place without overlaps of responsibilities, given a functional coordination among the management levels. Hereby, basin-level management can support sustainable socioeconomic development and environmental protection. It is one of the ways to support the national policy on decentralization and de-concentration, as well as the effective enforcement of the Water Law and its aim of good water governance. The 4-Ps Basin Coordinating Committee for Development and Management (BCCDM) has been established as an IWRM-based committee, headed intermittently by the two provincial governors, assembling different stakeholders, and providing a framework for IWRM promotion and implementation at the local level. This framework reflects strong political will and support to the IWRM process at the basin level, because the two provincial authorities and other agencies concerned are working together for participation and decision making in the development planning. The clear and shared development vision and objectives were formulated together. In the 4-Ps Basin, the following aspects were found to be important determinants of successful IWRM-based development planning: Political will. At the provincial governmental level, clear and tangible (as reflected by the national legal framework, institutional arrangements, and allocation of budgets for IWRM implementation). The IWRM process would be sustained over time, beyond IWRM-based planned programs/projects/activities that are coordinated by BCCD. The BCCD will enhance how stakeholders can be involved in the planning and development process as well as in the decision-making process. Knowledge. The local knowledge shall be encouraged and applied within the process of IWRM, even new scientific knowledge has to be fully incorporated in the process, because of important local experiences and lessons learnt can be adapted together. The new knowledge is to be adapted by all levels i.e. decision and management level. Community involvement. The community is the basic factor for all management processes of natural resources in 4-Ps Basin. Local communities utilize, protect and manage the natural resources by themselves, and their involvement will be encouraged and promoted to any investment project and program in the 4-Ps Basin. The existing 4-Ps Basin Functional Water Partnership in Kratie Province that was developed in 2007 by GWP as recognized by Kratie Provincial Authority, has to be strengthened, and a similar body in Mondulkiri has to be developed. Effective partnership. The communities within each Prek are formed by multi-stakeholders to be Prek Community Council, representatives of watersheds-based communities. The whole 4-Ps Community Councils form the 4-Ps Basin Functional Water Partnership. Its mandate is to promote IWRM as holistic or ecosystem approach in the Preks, to build strong networks of partners, and to facilitate the coordination of initiatives by different communities/ stakeholders in the Preks. The partnership is a key element of IWRM. It makes more effective IWRM in terms of cooperation among different stakeholders and at the grass-root level, building strong participatory approach, integrated relationship for water and other related resources management and development and planning. The findings for effective partnerships discussed were: (1) Stakeholders shared views by setting up a common vision and long term development objectives for 4-Ps Basin; (2) Stakeholders encouraged and agreed to apply IWRM as a useful tool for their adoptive management, considering the local knowledge as basic practices, with mutual benefits to all; (3) Commitment of all including participation and provision of inputs and decision making-based participatory approach; (4) Agreed Modality for building a strong participatory approach within 4-Ps Basin starts from A to Z. An IWRM-based development roadmap and investment plan allows stakeholders to come together to share views

5 regarding different aspects of a problem, identify issues to that problem and find better options for common solution. IWRM-based development roadmap. The Water Management Plan is the 4-Ps Basin s roadmap for 5 years as part of 4-Ps Basin Development Initiatives, for suitable management of the national water resources, based on a wide array of participation and collaboration of all stakeholders, setting different sectors aspects from different sector planners as facilitated by BCCDM. The following indications of effective partnerships were observed: 1) Stakeholders shared views by setting up a common vision and long term development objectives for the basin; 2) stakeholders encouraged and agreed to apply IWRM as a useful tool for their adoptive management, considering the local knowledge as a starting point, and aiming at mutual benefits to all; 3) commitment from all to provision of inputs and to a participatory approach to decision-making; and 4) an agreed approach to development roadmap formulation, allowing all stakeholders to come together to share views regarding different aspects of a problem, to identify issues related to that problem, and to find better options. The 4-Ps Basin Committee can be envisaged