Regional Cooperation Programme for Sustainable Development of Water and Related Resources in the Mekong Basin

Applying IWRM at basin scale

Olivier Cogels, CEO, Mekong River Commission, October 2005

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Need for sustainable development and regional cooperation in the Mekong Basin

The people of the Mekong Basin are amongst the poorest in the world with many existing on less than one dollar per day. If we are to achieve the millennium goals of halving the poverty level by the year 2015 and improving the welfare of the Mekong Basin’s people, we must look at ways of making optimum and sustainable use of the basin’s biggest resource – its water. Tens of millions of people in the Mekong Basin rely on the waters of the river system to provide them with their primary source of nutrition and as well their livelihood. Water resources development in a large, international river basin is not without risks and difficulties however, we believe that the risks of non-development or of insufficient cooperation are even higher. More, but careful, developments and investments are needed in all water related sectors, including hydropower, if escalating demands of the rapidly growing population are to be met. Sustainable development of the economic potential of the Mekong river system for food, for drinking, for sanitation, for power generation, for transportation, and for tourism, is a key to fighting poverty and increasing people’s welfare in the region. Today this development is still in its early stages and the water of the Mekong still offers a high potential for balanced and sustainable water resources development.

In an increasingly global economy, to attain the goals of poverty alleviation and sustainable economic growth in the Mekong region, it is obligatory that regional integration and cooperation are of prime importance. Furthermore, since water does not recognise borders, it is also clear that for water related developments, regional cooperation at the scale of the whole basin is essential. Development in one country may have consequences in another country, and investments in one sector may affect other sectors. Therefore, there is a need for a joint water resources development programme at basin scale, owned and managed by the riparian countries themselves, in close cooperation with the donor community, investment institutions and civil society.

On 5 April 1995, aware of the importance of regional cooperation for water resources development at basin scale, Cambodia, Lao PDR, Thailand and Viet Nam signed the Agreement on the Cooperation for Sustainable Development of the Mekong River Basin. With this agreement the Mekong River Commission (MRC) was created in order to promote and co-ordinate sustainable management and development of water and related resources in the Mekong Basin.

In addition, a dialogue mechanism has been set up with the two upstream countries China and Myanmar. This is a framework of cooperation under which concrete joint activities are undertaken. On 1 April 2002, the MRC and China signed an “Agreement on the Provision of Hydrological Information on the Lancang/Mekong River in Flood Season”. Through this agreement, China contributes effectively to MRC’s flood forecasting activities.

Concrete participation of the upstream countries in MRC’s Mekong Cooperation Programme, in a joint effort to alleviate poverty and increase economical welfare, is a factor of regional integration and is of mutual benefit for all countries sharing the Basin. Cooperation is possible in a pragmatic way through joint identification and implementation of concrete projects in various areas of mutual benefit such as navigation safety and trade facilitation, flood management, environment management and biodiversity conservation, development of modeling and decision support tools, etc.

Promoting Integrated Water Resources Management (IWRM) at basin scale

The orientation of the Mekong Programme, such as endorsed at the MRC’s 11th Ministerial Council meeting of 8-9 December 2004 in Vientiane, Lao PDR, is to implement Integrated Water Resources Management (IWRM) at basin scale as a means to alleviate poverty and to enhance economic growth in the scope of the millennium goals.

The concept of Integrated Water Resources Development and Management is not new and has been promoted during the Earth Summit held in Rio De Janeiro in 1992. Later, the Global Water Partnership (GWP) defined IWRM as: “a process which promotes the coordinated development and management of water, land and related resources, in order to maximise the resultant economic and social welfare in an equitable manner without compromising the sustainability of vital ecosystems.” This approach allows for a holistic view of the needs and interests of the countries sharing the river system. With this approach, the MRC believes a well-balanced, equitable and sustainable development process can be facilitated — for the mutual benefit of all Mekong riparian countries.

On this basis, the MRC is currently preparing its Strategic Plan 2006 – 2010, addressing in a holistic way the development needs in the areas of navigation, flood management, fisheries, irrigation, hydropower, environment management, watershed management, tourism, and capacity development.

Facilitating sustainable and balanced investments at basin level

After 10 years of capacity development supported by the international donor community, the MRC has built up strong international expertise and a comprehensive knowledge base, as well as powerful mathematical models and planning tools that can be used to formulate optimal integrated development scenarios for the water resources of the Mekong river system.

