Innovative Solution

Governance, estuaries, IWRM, transboundary cooperation

policy

Institutional

The need of a multilevel governance model for estuaries in a transboundary context is well known (according to UN/ECE[1], there are 13 transboundary estuaries in Europe). A new model requires the implementation of a new policy, taking into account good governance practices and the specific reality of the estuary itself. Besides, the governance model should promote the active participation of stakeholders and the general public in the decision-making processes. A common vision for the sustainable development of the estuary, a governance body for the joint integrated management, as well as a plan for the estuary management are all strategic pillars for good transboundary estuaries governance. Therefore, it is proposed a mechanism based on five key measures and in their relationship with each other, as depicted in the figure (on attachment).

The creation of a Joint Strategic Vision for the Sustainable Development of the Estuary, hereinafter referred as “Vision”, is the first strategic step for the development of an effective governance model for an estuary. The main goal of this Vision is to propose a direction to increase efforts to ensure a long term solution to the known environmental problems of the estuary and the social and economic development of the region. The vision should be presented within a wide time horizon and to reflect the highest political commitment between the involved countries.  

The second strategic step is an institutional adjustment if efficiency and effectiveness is not attained with the current institutions. The entire governance system around the estuary involves too many entities in the same horizontal level. In addition, the functions and responsibilities are distributed in very different ways in both countries. The idea that emerges from the outset and that seems to match more feasible, is to create a combined body for the estuary governance, in order to ensure cross-institutional support and coordination between all entities involved in the governance of the estuary. The three possible scenarios that seem to be the most favorable at the outset are:

• Working Group – creation of a joint working group consisting of human and technical resources from both the River Basin Administration on both countries, in equal number, permanent and essentially with executive functions. It would have not administrative and financial autonomy.
• Sub-committee for the Estuary – creation of a combined governance body, as a sub-committee on the specific organizational structure of the institution or platform responsible for the water cooperation between both countries. 
• Committee on the Minho Estuary – creation of a new governance body within the Vision for the Estuary or bilateral agreement, jointly and independently, responsible for the governance action. This is a committee with administrative and financial autonomy, its own human and technical resources and its own legal personality, at bilateral level between the two countries. The main advantage would be the neutrality and impartiality of this new governance body, which would certainly bring a new perspective and attitude towards the estuary governance.

In parallel, it should be created an Estuary Council as advisory board. In fact, that is intend that the Estuary Council has functions and responsibilities similar to the Council of Hydrographic Region, but adapted to the reality of the estuary and its transboundary context. In this Council should be represented all interested parties (stakeholders) of the estuary, particularly the main governing bodies from both parties linked to the estuary, as well as technical organizations, scientific and non-governmental representative of the estuary uses and users.

Finally, it is essential the figure of a Plan for the estuary. This plan would ensure a unified and integrated approach to preserving the values and functions, and it should be a preventive instrument and conflict mediator, one of the pillars of governance, whereby on its preparation the Hydrographic Region Management Plan should be taken into account.

This model framework was developed, with some extra specifications, to the Minho estuary (a estuary in transboundary context between the north of Portugal and the south of Galicia region, in Spain). Therefore, may be the basis for the development of a governance model that should be applied to any international estuary. 

This governance model has been developed by the Faculty of Engineering from the University of Oporto and the University of Minho on behalf of the River Basin Authority of Minho-Lima in Portugal. 

The river basin water district administrations should be the responsible for starting the implementation of this governance model. An institution or a platform responsible for the water cooperation between both countries involved should be strategic in this model implementation. However, it is very important to have the governments’ commitment and support (at a highest level) from the beginning of the implementation. Once created, the governance body, with the Estuary Council’s support, should become responsible to proceed and follow-up the model’s implementation al local level (in the field). Only then it could be possible to ensure a continuous improvement. 

This governance model as it is presented here was intended to be applied in the Minho estuary, a transboundary estuary between the north of Portugal and the south of Galicia region, in Spain. Besides some original ideas and the originality of the model in a whole, this proposed methodology is based on benchmarking, on the evaluation of governance models based on key indicators and on search for good practices from Danube, Oder and Scheldt estuaries, all European waters under the Water Frame Directive’s umbrella. 

In a world where water resources are crucial, governance and integrated management are the major challenges. Moreover, estuaries are one of the most important parts of the river basins, because of their ecological, social, economic and cultural value and strategic importance.

This challenge is higher when it comes to international water resources, as in the case of estuaries in transboundary context, where cooperation should be the motto to have a governance model that enables a truly integrated management. In this particular case, the proposed governance model must be based on the three fundamental objectives for the estuary’s sustainable development, namely, (1) preservation and protection of natural values and sustainable use of resources, (2) growth and affirmation of estuary, in terms of socio-economics, (3) improvement of the institutional and governmental framework. The existence of a governance model for estuaries in transboundary context will be an important step (sometimes the first step) to promote the real cooperation (the ‘working together’ approach) towards the integrated water resources management and good water governance. The estuaries are just a particular case, but could be also an important starting point to reach the goals of the integrated management and the good governance.

(see above)

A methodology for monitoring and evaluation of the governance model and to enable the continuous improvement is mandatory. This methodology should consider key indicators, quantifiable and based on DPSIR model, so in the end it could be possible to obtain an Estuary Global Quality Index, dimensionless in order to be comparable. The use of Governance, Socio-Economic and Environmental indicators should be considered, to obtain an overall assessment of the estuary’s state and impacts (if they are positive or negative) caused by the governmental actions.   

Decision-makers, especially countries and/or state governments, administrative authorities and governance bodies, related with, or responsible for, water resources management from countries and/or states with estuaries in transboundary context. These bases for development of this kind of governance model could also interest to environmental non-governmental organizations (at all levels), environmental agencies, municipalities, local communities and other stakeholders to the estuaries in transboundary context. These bases will help them to develop and implement a governance model to an estuary in transboundary context.

As posted before, this methodology was designed to help developing a governance model which enables a truly integrated management to estuaries in transboundary context case, where cooperation should be the motto. It is possible that this could be easier applied between countries that belong to the European Union and that are running the Water Frame Directive. However, besides harder to apply, the gain will be wider when apply this to transboundary estuaries outside the European Union. This could be a big first step to the conflict resolution and it could bring harmony and peace.

Besides some original ideas and the originality of the model in a whole, this proposed is based on a benchmarking approach, comparing good practices from Danube, Oder and Scheldt estuaries with Minho estuary.

The necessary investment depends on the appliance context. It won’t be necessary a bigger investment if using and sharing existing capacities, knowledge and expertise, with new insights from the stakeholders. 

The organizations/institutions we think should commit to this solution in priority are especially the water administration bodies, either the estuarine stakeholders. It is very important that the first commitment should be done by the higher governmental  bodies from both Parties on estuary, e.g. Ministries, Head of State, etc. 

Pre studies at scientific  level (university level) were done by the Faculty of Engineering from the University of Oporto and the University of Minho on behalf of the River Basin Authority of Minho-Lima in Portugal. 

Eng. Pedro Branco (FEUP[1] – Portugal) – ega06047@fe.up.pt / eng.pedrobranco@gmail.com

Prof. António Guerreiro de Brito (Minho University – Portugal) – agbrito@deb.uminho.pt

Prof. Rodrigo Maia (FEUP – Portugal) – rmaia@fe.up.pt

As an attachment, I am sending the original document for this solution, where it would possible to see the figure (representative scheme) that is essential to understand this governance model description.