TRAINING MANUAL FOR TRAINING TRAINERS IN INTEGRATED WATER RESOURCES MANAGEMENT IN THE UMNGENI CATCHMENT, SOUTH AFRICA - STEERing
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TRAINING MANUAL
FOR TRAINING TRAINERS IN INTEGRATED WATER RESOURCES
MANAGEMENT IN THE UMNGENI CATCHMENT, SOUTH AFRICA
CATHERINE PRINGLE
WITH INPUTS AND REVIEW BY
EVELYN LUKAT AND SABINE STUART-HILL
DECEMBER 2020
Contents SESSION 4. EXPLORING YOUR ROLE IN IWRM .......................................................... 31
4.1. Background ........................................................................................... 31
4.2. What is stakeholder participation? ....................................................... 31
ACRONYMS ................................................................................................................. III
4.3. What are the benefits and drawbacks of stakeholder participation? ... 33
ACKNOWLEDGEMENTS ............................................................................................... V 4.4. Stakeholder participation in water management in South Africa ......... 34
INTRODUCTION TO THE TRAINING MANUAL .............................................................. 1 4.5. How can I get involved in IWRM? ......................................................... 34
1. Background ............................................................................................. 1 4.6. What platforms can I participate in? ..................................................... 35
2. Structure of the Training Manual ........................................................... 2 4.6.1. Catchment Management Agencies .............................................. 36
4.6.2. Water User Associations .............................................................. 37
SESSION 1. BASIC INTRODUCTION TO WATER MANAGEMENT: DEFINITIONS AND CON- 4.6.3. Catchment Management Forums ................................................ 38
CEPTS ......................................................................................................... 4 4.6.4. uMngeni Ecological Infrastructure Partnership............................ 40
1.1. Introduction ............................................................................................ 4 4.6.5. Virtual State Programme .............................................................. 41
1.2. Basic definitions and concepts................................................................ 4 4.7. What management instruments can I contribute to? .......................... 42
1.2.1. The water cycle ...............................................................................4
1.2.2. Blue, green and grey water .............................................................5 REFERENCES ............................................................................................................... 43
1.2.3. The catchment ................................................................................6
1.2.4. The ecosystem ................................................................................9
1.2.5. Ecosystem services........................................................................10
1.2.6. Land-water linkages ......................................................................11
1.2.7. Impacts of man’s activities on land and water resources .............14
SESSION 2. CHALLENGES AND APPROACHES TO MANAGING WATER RESOURCES 16
2.1. Why do we need to manage water?..................................................... 16
2.2. What is Integrated Water Resources Management? ........................... 18
SESSION 3. EXPLORING IWRM: ENABLING ENVIRONMENT, INSTITUTIONAL ROLES, AND
MANAGEMENT INSTRUMENTS 21
3.1. Background ........................................................................................... 21
3.2. Enabling environment .......................................................................... 22
3.3. Institutional role and functions ............................................................ 22
3.4. Management instruments .................................................................... 26
3.5. Connecting land and water laws, institutions and instruments ........... 28
i ii
Acronyms Acknowledgements
CMA Catchment Management Agency The authors would like to thank the following organisations for use of their material
CMF Catchment Management Forum and diagrams:
CMS Catchment Management Strategy
• The Global Water Partnership for use of information from their IWRM toolbox,
DWS Department of Water and Sanitation
papers and reports.
IWRM Integrated Water Resources Management • The Mekong River Commission for use of information from their Manual for
UEIP uMngeni Ecological Infrastructure Partnership Training Trainers in Integrated Water Resources Management in the Mekong
WMA Water Management Area Basin.
WSP Water Services Provider • The Midwest Regional Climate Centre for use of their “How-to guide”
WUA Water User Association • Google Earth for use of their imagery for Figure 11.
• Leo Quayle for the preparation of maps.
• The various organisations and individuals (cited in the text) for the use of their
diagrams.
The authors also wish to thank and acknowledge the following individuals for use of
their photos: Rachel Perkins (cover photo), Ian Bredin and Duncan Hay.
Source: Ian Bredin
iii iv
This information has been tailored for the local context. A series of presentations,
Introduction to the Training Manual linked to the manual, have also been developed.
1. Background 2. Structure of the Training Manual
The Training Manual was designed to support a one-day training on Integrated Water This Training Manual consists of four sessions:
Resources Management (IWRM). It aims to provide knowledge on different aspects of • Session 1. Basic introduction to water management: definitions and concepts
IWRM, with a specific focus on the uMngeni Catchment, South Africa. The Training • Session 2. Challenges and approaches to managing water resources
Manual has been developed as a support tool for a ‘Train the Trainers’ initiative. The • Session 3. Exploring IWRM: Enabling environment, institutional roles and man-
Training Manual and ‘Train the Trainers’ initiative is considered critical for building ca- agement instruments
pacity among local communities in the uMngeni catchment. The development of this • Session 4. Exploring your role in IWRM.
manual was made possible through the STEER project.
Each Session is preceded by a Session Plan which sets out the objective of each Session.
It also helps to guide the Trainers on how to prepare and conduct each Session.
Overview of STEER: Increasing Good Governance for Achieving the objectives
of Integrated Water Resources Management
Tips for starting the Training Programme
STEER is a 3-year research project aimed at addressing complex challenges in
Before starting the first Session of the Training Programme, facilitators should
Integrated Water Resources Management. The project focuses on conditions
set the scene and provide some context. This should include the following:
that encourage better coordination and collaboration between relevant actors.
1. Welcome and introductions: Facilitators should make the participants
The research is being conducted in five case studies in Germany, Mongolia,
feel welcome and comfortable. They should also provide a brief over-
Spain and South Africa. The focus of the South African case study is the uMn-
view of what the training is about.
geni catchment.