A strong environmental monitoring and protection capacity has also been developed within MRC to protect natural resources, aquatic life and conditions, and the ecological balance of the basin from pollution or other harmful effects resulting from any development plans and uses of water and related resources. Considerable donor support is now available for flood management and mitigation, including the development of a regional flood management and mitigation centre located in Phnom Penh.
The MRC has a proven capacity to manage development programmes and projects in close partnership with donors, offering them an efficient environment and platform to turn their development aid into effective outputs in the region, in line with their development strategies and objectives.

The Mekong Programme is not only focusing on knowledge management, planning support and environment protection, but is also aiming at facilitating concrete investments and development actions in the field, both structural and non-structural. It is a development programme strongly owned by the Mekong countries themselves. The programme focuses specifically on the development of water and related resources, which can be seen as complementary to the Greater Mekong Subregion Economic Cooperation Programme (GMS), promoted by the Asian Development Bank. The Mekong Programme is also enhanced by other regional initiatives such as the ASEAN Mekong Basin Development Cooperation, and the United Nations Economic and Social Commission for Asia and the Pacific (UNESCAP).

Joint planning, management and coordination of the Mekong Programme is achieved in close cooperation with the National Mekong Committees (NMC) and the line agencies of the member countries. The role of the MRC, as an intergovernmental body, is to facilitate coordinated and balanced investments in the basin. Applying the subsidiary principle, its role is not to substitute itself in national and bilateral initiatives, but, on the contrary, to support the countries at the level of strategic planning and programme implementation. MRC is now working to identify, plan and prioritize a broader range of development projects in cooperation with the donor community, investment institutions, and the civil society. MRC’s role in the development process, as an International River Basin Organization (IRBO) owned by its member countries, is very complementary to the role of investment banks. Closer partnership is therefore strongly recommended.

The MRC has to remain a key actor in promoting sustainable economic growth throughout the basin in a move to alleviate poverty. The MRC is in an ideal position to act as a promoter and facilitator of the development and investment process in the water sector in the region, encouraging and coordinating sustainable use and management of water and related resources for navigation, food production, energy production and domestic use. MRC is willing to provide added value to all national and regional initiatives which lead to MRC’s vision of an economically prosperous, socially just and environmentally sound Mekong Basin.

Programme components

The MRC's Mekong Programme is structured in the following sub-programmes:

The sub-programmes are further subdivided into priority subject areas or components under which the MRC projects are implemented. The objectives and components of the various sub-programmes are presented here.

Basin Development Planning

Rationale: Optimal and equitable development of the Mekong's water resources require collaborative planning and joint identification of investment priorities referring to basin-wide strategies in each water-related sector. This may also be usefully supported by multi-sectoral analysis and the simulation of various development scenarios and their effect on the river flow regime.
Objectives: To identify, categorize and prioritize projects, programmes and investment opportunities, to seek assistance for and then to implement them at basin level.
Components:
• Planning Capacity and Tools
• Development Strategy and Investment Plan
• Support to National IWRM
• Project Portfolio Identification and Promotion

Water Use Management

Rationale: The 1995 Mekong Agreement provides the legal framework enabling cooperation for sustainable development within the Mekong Basin. Joint management of water resources requires additional detailed administrative procedures and technical tools, to be used both for development planning and for operational management of infrastructure.
Objectives: To provide effective mechanisms to improve joint water management and ensure mutually beneficial water utilization in the Lower Mekong River Basin while maintaining its ecological balance. To develop a computerized package of hydrological simulation models, knowledge base and analytical tools to serve as the technical basis for basin development planning and management. To develop procedures for water use and management.
Components:
• Basin Modeling and Knowledge Base
• Environmental and Transboundary Analysis
• Rules for Water Utilization
• Management and Institutional Strengthening