in the National Water Policy and National Law on Water Resources Management as a supplementary management level. National experience is not yet available. For the future, IWRM implementation realized at the 4-Ps Basin should establish the RBO with tasks including for example: Networking between institutional actors in the basin (two provinces and national center), formulation of priorities, and regular updating of these priorities, in response to new challenges, new opportunities, and new knowledge. The priorities might be described in a small river basin development strategy, promotion of related development activities, and institutional support to such activities, serving as a focal point for donor- and NGO-supported development activities in the basin, as well as related liaison with the private sector, supporting exchange of knowledge and lessons learnt, and initiating coordination and interfacing where needed, and serving as a focal point for exchange of knowledge and lessons learnt at the national level and with other RBOs including Mekong River Commission. Integrated river basin management was initiated around a proposed IWRM-based development roadmap and recommendations on investment that very much support the socio-economic development, environment protection and poverty reduction in the 4-Ps Basin. The IWRM-based Development Roadmap set a vision for the 4Ps basin and basin development goals supported by 8 medium development programmes. The Vision of the Basin is 'a healthy river basin with integrated sustainable development plans implemented jointly by the people and the government primarily for the benefit of the 4Ps people'. There are three Basin development goals. For medium to long term development the following goals and supporting programmes are proposed: Goal 1: Improved water security 1. Water supplies and services 2. Institutional development Goal 2: Economic development, livelihoods and social welfare 3. Integrated agricultural development 4. Integrated energy development and management 5. Tourism development 6. Mining 7. Microcredit and cooperative development Goal 3: A healthy river basin 8. Environment protection and management

6 The pilot area (and Cambodia in general) can benefit from IWRM in water and related resources development for social, economic and environment protection: - It will open equitable access for basic needs to water, sanitation and electricity; livelihoods-rural and urban; and reduced risk exposure (floods, drought). - IWRM will expand the value generated by production: Agriculture, fisheries, hydropower, industries, services; value generated by tourism and navigation. IWRM leads to better strategies for investment climate supported by good governance; timely response and adaptation to new risks and opportunities; and prevention of water-related conflicts Application of IWRM creates holistic (IWRM-based, multi-sector) perspectives for 4-Ps Basin. The IWRM approach can provide transparency, accountability and sustainable public participation in the whole system of decision making and development planning cycle. In due time, this can help to build a strong capacity of local institutions with inter-sector coordination, allowing for better socioeconomic development and environment protection at the sub-national level, with particular regard to poverty reduction. The implementation of national policies and strategies for water resources management and development in Cambodia is still facing many challenges. The concept of river basin management - both in theory and practical examples - has been discussed with key national line agencies and stakeholders through this Pilot Project. Undoubtedly, this is only the start of a long development process. Until the livelihood of people has been lifted, and the poverty reduced, the awareness and learning process will continue. The next step shall be to actually identify the potentials and constraints, and propose measures and interventions both structural and non-structural in order to actually remove the constraints to finally reduce poverty in the areas. 5. Conclusion In summary, the Pilot Basin at this stage of introduction and implementation of IWRM best practices includes the following keys of success: Involvement of key institutional stakeholders, such as the two provinces and various national line agencies: BCCDM, a local river basin organization, is to engage local stakeholders involved in the process of consultation, dialogues and forum and in administrative work. The 4-Ps Basin is based on administrative boundaries at provincial level, for promoting and implementing the IWRM through establishment of BCCDM. The management is based on the natural geographical lane of 4-Ps Basin and its hydrological unit-preks. The IWRM-based committee, comprising different stakeholders has a clear framework for IWRM promotion and implementation at the local level. The 4-Ps Basin institutional framework is supported by a strong political will and provides support to the IWRM process at the local basin level, because the two provincial authorities and other agencies concerned work together for participation and decision making in