2. Introductions: Facilitators and participants should introduce them-
selves. It is a good idea to prepare name tags for participants.
3. Expectations and objectives: Facilitators should provide a brief over-
view of the objectives of the workshop. They can also invite partici-
The manual was developed from several existing IWRM training manuals and re- pants to discuss their expectations. Where appropriate, the training
sources. These include: can then be re-designed to accommodate these expectations.
• The Global Water Partnership (GWP) Toolbox: www.gwptoolbox.org
Facilitators should allocate about 30 minutes of time for this Introductory
• The Global Water Partnership (2008) Background paper on Integrated Water
Session.
Resources Management (GWP, 2008).
• The Global Water Partnership Survey and Status Report – South Africa (Kahinda
and Boroto, 2009).
• Sustainable Sanitation and Water Management (SSWM) Toolbox:
www.sswm.com
• Mekong River Commission: Manual for Training Trainers in Integrated Water
Resources Management in the Mekong Basin (MRC, 2012).
• Integrated Water Resources Management on a Basin Level: A Training Manual
(Burton, 2003).
1 2
Plan for Session 1 Session 1. Basic introduction to water
Basic introduction to water management: definitions and concepts management: definitions and concepts
Purpose
At the end of this session the participants will: 1.1. Introduction
• Have a basic understanding of hydrological and ecosystem definitions and con- Water is essential for life. All plants and animals need water to survive. Freshwater is
cepts. also important for economic development. Although water covers 71% of the planet,
• Be aware of the connections between land and water resources. 97% of the world’s water is found in oceans as salt water. Of the remaining 3% most is
locked up in glaciers, the polar ice caps, soil and the atmosphere. This leaves only about
Materials 1% available for human use.
• A printout of the Training Manual
• The power point presentation prepared for this session. Alternatively, the Facili- This small amount of water is unevenly distributed across the world. Some regions have
tators can amend this presentation or develop their own. lots of rivers and lakes and get regular rain. Other regions are desert and suffer from
• Materials for the runoff demonstration activity: 2 paint trays, tiles, a grass sod, droughts. South Africa is a water scarce country. It is ranked as the 30 th driest country
measuring cup, small watering can and stopwatch. in the world. Each year there are more and more of us, but not more water. We there-
fore need to use and manage our water resources carefully. This requires that more
Time: 1 hour 30 minutes people have knowledge of water and where it comes from. It is important that we also
work together to look after it.
Steps
1.2. Basic definitions and concepts
• Step 1. Provide the participants with handouts of the Train-
ing Manual.
1.2.1. The water cycle
• Step 2. Present the presentation.
The water cycle describes the continuous movement of water on and in the earth. The
• Step 3. Ask the participants to gather in a group in a conven- sun drives the water cycle and heats up water in the oceans. The water evaporates and
ient place in the venue to watch the run-off demonstration turns into water vapor. As the water vapor rises, it cools and condenses into tiny liquid
activity. Alternatively, you could conduct the activity outside. water droplets. A concentration of these water droplets forms clouds. When these wa-
ter droplets become heavier than the surrounding air, they fall as rain, snow, or hail –
also known as precipitation. As the precipitation falls on the land, it flows overland (as
runoff) and into rivers, which empty into the sea. Some water also soaks into the
ground as infiltration. Some infiltration soaks deep into the ground and replenishes our
underground water or aquifers. Other infiltration stays close to the surface and seeps
back into surface water bodies like rivers and dams, as groundwater discharge. Plants
form an important part of the water cycle. When they “breath out” they send oxygen
and water vapor into the air. The movement of water from plants into the air is called
evapo-transpiration.
3 4
1.2.3. The catchment
A catchment is an area of land where water collects in the landscape. If you imagine
cupping your hands and collecting rain as it falls, your hands become the catchment.
The outside edge of the catchment always has the highest point. Gravity causes the
runoff in the catchment to flow downhill where it collects in rivers and streams. The
catchment acts as a funnel by collecting all the water in the area and channeling it into
a single point.
Catchments differ in variety of factors including size, shape, topography, soil type and
land use. The size of the catchment influences the amount of water reaching the outlet.
The larger the catchment, the more water will reach the rivers. The shape and topogra-
phy of a catchment determine how fast the water moves. Water falling in mountainous
catchments will move much faster than water falling in catchments with flatter slopes.
Longer thinner catchments will take much longer to drain than circular catchments.
Land use and soil type influence how much water flows over the land surface or seeps
into the ground. Land use also influences the speed of the flow and the occurrence and
frequency of floods. Water flowing over hard surface such as roads and pavements will
flow much faster than water flowing over areas covered in natural vegetation. If large
areas of a catchment are transformed from natural surfaces to settlements, surface
Figure 1. The water cycle (Source: Palmer et al., 2018)
runoff increases rapidly. This can lead to flooding.
1.2.2. Blue, green and grey water
Catchments are sometimes called drainage basins. Each catchment is separated topo-
Rain falling onto the land surface is either transformed into “blue water”, “green wa- graphically from an adjacent catchment. The boundary between two catchments is
ter” or “grey water”. “Blue water” is fresh water that is stored in lakes, rivers, and aqui- known as a drainage divide or watershed.
fers. Only about 35% of all wa-
ter within the water cycle is
“blue water”. “Green water” is
the water stored as soil mois-
ture. It is used by plants and
eventually evaporates. Green
water is used for crop growth.
About 65% of all rainwater is
cycled through the green water
cycle. Grey water is polluted
water (excluding sewage water).
It is the product of domestic use
such bathing, laundry and dish-
washing.