Flood Management and Mitigation

Rationale: The urgent need for improved flood management and mitigation is reflected by the recurrent damage in the Lower Mekong Basin. In 2000, more than 800 people died, and the economic damage was assessed at more than US$400 million. In 2001, more than 300 people died, and the economic damage was assessed at more than US$100 million. Significant damages where also assessed in 2002. Since the beginning of the new millennium, millions of people have been affected by floods. Floodwaters disrupt road transportation, and, as the population and infrastructure on the floodplain grows there is the potential for increasing loss of life and economic damage due to floods. Development of levees to protect crops and infrastructure as well as construction of elevated roads less subject to flood impact have the potential to unintentionally exacerbate flooding elsewhere in the floodplain. They can also block fish migration routes on the flood plain.
Objectives: To prevent, minimize or mitigate people’s suffering and economic losses due to floods, while preserving environmental benefits. To maintain an accurate flood forecasting system and establish an effective warning mechanism. To act as a facilitator on transboundary issues and to build capacity in member countries.
Components:
• Regional Flood Management and Mitigation Centre
• Structural and Flood Proofing Measures
• Mediation of Transboundary Flood Issues
• Flood Emergency Management Strengthening
• Land Use Management

Environment Management

Rationale: A fast-growing population, together with increased industrial and infrastructure development all place competing demands on resources, it is important that development is managed properly to ensure that sustainable benefits are spread across the population and contribute to poverty reduction. The Lower Mekong Basin is in a fortunate position compared with similar river basins. Both the water quality and the environmental conditions are still relatively good and the current development of the Mekong river is still very limited compared to most other large international rivers. With generally low levels of industrial activity in the basin at present, the two immediate concerns about water quality are diffuse pollution due to poor catchment land management, and the potential for water quality emergencies arising from spillages or shipping accidents. Also in the Mekong Delta nutrient levels in the water are high and rising, presumably due to intensive agriculture and aquaculture and the wastewater produced by areas of high population density.
Objectives: To strengthen the framework for transboundary environmental management by the four Lower Mekong Basin countries. To generate data, information and knowledge for decision-making. To balance economic development and environmental conservation that will benefit the Basin’s inhabitants.
Components:
• Environmental Monitoring & Assessment
• Environmental Decision Support
• Environmental Knowledge
• People and Aquatic Ecosystems
• Environmental Flow Management

Fisheries

Rationale: In the Lower Mekong Basin, floodplains provide benefits for the livelihoods of tens of millions of people. Much of this floodplain is subject to a substantial annual wet season flood pulse, which is crucial to the survival and production of most of the fish and aquatic animals and many of the plant species in the basin. The flood recession provides major fishing opportunities as well as supplying water to the recession rice crop in much of Cambodia and southern Laos. The Lower Mekong fishery (the world’s largest freshwater fishery estimated at over two million tonnes per year, with a total value of around $US 1.4 billion) is dependent on the annual Mekong flood pulse, which, in turn, is totally dependent on climatic conditions that vary considerably from year to year. In many places in the basin, the fishery is one of the few sources of employment for an increasingly young, often landless rural population. Unfortunately, population growth in the existing poor socio-economic environment is placing huge pressure on this fragile resource.
Objectives: To manage the productive Mekong fisheries so as to sustain their high yield and economic output well into the future. To undertake research and training and to disseminate information to policy makers and planners in the four Lower Mekong countries.
Components:
• Assessment of Mekong Capture Fisheries
• Institutional Support
• Aquaculture of Indigenous Mekong Fish Species
• Management of River and Reservoir Fisheries

Navigation

Rationale: The Mekong River is an important gateway to trade centres in the Southeast Asia region and beyond. In 2001, trade valued at $4,700 million was transported throughout the LMB on the Mekong River and its tributaries, including the passage of an estimated $88 million of goods between Thailand and Yunnan. Flow regime exercises an important control on navigability, and changes in flow, either increases due to regulation or decreases due to diversions, will influence the viability of navigation. To fully realize the trade and transport potentials, a regional development approach is much needed for promoting freedom of navigation and for increasing the international trade opportunities for Mekong countries’ mutual benefit. Issues to be addressed include river navigation conditions; ports; integration of navigation with other transport modes (particularly in the international context); physical and non-physical barriers to navigation; and environmental and safety concerns such as pollution.
Objectives: To promote freedom of navigation on the Mekong, and to increase social development and international trade opportunities using the navigation potential of the river system.
Components:
• Socio-economic Analysis and Regional Transport Planning
• Legal Framework for Cross-border Navigation
• Traffic Safety and Environmental Sustainability
• Information, Promotion and Coordination
• Institutional Development