the development planning cycle. An active dialogue between stakeholders with confidence and willingness to collaborate; and effective basinlevel IWRM implementation can serve as a local platform for national policy implementation, and a link to people involved in or depending on management of water and related natural resources. This can take place without overlaps of responsibilities, given a functional coordination among the management levels. Hereby, basin-level management can support sustainable socioeconomic development and environmental protection. It is one of the ways to support the national policy on decentralization and de-concentration, as well as the effective enforcement of the Water Law and its aim of good water governance. A holistic (IWRM-based, multi-sector) perspective. The IWRM approach can provide transparency, accountability and sustainable public participation in the whole system of decision making and the development planning cycle. In due time, this can help to build a strong capacity of local institutions, with intersector coordination, allowing for better socioeconomic development and environment protection at the subnational level, with particular regard to poverty reduction. The implementation of national policies and strategies for water resources management and development in Cambodia is still facing many challenges. The concept of river basin management - both in theory and practical examples - has been discussed with key national line agencies and stakeholders through this Pilot Project. Undoubtedly, this is only the start of a long development process. Until the livelihoods of people have been lifted, and the poverty reduced, the awareness and learning process will continue. The next step shall be to actually identify the potentials and constraints, and propose measures and interventions, both structural and non-structural, in order to actually remove the constraints to finally reduce poverty in the area.

7 6. Recommendations for the Future From the experiences of IWRM implementation in the Pilot area, it is important to seek a mutual adaptation between the (integrated) basin-level development and the (sector-wise) national and province-level public investment planning. The 4-Ps Basin IWRM-based Development Roadmap and investment initiatives were developed accordingly. The proposed operational arrangement for BCCDM has to be mainly considered for ensuring the sustainable implementation of river basin management approach at the local river basin system of 4-Ps Basin. The River Basin Management approach should help to establish a concrete and fundamental system at the local river basin for sustainable socioeconomic development and environmental protection. It is one of ways to support implementation of national policy on decentralization and de-concentration at sub-national level. This system should enhance effective enforcement of Law on Water Resources Management with aspects of promotion of water governance at local river basin system. The effective IWRM implementation at the local river basin in this context should help to correct or improve the implementation of national policies between local/sub-national and national level, to avoid overlap of responsibilities, and in support of coordination among different levels as well as among people concerned. Extension of the regional cooperation framework, the Mekong River Commission, an international river basin organization, will support national river basin management and planning process by providing technical assistance, including capacity building and knowledge base and technical tools such as hydrological models. References CNMC (2010): RETA 6470 Report- Development Roadmap for 4-Ps Basin. Phnom Penh, Cambodia. Royal Government of Cambodia (2004): National Water Policy, Ministry of Water Resources and Meteorology. Phnom Penh, Cambodia. Royal Government of Cambodia (2007): Law on Water Resources Management in the Kingdom of Cambodia, Ministry of Water Resources and Meteorology. Phnom Penh, Cambodia. Watt Botkosal (2011): Understanding about IWRM and its application: key perspectives for sustainable irrigation development presented in the National Seminar, MOWRAM-JICA, 22 February 2011, Phnom Penh, Cambodia. Watt Botkosal (Jun 09): IWRM application in the 4-Ps Basin: National IWRM implementation pilot project (Cambodia). Country paper presented at the Regional Workshop on River Basin, Organization and Management, Yogyakarta Watt Botkosal (2009): New Thinking on Water Governance: Establishment of Local River Basin Organization to promote Water Governance. Presented in the Conference: New Thinking on Water Governance 2-3 July 2009 Lee Kuan Yew School of Public Policy, National University of Singapore Watt Botkosal (2009): Water resources for livelihoods and economic development in Cambodia. CRBOM Small Publications Series No. 2. CRBOM-Center for River Basin Organizations and Management, Solo, Central Java, Indonesia Watt Botkosal (2009): IWRM-based development in a small Cambodian river basin. CRBOM Small Publications Series No. 9. CRBOM-Center for River Basin Organizations and Management, Solo, Central Java, Indonesia