Figure 3. Two drainage basins or catchments separated by a drainage divide (Source:
Figure 2. Blue, green and grey water Patre, 2019)
5 6
Catchments are defined according to major river systems and their tributaries. The larg-
est catchment is a primary catchment. In South Africa, there are 22 primary catchments
– one for each major river system in the country. Primary catchments are further divid-
ed into secondary, tertiary, quaternary and quinary catchments. These smaller catch-
ments are also defined according to river systems within the primary catchment.
Working in smaller catchments makes it more practical to manage resources water on
the ground. It is important to note that the catchment boundaries do not follow politi-
cal or administrative boundaries. Sometimes a catchment may span more than one
country in which case it is known as an international or transboundary catchment.
Figure 5. The 9 Water Management Areas in South Africa (Source: Breede-Gouritz CMA)
Figure 4. Primary and quaternary catchments in South Africa
For management purposes, South Africa has also been divided into Water Management
Areas. Water Management Areas do not align with primary catchments. There are nine
Water Management Areas in the country. These are the Limpopo, Olifants, Inkomati-
Usuthu, Pongola-Mtamvuna, Vaal, Orange, Mzimvubu-Tsitsikamaa, Breede-Gouritz, and Figure 6. Quaternary catchments in the uMngeni catchmentt
Berg Olifants.
7 8
1.2.4. The ecosystem There are three major classes of ecosystems:
Water resources do not only have a quantitative dimension but also include physical, • Freshwater ecosystems,
chemical, and biological components. These components comprise the biotic (living) • Terrestrial ecosystems, and
and abiotic (non-living) parts of an ecosystem. An ecosystem is a community or group • Marine ecosystems.
of living organisms that live and interact with their environment. The biotic and abiotic
components of the ecosystem are linked together through nutrient cycles and energy Freshwater ecosystems can be further broken down into smaller ecosystem types such
flows. as rivers and wetlands. Some examples of smaller terrestrial ecosystems include for-
ests, grasslands, savannas, and deserts.
Nutrient cycles refer to the transfer and recycling of nutrients in the ecosystem. For
example, plants are eaten by animals, the animals use the energy from the plants to 1.2.5. Ecosystem services
grow, the animals eventually die, and bacteria and fungi break the material down free- Ecosystems provide various benefits to people such as clean water and air. These bene-
ing the nutrients for use by the ecosystem. Energy flows refer to the flow of energy fits are called ecosystem services. Ecosystem services contribute to human wellbeing.
from one feeding level to the next in an ecosystem. During this process plants convert They support our survival and quality of life both directly and indirectly.
sunlight into energy. Animals, called consumers, then eat the plants and the energy is
transferred to the next level. The amount of energy at each level decreases as it moves Ecosystem services can be grouped into four broad categories:
through the ecosystem. • Provisioning such as the production of food and water,
• Regulating such as the control of disease and floods,
• Cultural such as spiritual and recreational benefits, and
• Supporting such as nutrient cycles and biodiversity.
Figure 7. An ecosystem and its biotic and abiotic components (Source: Larbert High, n.d.) Figure 8. Links between ecosystem services and human wellbeing (Source: MEA., 2005)
9 10
Not all ecosystem types provide all ecosystem services. Different ecosystems are better Several features of terrestrial ecosystems, such as land cover, directly affect water re-
able to provide some services than others. For example, wetlands and riparian forests sources. Land cover describes the biophysical cover or material of the land surface such
are very good at removing fine sediments and toxins from water, while deserts do not as vegetation or concrete. Some land covers, such as settlement and infrastructure,
provide this benefit. The type of ecosystem therefore affects which types of ecosystem have a big impact on infiltration and runoff (overland flow).
services a system can provide. It all affects how much of each service is supplied.
Vegetation intercepts and slows down water as it moves over the land surface. This
The ecosystems that provide ecosystem services are sometimes called “ecological infra- allows it more time to seep into the ground. In bare areas where there is no vegetation,
structure”. Examples of ecological infrastructure include wetlands, rivers, coastal infiltration is reduced, and runoff is increased. The increased runoff can remove soil and
dunes, estuaries, forests, grasslands and soils. create erosion. The eroded material is washed into rivers and streams. On hard surfac-
es (such as roads), water also cannot sink in. Instead, the water flows quickly and drains
1.2.6. Land-water linkages into stormwater drains that discharge it directly into rivers and streams. These pro-
Ecosystems are interlinked. What happens in one ecosystem can affect another. For cesses ultimately affect groundwater recharge and the flow of water in rivers and
example, forests play an important role in the water cycle. They affect the rates of streams (streamflow).
evaporation and transpiration and influence how water is stored and routed in a catch-
ment. Wetlands also play an important role in the water cycle. The soils and plants in
wetlands filter and remove pollutants from the water. Wetlands also increase ground-
water recharge and provide flood control.
Source: Rachel Perkins Figure 9. Illustration of how ecosystems influence hydrological flows (Source: Le Maitre et al.,
2014)
11 12
1.2.7. Impacts of man’s activities on land and water resources
Runoff demonstration activity
Land is used in different ways for different purposes. Land use describes the type of
This demonstration will show how different types of land cover determine the amount activities and inputs that people undertake on land. These activities can alter the struc-
of runoff. Total time for the demonstration is about 20 minutes. ture, form and function of the land. This is called land cover change. Land cover change
usually involves the conversion of the natural environment into a built environment.
Materials needed: Built environments include settlements, agriculture, industry and infrastructure. In
• Two plastic paint trays (or similar container) some cases, built environments can be converted to natural land covers through reha-
• A grass sod bilitation.
• Tiles or bricks (or alternative hard surface)
• A small plastic watering can
• A measuring cup
• A stopwatch
Step 1.