Hydropower

Rationale: The total hydropower potential of the Mekong river system is estimated at 17,000 MW for the tributaries and 13,000 MW for the mainstream. Only 4,450 MW has been developed to date (1,600 MW in the LMB; 2850 in the Upper Basin). Demand in the LMB is expected to grow by around 7% per year over the next 20 years, and there are substantial opportunities for trading of power between the countries in the region. Hydropower options are included in the power development strategies of all the Mekong countries. There is thus still a large hydropower potential that could be developed in the Mekong region. Obstructions to meeting this potential include the lack of an effective regional transmission system, competition from other power sources, and resistance to hydropower development due to concerns about the impacts of dams on fish migration and the river flow regime. Storage dams typically decrease wet season flows and increase dry season flows. Successful development of the region’s hydropower potential will require a well structured and integrated programme founded on a basin-wide strategy, with due regard to environmental and social aspects.
Objective: To develop hydropower in order to meet the need for economic development in a way that fully recognizes the requirement to safeguard ecosystems and social interests.
Components:
• Mekong Basin Hydropower Development Strategy

Agriculture, Irrigation and Forestry

Rationale: Agriculture is still the dominant economic activity in the Lower Mekong Basin. It accounts for between 20% (in NE Thailand) and 52% (in Lao PDR) of GDP, providing food for 300 million people in the world. It provides livelihoods for around 75% of the LMB population and is an important source of export income. Irrigation is an integral part of the agricultural production systems. Wet season irrigation helps to secure the rice crop and dry season irrigation allows a second (sometimes third) crop and is increasingly important in the production of high value vegetables, fruit and industrial crops. As populations in the region are growing rapidly, irrigation is vital to food security as well as economic development. Thailand and Vietnam have already developed a substantial proportion of their irrigable land and water resources in the LMB. There is still potential for expansion of irrigation, but more investment is also needed in the improvement of existing irrigation systems and management capacities aiming at increased irrigation efficiency and water productivity (“More Crop per Drop”). During the wet season, water availability is far in excess of demand, but dry season water shortages are common, particularly in the Mun- Chi basin and in the Delta, which is currently responsible for about 50% of Viet Nam’s total food production. Intrusion of seawater into the Delta is becoming more and more an issue of concern, reducing the potential for irrigated rice production. It also affects shallow wells for domestic use. Deforestation is a significant environmental concern of all Mekong country governments. There is an urgent need to preserve the integrity of the watersheds through monitoring land use changes, identifying problems and management training. Concerns focus on the loss of biodiversity and livelihoods as the forests are cleared, as well as the potential impact of the land-use change on the rivers. Forest clearing can lead to leaching of nutrients and erosion of sediments into rivers. The forests of the lower Mekong provide habitats for animals such as tigers, leopards and elephants, which apart from their intrinsic and cultural values are the sorts of species that can provide the basis of developing eco-tourism.
Objectives: To preserve the integrity of the watersheds of the four countries through monitoring land use changes, identifying problems and management training. To implement technical surveys of irrigation practices to improve efficiency.
Components:
• Irrigation water use efficiency and productivity
• Watershed Management

Tourism

Rationale: The tourism industry is already making a significant contribution to the economies of the member countries. Being blessed with abundant historical and cultural heritage and unspoiled natural beauty, the Mekong River Basin has also a great potential to attract visitors from various parts of the world, generating more income from foreign exchange. Being a highly labour-intensive industry, tourism also plays a significant role in generating employment opportunities to localities where it is promoted.
Objectives: To promote tourism within the Mekong River Basin in a balanced manner, which also ensures necessary environmental protection.
Components:
• To be defined

Integrated Capacity Building

Rationale: In the Mekong region, there is a strong need to develop the technical, institutional and legal water resources management capacity and expertise at various levels. Through the development of a regional training programme, involving a network of leading education and training institutions in the region and worldwide, it is also expected to increase regional cooperation and integration.
Objective: To strengthen the capacity of the MRC, the National Mekong Committees and the line agencies in all fields leading to more effective integrated water resources development and river basin management
Components:
• Training in Project Management
• Training in Information Management and Communication
• Training in Environmental Governance
• Junior Riparian Professional Programme
• Strengthening Core Activities of MRC
• Research Coordination
• Gender Mainstreaming

