Groundwater and Governance – How it Should be Done

Over the duration of this blog, we’ve really built up a keen understanding of the immense potential groundwater has for agriculture across Sub-Saharan Africa (SSA). For many academics, it appears to be the future, and a way to carve a path towards economic development, food security and development.

However, as Villholth (2013) observes, whilst generally regional and international policies are increasingly beginning to favour small-scale groundwater irrigation in the region, this is not mirrored by national policy and institutions. Currently, groundwater irrigation has no clear management body across numerous countries, instead being managed between agricultural bodies and what Villholth refers to as WASH sectors; those of water, sanitation and hygiene. This is evident especially in countries such as Ethiopia, which, although having significant plans to boost groundwater development, has clearly insufficient institutional capacity wherein roles and responsibilities regarding the facilitation of this boost are entirely unclear. It is necessary then, Villholth (2013) argues, for the state to become both a facilitator and regulator of groundwater irrigation, rather than remaining a passive entity.

This is a sentiment shared by Tuinhof et al. (2001) in their working paper for the World Bank. They insist that SSA’s new development agenda will require a much greater focus on strategic assessment and investment planning regarding the use and proliferation of groundwater resources, in order to not only promote a sustainable model of irrigation but also support urban water-supply development and rural livelihoods. The authors suggest that this “New Agenda” for development will require significant strengthening, evolution and reform of current institutional frameworks of groundwater governance. 

Foster et al.(2012) also argue in this vein, stating that a delicate balance will be needed between the promotion and creation of an enabling framework of groundwater development, abstraction and pollution regulation to avoid over extraction and contamination of resources and the integration of groundwater monitoring and assessment, development and recharge assessment with the management of land-use.

Groundwater has a huge part to play in the future of the SSA region, and hence needs an effective, efficient and equitable method of governance

Only adding to the challenges of creating suitable and effective groundwater legislation is that the institutional framework into which it needs to be inserted is currently in a state of flux. Tuinhof et al. (2001) observe that a general trend of decentralisation currently exists regarding water management, which stems from attempts to address “upstream-downstream” issues and create more focused management for stakeholders. Whilst such changes arguably create opportunities for groundwater management, they also offer a huge complication; for example, in 2001, Tuinhof et al. had observed 60 such decentralised management schemes, however very few had a significant operational capacity or included groundwater legislation in their operational framework.

There are calls then for an integration of groundwater management and promotion into national policy. There is widespread agreement amongst academics such as Villholth (2013), Tuinhof et al. (2001) and Foster etal. (2012) that this is essential for groundwater to begin making an effective contribution to economic development, food security and urban and rural livelihoods. There are also calls for the development of cross-sector dialogue between different government institutions and levels, as to accommodate the particular needs of groundwater within different river basins and management authorities whilst still maintaining a national focus. Tuinhof et al (2001) and Foster et al. (2012) present succinct arguments for the direction, limitations and prerequisites that this national governance features, and this is what we will be exploring throughout the rest of the blog.

Needs for Governance

Tuinhof et al.(2001) states that it is generally agreed the primary function of any government should be to act as “custodian” or “trustee” if you will over renewable resources on behalf of the citizens they represent. Legislation, then, concerning groundwater, should be flexible, enforceable and most importantly enabling. Tuinhof et al. present in their working paper six key recommendations for governments when deciding on legislation, which we will explore below.

Catchment and Aquifer Resource Planning and Allocation

This involves the establishment of appropriate and suitable boundaries for resource management, whether by basin or by region. It also involves effective translation of nationwide plans for groundwater to sensible regional scales to create a unified vision for groundwater and surface water resources.

Land-use zoning for Conservation and Protection of Groundwater

This would involve allowing for the creation of “special control areas” that are either critical to the resource in terms of recharge or storage or perhaps particularly vulnerable to pollution and hence contamination.

Monitoring of Groundwater and the Provision of Information

Another suggested role of government is to provide essential monitoring and periodic evaluation of groundwater status in a way that facilitates the open exchange of data and provided information for both individuals and cooperatives

The Facilitation of Stakeholder Participation and Engagement

This includes actively encouraging the involvement both users and potential polluters of groundwater (alongside other interest groups) to ensure that development of the resource can be optimally beneficial for the majority involved 

The Administration of the Use of Groundwater

Governments and legislative bodies should have the authority to allocate and control groundwater usage, through well construction permits, groundwater user registers, allocation of rights or permits to abstract, and appropriate resource charging (generally targeted at commercial or large-scale users). They should also have the power to issue and enforce sanctions against those who do not comply with regulations, in order to deter misuse.

Licensing of the Discharge of Wastewater and Landfill Disposal

Governments should be able to limit and control practices that may cause pollution through effective licensing, and be able to apply sanctions to those who break these regulations

Limitations and Prerequisites to Groundwater Governance

However, these recommendations are idealistic, and are more often an unachievable target than a reality for many governments in Sub-Saharan Africa. The large majority of government institutions and bodies are currently plagued by a severe lack of capable and aptly trained staff to carry out duties, and this goes doubly so for activities concerning groundwater, which currently hold relatively little attention in the political world. There is also the issue of budgets; setting up new groundwater institutions and legislation will present itself as a rather expensive process, and many government agencies simply lack the capital to undergo processes of mass monitoring and policing of usage. There is also the current issue of groundwater not receiving that much institutional attention; the nature of the resource as somewhat hidden and out of sight in this regard does it no favours  (Tuinhof et al. 2001).

Often, the establishment of an effective private-sector groundwater provider can help provide services that governemnts simply do not have the resources themselves to offer

Foster et al.(2012) hence set out a series of prerequisites; things that need to happen before governments can go about establishing effective and efficient groundwater legislation and government bodies. They call first for the building of professional capacity through providing widespread training and the more effective deployment of currently trained personnel. Alongside this, they stress the necessity for the stimulation of private-sector participation (a concept mentioned in an earlier blog), so that high quality contracting services can be provided alongside professional consultancy. This will provide platforms for the provision of construction, maintenance and siting services, as well as set the ball rolling on surveying, monitoring and evaluation. They also call for government agencies to have the capabilities and authority to ensure that the work commissioned to the private sector is to a high quality.

Conclusions

Whilst there is still a lot of work to be done before effective groundwater institutions that promote, protect and monitor groundwater sources are set up, both papers by Tuinhof et al. (2001) and Foster  et al. (2012) present strong recommendations for governments. 

 

Probably the strongest points of these frameworks are that they understand and facilitate the fact that groundwater at heart is a local resource; both papers call for local engagement with stakeholders (both recipients and potential polluters), however also realise the importance for a national-scale effort to manage groundwater. Both then also suggest a more “top-down” approach, that ensures that there is significant authority ensuring sustainable and equitable use of groundwater, and using the resource to its full potential in order to bring about empowerment, economic development and greater security on a national scale. The only thing left to do, is for countries to begin implementing suggestions, and taking the first steps towards a future where groundwater plays a significant role in livelihoods all across the country.