Place the grass sod onto the sloping portion of one of the paint trays. Place the tiles or
bricks onto the sloping portion of the other paint tray
Figure 10. Land cover types in the uMngeni catchment
Step 2. Each type of land use has its own specific impact on ecosystems and water resources.
Using the measuring cup, fill the watering can with 250ml of water (you will repeat this Land use affects water quantity through the direct abstraction of water. For example,
for tray 2). irrigated agriculture, settlement and industry all need water to support the activity. If
too much water is taken, there is not enough left for other users or the ecosystem.
Step 3. Land use also affects water quality through sedimentation and pollution. Activities such
Pour the water on the grass sod in Tray 1 and take note of the following: as farming, building roads, and mining can increase the amount of soil or sediment en-
• Using your timer, time how long it takes for water to flow over, into and tering rivers. This sediment can harm plants and animals as it carries chemicals and may
through each surface (try to be consistent with your pouring rate). affect water temperature and amount of sunlight entering the water. Sediment also
• Discuss whether more water flowed from the tile or from the grass surface reduces the amount of water that can be stored in dams. Different land uses also pro-
and why? duce different waste products that can pollute land and water resources and damage
natural resources. The pollution of freshwater includes industrial wastes, sewage and
Source: https://mrcc.illinois.edu/resources/guides/howto_rainfall_runoff.pdf runoff from agriculture.
13 14Plan for Session 2 Session 2. Challenges and approaches to
Challenges and approaches to managing water resources managing water resources
Purpose
At the end of this session the participants will: 2.1. Why do we need to manage water?
• Have an overview of Integrated Water Resources Management Water is a limited resource and is used for many things. Not only is water a key driver
• Have an understanding of users, uses and the challenges of managing water of economic and social development but it is also critical for maintaining the integrity of
resources the natural environment. Some of the main challenges of managing water are:
• Securing water for people,
Materials • Securing water for food production,
• A printout of the Training Manual • Developing other job creating activities,
• The power point presentation prepared for this session. Alternatively, the Facili- • Protecting vital ecosystems.
tators can amend this presentation or develop their own.
• Materials for the water users and uses activities including a pen and some pa-
per or a white board per group.
Time: 1 hour 15 minutes
Steps
Step 1. Present the presentation.
Step 2. Organize participants into groups of 4 to 5
Step 3. Ask each group to choose a sector (such as those dis-
played in Figure 11).
Step 4. Discuss how the sector uses water and the importance
of the sector from an economic and social perspective.
Step 5. Ask each group to discuss the impacts of the sector on
different users and uses. They should consider economic,
social and environmental impacts. Figure 11. Water use in South Africa (Source: National Water & Sanitation Master Plan)
Because water affects everyone, managing this resource requires balancing between
different interests. Managers have to make difficult decisions about water allocation.
They are responsible for apportioning the resource between ever-increasing demands.
Aside from population growth, other drivers also affect the amount of water available
for use. These include climate change and ecologically related problems such as pollu-
tion, eutrophication, and invasive alien plants.
15 16Water pollution happens when harmful substances contaminate surface or groundwa- 2.2. What is Integrated Water Resources Management?
ter and reduce water quality. Water pollution can come from a variety of sources.
Integrated Water Resources Management (IWRM) is an internationally accepted ap-
These sources include toxic chemicals from industry, domestic sewage, and surface
proach for managing the world's limited water resources. IWRM aims to coordinate the
runoff from agriculture which includes pesticides and fertilizer. Some pollutants, such
planning, development and management of land and water resources. It acknowledges
as sewage and fertilizer, contains nutrients that promote the rapid growth of algae. This
that the different uses of water are interconnected.
results in algal blooms that reduce the amount of oxygen in the water which kills other
plants and animals such as fish. This process is known as eutrophication. Water pollu-
IWRM is a process that relies on selecting and adjusting the right mix of tools for a par-
tion is a major concern in the uMngeni catchment.
ticular situation. While the IWRM process is undertaken by water resource managers
and planners, it is relevant to all water users. This is because IWRM aims to give every-
Invasive alien plants are plants that are introduced to an area in which they do not nat-
one a voice in water resource management. It does this by bringing all stakeholders to
urally occur. These species spread rapidly and negatively affect the natural plants and
the table to make sound and balanced decisions in response to water challenges.
wildlife. Many of these species, such as Black Wattle trees also use huge amounts of
water. It has been calculated that if we removed all the wattle trees (outside of planta-
The IWRM framework has three dimensions:
tions) from the uMngeni catchment that we would increase the amount of water by
Efficiency to make water resources go as far as possible,
about 7.2 million cubic metres per year – enough water for 200,000 people using 100
Equity, in the allocation of water across different social and economic groups, and
litres per day.
Ecological sustainability, to protect the water resources base and associated eco-
systems.
These principles of IWRM have been adopted in South under the National Water Act of
1998. The Act promotes the efficient, sustainable and beneficial use of water resources
in South Africa.
Figure 12. Eutrophication of a stream (left) and declining water quantity (middle and right)
Traditionally water management has focused on top down approaches, building large
dams, and other technical solutions. These solutions have high social and economic
costs. This traditional approach also does not consider the interconnected nature of
ecosystems. For example, pollution from land-based activities such as industry and agri-
culture mean that there is less water for drinking and other uses. It is therefore essen-
tial to use an approach to management that considers the connections between land
and water resources.
17 18“IWRM is a process which promotes coordinated develop-
ment and management of water, land and related resources in
Plan for Session 3
order to maximise the resultant economic and social welfare in an
Exploring IWRM: Enabling environment, institutional framework
equitable manner without compromising the sustainability of vital and management instruments
ecosystems.” Purpose
At the end of this session the participants will:
• Understand the three components of IWRM: enabling environmental, institu-
IWRM is guided by the Dublin principles. These Principles were agreed at the Interna- tional framework and management instruments.
tional Conference on Water and the Environment (ICWE) in 1992. There are four Princi- • Have an overview of the three components of IWRM in the uMngeni catch-
ples: ment.