Information Management and Decision Support Systems

Rationale: Integrated Water Resources Management and Development needs to be supported by databases and Geographical Information Systems (GIS) in order to store, analyse, and distribute hydro-meteorological data, land use data, socio-economic data, administrative data, infrastructure data, etc. Planning and decision-making require mathematical simulation models and Decision Support Systems (DSS). During the past five years, the MRC Secretariat has developed rich databases and powerful mathematical tools which need further maintenance and updating, based on an effective international data management and exchange policy.
Objective: To develop and maintain the databases and tools to support planning and decision-making.
Components:
• Hydro-meteorological data collection and analysis
• Information gathering and integration
• Database management
• Mekong Basin GIS
• Remote Sensing
• Simulation and Decision Support Systems
• Data Exchange Policy and Procedures

water and related resources

Some key facts about the Mekong

• From its source in Tibet, the Mekong River is approximately 4800km long and flows through six countries: China Myanmar, Lao PDR, Thailand, Cambodia and Viet Nam.
• So much water flows into the mainstream Mekong from the surrounding basin area that, on average, 15,000 cubic metres of water passes by every second. In many parts of the world, that's enough water to supply all the needs of 100,000 people – the population of a large town – for a whole day.
• The Lower Mekong River Basin (Cambodia, Lao PDR, Thailand and Viet Nam) is home to approximately 60 million people. There are over 100 different ethnic groups living within the basin's boundaries, making it one of the most culturally diverse regions of the world.
• Farmers in the Mekong Basin produce enough rice to feed 300 million people a year. Agriculture employs 85% of the people living in the basin.
• The Mekong River Basin is one of the most productive inland fisheries in the world. The basin provides a wide variety of breeding habitats for over 1300 species of fish. Conservative estimates indicate that basin dwellers eat over one and half million tonnes of fish per year.
• It has been estimated that total hydropower production capacity in the Lower Mekong Basin is 30 000 megawatts, more than enough to meet the expected demand in the coming decade.
• There are 25 major ports on the Mekong River and except for a 14 km stretch around the Khone Falls near the Lao-Cambodia border, almost the entire length of the river is navigable for nearly 8 months of the year.
• The Great Lake on the Cambodian floodplain is the largest body of fresh water in Southeast Asia and forms one of the key features of the lowlands. During the flood season, water flows from the Mekong mainstream northwest to contribute most of the water that fills the Great Lake. The depth of the Great Lake increases from a dry season maximum of 3.6 m to more than 10 m, and the area of open water increases from approximately 2,500-3,000 km², to up to 13,000 km². As water levels fall in the Mekong River in October and November, flows into the Great Lake reverse and much of the water flows out and down the Tonle Sap River. Through the dry season, water from the Great Lake continues to supplement the flow of the Mekong, providing some 16 percent of the dry season flow.
• The water of the Mekong is shared by six countries with each contributing a percentage to its flow.
  

Table 1: Approximate distribution of MRB water resources by country

		Country or Province
	Yunnan Provice, PRC	Myanmar	Lao PDR	Thailand	Cambodia	Viet Nam	Mekong River Basin
Catchment area as % of MRB	22	3	25	223	19	8	100
Average flow (m3/sec) from area	2410	300	5270	2560	2860	1660	15,060
Average flow as % of total	16	2	35	18	18	11	100

 

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Integrated Water Resources Management

The orientation of the Mekong Programme, such as endorsed at the MRC’s 11th Ministerial Council meeting of 8-9 December 2004 in Vientiane, Lao PDR, is to implement Integrated Water Resources Management (IWRM) at basin scale as a means to alleviate poverty and to enhance economic growth in the scope of the millennium goals.

The concept of Integrated Water Resources Development and Management is not new and has been promoted during the Earth Summit held in Rio De Janeiro in 1992. Later, the Global Water Partnership (GWP) defined IWRM as: “a process which promotes the coordinated development and management of water, land and related resources, in order to maximise the resultant economic and social welfare in an equitable manner without compromising the sustainability of vital ecosystems.” This approach allows for a holistic view of the needs and interests of the countries sharing the river system. With this approach, the MRC believes a well-balanced, equitable and sustainable development process can be facilitated — for the mutual benefit of all Mekong riparian countries.

On this basis, the MRC is currently preparing its Strategic Plan 2006 – 2010, addressing in a holistic way the development needs in the areas of navigation, flood management, fisheries, irrigation, hydropower, environment management, watershed management, tourism, and capacity development.

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