• Principle 1 – that fresh water is a finite and vulnerable resource, essential to
sustain life, development, and the environment, Materials
• Principle 2 – that water development and management should be based on a • A printout of the Training Manual
participatory approach, involving users, planners, and policymakers at all lev- • The power point presentation prepared for this session. Alternatively, the Facili-
els, tators can amend this presentation or develop their own.
• Principle 3 – that women play a central part in the provision, management and
safeguarding of water, and Time: 1 hour
• Principle 4 – that water has an economic value in all its competing uses and
should be recognized as an economic good.
Water users and uses activity
The aim of this activity is for you to get a sense of the challenges arising from
water distribution, allocation and licensing and its relevance for sustainable
development. This activity should take 45 minutes.
• Split into 5/6 groups of about 4 people each. As a group choose a sector
that you wish to discuss.
• Discuss how the sector uses water and what the importance of the sector
is from an economic and social perspective.
• Discuss what the impacts of the sector is on other users and uses. You
should consider environmental, social and economic impacts.
19 203.2. Enabling environment
Session 3. Exploring IWRM: Enabling envi- The enabling environment is determined by national, provincial, and local policies and
ronment, institutional roles, and manage- legislation. Together, these create “the rules of the game”. The rules define the goals
that water governance institutions should reach. They are embedded with in the poli-
ment instruments cies and laws. A proper enabling environment is critical for ensuring the rights of all
stakeholders. It is also important for protecting land and water resources.
3.1. Background The enabling environment includes:
IWRM is about governance. Governance includes the political, social, economic and • Policies which set the goals for water resource use and protection.
administrative arrangements and actors that formulate policy and set the rules under • Legal frameworks which outline the rules to follow to achieve policies and
which management operates. Management refers to activities of monitoring, analysing, goals.
developing and implementing measures to ensure the state of the water resource is • Investment and financing institutions which allocate financial resources to
maintained within desirable limits. meet water needs.
The IWRM approach focuses on three practical elements which are interrelated and In South Africa, the National Water Act is the main legal instrument that governs the
complimentary: management of water resources. Water resources include surface water such as water
• A strong enabling environment – policies, laws and plans that create the “rules courses (rivers and streams), estuaries, wetlands and dams, and underground water
of the game’ for water management. such as aquifers. The Act is based on the guiding principles of social equity, economic
• Clear institutional roles and functions for managing and using water. efficiency, and environmental sustainability. It provides the framework for government
• Effective development and use of management instruments such as assess- to protect, use, develop, conserve, manage and control water resources in the country.
ments, data collection, water allocation and pollution control.
The Water Services Act provides the regulatory framework for the provision of water
supply and sanitation services. The Water Services Act deals with abstracting, transfer-
ring, and distributing water and sanitation to users as well as the removal of
wastewater and sewerage.
In South Africa, government is established in three spheres: national, provincial, and
local. The management of water is defined as a national competence and the provision
of water services is a competence of local government.
3.3. Institutional role and functions
There are a number a number of principles that are essential to establishing institution-
al arrangements that support good governance.
• Organisations that deal with policies, regulations and implementation should
be open and transparent. They should also be accountable, efficient, respon-
sive, and sustainable.
• Systems that enable stakeholders and citizen groups to participate in decision-
making must be promoted.
Figure 13. The IWRM Framework (Source: GWP Toolbox)
21 22• These different systems should also work toward equitable and ethical solu- Formal Water Resource Management Institutions
tions. They should be fair and allow all interest groups to “have their say” in Catchment The primary role of CMAs is to manage water resources at a Water
how water is managed. Management Management Area level. This should be done in collaboration with
Agencies local stakeholders with a focus on involving local communities in the
While governance is often viewed in narrow terms as decisions made by government, (CMA) decision-making process. CMAs are responsible for developing a
good governance actually requires that all actors involved in managing water resources Catchment Management Strategy which includes plans for allocating
work in the same direction. This includes citizens, organisations and private entities. water. The CMA for the Pongola- Umtumvuna Water Management
Area (in which the uMngeni catchment is located) has been formally
In South Africa, the Department of Water and Sanitation (DWS) is the custodian of wa- established and gazetted. However, it is not yet operational. It will
ter resources. It oversees the activities of all water sector institutions and regulates only become operational once the governing board (which is cur-
water resources and water services. DWS is responsible for developing and imple-
menting effective policies, procedures and integrated planning strategies for both wa-
Water User Water User Associations are an association of water users who wish
ter resources and services. DWS is supported by a number of other formal institutions
Associations to undertake water-related activities at a local scale for their mutual
that are legally established in terms of the National Water Act or Water Services Act.
(WUA) benefit. For example, existing irrigation boards have become Water
These institutions perform specific tasks in relation to water resources management or
water services. User Associations. However, Water User Associations, can also be
created by other actors (not just irrigators). There are currently no
Formal Water Services Institutions
Water Services In terms of the Constitution, Water Services Authorities are responsi-
Authorities ble for ensuring access, planning and regulation of water services
within their specific area. They include metropolitan municipalities,
some district municipalities and authorised local municipalities. The
Water Services Authority for the Pietermaritzburg area is the
Water Service Water Service Providers work on behalf of the Water Services Au-
Providers thorities to actually provide water and/or sanitation services on the
(WSP) ground. Umgeni Water is the Water Service Provider in the uMngeni
catchment.
Water Boards Water Boards provide water services to other Water Services institu-
tions (such as municipalities) in their area. This includes bulk potable
water and bulk wastewater. They also operate some water resource
infrastructure (such as dams). Through their operation of dams they
also play a role in water resources management. There are 15 water
Source: Duncan Hay boards in South Africa. One of the largest is Umgeni Water in KwaZu-
lu-Natal.
23 24There are also local organisations that stakeholders can join to discuss water resources
issues. They are described as informal as they are not given specific tasks in terms of
the law. They also do not have a formal organizational structure or constitution. In
some catchments, these organisations are powerful and can have a strong influence on
water resource management decisions. In the uMngeni catchment, there are two types
of informal organisations that focus on water resources management:
Informal Water Resource Management Organisations
Catchment Catchment Management Forums provide a platform for stakeholders to
Manage- come together to deal with local issues. These institutions are run by
ment Fo- stakeholders. They are also used by the Department of Water and Sani-
rums (CMF) tation for informing stakeholders. There are four Catchment Manage-
ment Forums in the uMngeni catchment: the Msunduzi CMF, the upper
uMngeni CMF, the Inanda CMF and the lower uMngeni CMF.
uMngeni The uMngeni Ecological Infrastructure Partnership is a stakeholder
Ecological platform that brings together a diverse array of actors. These include
Infrastruc- municipalities, government departments, environmental organisations, Figure 15. The hierarchy of Water Management Institutions in South Africa (Source: adapted from
ture Part- industry associations and the local water board. The objective of the Mazibuko and Pegram, 2006)
nership UEIP is to promote investment into ecological infrastructure to enhance
(UEIP) water-related ecosystem services in the catchment. 3.4. Management instruments
Management instruments are the tools and methods that help decision-makers to
make informed choices about water resources management. They provide the frame-
work to implement management activities. Some of the key instruments include:
• Assessments: Assessments help to understand connections between water
resources and people. They also help to identify impacts on water resources.
They include water resource assessments and ecosystem assessments.
• Plans: On the basis of knowledge gained through assessments, plans can be
made to better manage water resources. These plans often integrate social,
environmental and economic aspects of water resources at different scales.
Plans can address different aspects of water resources management such as
adaptation plans or disaster risk plans.
• Measures that improve management of demand and supply: These mecha-
nisms are designed to promote efficiency in water management. Demand effi-
ciency measures range from water conservation to technical interventions that
increase the efficiency of appliances and industrial processes. Supply manage-
Figure 14. Participants at the 5th year celebrations of the UEIP
ment usually involves the construction of physical infrastructure such as dams,
or recycling water.
25 26In South Africa, the National Water Resources Strategy sets out ways to achieve Inte- 3.5. Connecting land and water laws, institutions and instruments
grated Water Resources Management. It describes the strategies, objectives, plans,
So far, we have focused our discussion on laws, institutions and instruments that relate
guidelines and procedures required to implement the National Water Act. The primary
directly to water resources. However, Integrated Water Resources Management re-
management instrument at a provincial level is the Catchment Management Strategy. A
quires the integrated management of land and water resources. This is not an easy task
Catchment Management Strategy describes how water will be managed in a Water
as land management also covers planning, forestry, agriculture, industry and the envi-
Management Area and includes a plan for allocating water. Catchment Management
ronment.
Strategies should be developed collaboratively with stakeholders by a Catchment Man-
agement Agency. At a local level, local authorities are required to develop a Water
In South Africa land is managed by a variety of departments at a national, provincial
Management Plan. This can be a standalone report or form part of the Water Services
and local level. At a national level, the Department of Rural Development and Land Re-
Development Plan. The Water Services Development Plan focuses on service delivery
form initiates and coordinates integrated rural development. At a provincial level the
rather than water resource management.
KwaZulu-Natal Department of Economic Development, Tourism and Environmental
Affairs (DEDTEA) provides guidance on social, economic and environmental develop-
The plans for water resources and service delivery should link to other government
ment. Other provincial departments also play a role in land management including the
plans and strategies. One of the purposes of the NWRS is to facilitate this holistic plan-
KwaZulu-Natal provincial government’s Department of Cooperative Governance and
ning. It also establishes a platform for interactions between resource managers and
Traditional Affairs (KZNCOGTA), which oversees and supports traditional governance
development planners in other sectors. Figure 16 shows how these plans link at differ-
structures.
ent scales and to different sectors.
Figure 16. Water-related planning in the national planning framework (Source: DWAF, Kahinda Figure 17. Governance stakeholders in relation to land resources in the uMngeni catchment
and Boroto, 2009) (adapted from Sim et al., 2018)
27 28Plan for Session 4
Traditional governance structures are critically important in land management as Tradi-
tional Councils (each with its own inkosi and izinduna) allocate land to individuals for
their use. However, in 2013, the Spatial Planning and Land Use Management Act 16 of
2013 (SPLUMA) was enacted. This Act shifts authority to take land use management
decisions to local government. Local Government is required to develop systems and Exploring your role in IWRM
frameworks for land use management. SPLUMA is intended to operate in rural areas in
the same way as it applies in urban areas under the authority of a municipality. This has Purpose
created tensions with traditional leadership. At the end of this session the participants will:
• Understand what stakeholder participation is
A significant challenge for IWRM is that the institutions responsible for land manage- • Be aware of the different stakeholder platforms in the uMngeni catchment in
ment are not connected to those responsible for water management. Given the strong • Know how they can get involved in IWRM
connection between land and water resources, it is vital that there is coordination be-
tween these institutions. Figure 19 illustrates the lack of interaction and coordination Materials
between traditional leadership and water management institutions in the uMngeni • A printout of the Training Manual
catchment. • The power point presentation prepared for this session. Alternatively, the Facili-
tators can amend this presentation or develop their own.
Time: 1 hour 15 minutes
Steps
• Step 1. Present the presentation
• Step 2. Organize participants into three groups. Ask each
group to choose a note taker and a presenter.
• Step 3. Ask each group to discuss how communities can
get involved in water management in the uMngeni
catchment. They should think about the following:
Could the community organize themselves into
groups to discuss land and water issues?
Who would participate in these groups?
Could they elect a representative from these
groups to attend the UEIP or CMF?
How would they ensure that any issues that the
group were raised at a stakeholder platform (e.g.
Figure 18. Graph showing the lack of connections between water and land management institu- the CMF or UEIP)?
tions in the uMngeni catchment (adapted from Stuart-Hill et al., 2020)
• Step 4. Back in plenary, ask each group to present their
suggestions.
29 30The International Association for Public Participation identifies five main types of stake-
Session 4. Exploring your role in IWRM holder participation: inform, consult, involve, collaborate, and empower. Each of these
types of participation has a different objective and a different level of influence on the
4.1. Background decision-making process (Figure 19). Although the International Association for Public
The previous sessions have made clear that water resources are needed for food, Participation outlines promises to stakeholders (for each different type of participa-
health, and economic development. However, a balance must be found between pro- tion), in reality these promises are not always upheld. For example, the consultation
tecting water resources on the one hand and utilizing them on the other. This balance is process promises to provide feedback to the public, although often this does not hap-
necessary to ensure that enough water of good quality is available in the future. In pen. Collaboration should also entail more than just incorporating stakeholder perspec-
South Africa we use the motto ‘some for all forever’. tives into decisions. Collaboration is about partnership, where planning and decision-
making responsibilities are shared.
As highlighted in Session 2, Integrated Water Resources Management provides a frame-
work for managing water resources in a sustainable and more balanced way. IWRM
specifically seeks to maximise economic and social welfare in an equitable way without
Type of process Objective Promise to stakeholders
undermining the sustainability of vital ecosystems. To achieve this, the IWRM frame-
work rests on three core principles: To provide balanced and objective “We will keep you informed.”
• Economic efficiency which means to make scarce water resource go as far as information to improve under-
INFORM
possible. standing of the problem, opportuni-
• Equity which means that everyone must have access to water and to the bene- ties, solutions, and alternatives.
fits of using water. Decisions to allocate water must also be fair to all people. To obtain feedback from stakehold- “We will keep you informed, listen
• Ecological sustainability which requires that ecosystems be regarded as “users” ers on analysis, alternatives, and/or to and acknowledge concerns and
Increasing level of participation
CONSULT decisions. aspirations, provide feedback on
of water. Water must therefore be allocated to sustain their functioning. how public input influenced the
decision”
IWRM also depends on the input and involvement of a range of stakeholders operating
To work directly with stakeholders “We will work with you to ensure
at different levels. A stakeholder (in the context of water management) is someone that throughout the process to ensure that your concerns and aspirations
has an interest in water issues or management in a particular area. Stakeholders in- that issues and concerns are con- are directly reflected in the alterna-
INVOLVE
clude government agencies, industry, basin authorities, and Non-Governmental Organi- sistently understood and consid- tives developed and provide feed-
sations (NGOs). They also include local water users and citizens, such as yourself. ered. back on how the public input influ-
enced the decisions”
To partner with stakeholders in “We will look to you for direct
4.2. What is stakeholder participation? each aspect of the decision-making advice and innovation in formu-
process including the development lating solutions and incorporate
Stakeholder participation is the process by which government, or another organization, COLLABORATE of alternatives and the identifica- your advice and recommendations
involve stakeholders who may be affected by a decision. The main aim of stakeholder tion of preferred solutions. into the decisions to the maximum
extent possible”
participation is to ensure that people have meaningful input into the decision-making
process. In this way, unintended negative effects can be avoided and better solutions To place final decision-making in “We will implement what you de-
can be identified together with stakeholders. EMPOWER the hands of stakeholders. cide”
Figure 19. The public participation spectrum (adapted from the International Association’s for
Public Participation IAP2, 2000)
31 32The different types of stakeholder participation use different ways of communicating • Greater compliance through increased ownership of a solution.
and involving stakeholders. ‘Informing’ entails one-way communication where stake- • Empowerment of communities and user groups.
holders are simply told about a decision or the status or progress of a project. They are
not asked to provide input. For example, if someone is simply informing stakeholders There are also some disadvantages to stakeholder participation. Stakeholder participa-
then they may place a notice in a newspaper. The other forms of participation usually tion can be expensive and time consuming. Some officials or organisations may also run
involve two-way communication where stakeholders are asked to provide information, a participation processes to manipulate public opinion or to improve their public image.
opinions and ideas that may influence a decision. Stakeholder input may be obtained Be aware of these motives and raise any concerns that you may have.
through a meeting or workshop. Some of the different approaches used in each type of
participation process are shown in Figure 20. 4.4. Stakeholder participation in water management in South Africa
In South Africa, stakeholder participation has become widely accepted through legisla-
Inform Consult and Involve Collaborate and Empower tion as a critical component of water management. The Guide to the National Water
Legal notices Public meetings or hearings Workshops, focus groups or key Act states that:
Advertisements Open days stakeholder meetings
Media Briefings Forums
Websites Comments & response sheets Advisory panels & committees
“Without public participation, the goals of water resource management cannot
Press releases & conferences Surveys, questionnaires & polls appointed with stakeholders be achieved. As national government we have a critical responsibility to ensure
Radio or talk shows Interviews Task force the effective participation of all stakeholders in water resource decisions that
Expert panels Telephone hotlines Indaba affect them”
Figure 20. Examples of common approaches to stakeholder participation (adapted from the from The National Water Act establishes various institutions or platforms which must be rep-
DEAT, 2002; du Toit and Pollard, 2008) resentative such as Catchment Management Agencies and Water User Associations.
They must also involve communities in the decision-making process. Through these
If you are attending a stakeholder participation process, it is important for you to un- institutions or platforms, and various management instruments (see Section 3.4), every
derstand what type of participation process it is. This will help you to know how best to citizen is encouraged to participate in the protection, use, development, conservation,
participate. It will also help to ensure that the objective of the participation process is management and control of the water resources in their Water Management Area.
achieved. So be aware and ask questions when you attend a participation meeting,
group or forum. For example, you could ask “What is the aim of the meeting?” or Stakeholder participation is also viewed as an opportunity to redress the inequities of
“What is happening with the outcomes from the meeting?”. the past. The Act specifically requires that disadvantaged and marginalized communi-
ties be included in consultation processes and decisions.
4.3. What are the benefits and drawbacks of stakeholder participation?
There are many benefits to stakeholder participation. These include: 4.5. How can I get involved in IWRM?
• Improved understanding of stakeholder needs. There are two ways that you can get involved in IWRM. Firstly, you can apply the IWRM
• Greater access to stakeholder skills and knowledge. principles to your own actions and decisions. To do this, you can ask the following ques-
• Improved quality of decision-making by government and other organisations. tions:
• Development of win-win solutions with benefits for all, or at least the majority. • Will my decision or action result in the most efficient use of the available water
• Improved stakeholder understanding of water issues and responsibility for wa- resources?
ter management outcomes. • How will my decision or action affect access for other users to water or the ben-
• Ability to build stakeholder support for a project and to improve stakeholder efits from its use?
relationships. • How will my decision or action affect the functioning of natural systems?
33 34As a stakeholder, you can also participate in various platforms and give input to differ- 4.6.1. Catchment Management Agencies
ent strategies and plans for water resources management. As highlighted in Session 3, The National Water Act requires that a Catchment Management Agency (CMA) is estab-
the National Water Act makes provision for several stakeholder platforms which enable lished for each Water Management Area. The primary purpose of the CMA is to involve
IWRM. These include Catchment Management Agencies, Water User Associations and communities in water resources management. The CMA must develop a Catchment
Catchment Management Forums. These platforms are intended to be places where Management Strategy. The Catchment Management Strategy provides the framework
stakeholders can voice and defend their interests in water resources. There are also for managing water in a Water Management Area. It also sets out principles for allo-
various informal platforms, including the uMngeni Ecological Infrastructure Partnership cating water to existing and new users. The Catchment Management Strategy must
(UEIP) and Virtual State Programme, in which you can participate. enable stakeholder participation in the Water Management Area.
4.6. What platforms can I participate in?
The following section provides you with a brief overview of each of these platforms,
what they do, how often they meet, and how you can get involved.
Figure 21. Main aims of Catchment Management Agencies (Source: de la Harpe et al., undated)
The CMA for the Pongola- Umtumvuna Water Management Area (in which the uMn-
geni catchment is located) has been formally established and gazetted. However, it is
not yet operational. Members for the governing board of the CMA are currently being
nominated. Once the Minister has accepted the members, the CMA becomes opera-
tional. Only board members can attend the CMA meetings. The best way for an individ-
ual or group of individuals to engage with the CMA is via the Catchment Management
Forum (CMF) and/or Water User Associations (WUA) (if they are established in the
Source: Rachel Perkins catchment). The CMFs and WUAs can inform the CMA of any relevant issues. They are
also able to request a meeting with the CMA board, if necessary.
35 36As the CMA is not yet fully operational, their activities are limited. A preliminary proto-
Catchment Management Strategy (CMS) is being developed for the Pongola- Umtumvu-
na Water Management Area. Several stakeholder meetings have been held to discuss
the proto-CMS. In these meetings, stakeholders are invited to comment on issues and
interventions related to water quality, water availability, water allocation, stakeholder
engagement, cooperative governance and institutional arrangements. Comments on
the proto-CMS can still be submitted until March 2021.
Once the proto-CMS is finalized it will guide implementation plans in each catchment.
The suggestion is that a Catchment Management Strategy Committee is established.
The CMS committee would meet two to three times a year and guide the implementa-
tion of the CMS. You can engage the CMS committee via the Catchment Management
Forums and Water User Associations (once they are established in the uMngeni catch-
ment).
If you would like more information on the CMA or proto-CMS, you can contact
Mr. Nkosi Mkhize (Department of Water and Sanitation) at mkhizen@dws.gov.za
4.6.2. Water User Associations
Water User Associations (WUAs) are associations of individual water users that operate
at a specific local level. The members pool their resources (money, human resources
and expertise) to more effectively carry out water-related activities. They can also help
in implementing the Catchment Management Strategy at a local level. To establish a
WUA, a formal application is made to and signed by the Minister. It should be noted
that the old irrigation boards (organized by farmers with irrigation licenses) were sup- Figure 22. Types of Water User Associations (Source: de la Harpe et al., undated)
posed to be transformed to WUAs.
4.6.3. Catchment Management Forums
There are two types of Water User Associations, sectoral based and multi-sectoral. A Catchment Management Forums provide a platform for stakeholders to come together
sector-based Water User Association acts in the interest of a group of similar water to deal with local water issues. These institutions are run by stakeholders. The aim of a
users. A multi-sector-based Water User Association acts on behalf of a combination of CMF is to enable stakeholders to participate meaningfully in water resources manage-
different water users. ment. They provide an important platform for stakeholders to share their views and to
communicate with the CMA. They are also used by the Department of Water and Sani-
tation for informing stakeholders. CMFs can become very powerful and influential be-
cause they involve many stakeholders that act together.
37 38You can also read
