Robert Gordon University
The Scott Sutherland School Session 2016-2017
SUM 500: Dissertation
Final Research – January 16th 2017
Course: MSc Construction Project Management
Research Title: Integrated Water Resource Management (IWRM). A Local
Perspective into Qatar’s Perception, Implementation and Practice.
Student: Fadl Slim
Matric No: 1217075
Supervisor: Dr. Amar Bennadji
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Integrated Water Resource Management (IWRM). A Local
Perspective into Qatar’s Perception, Implementation and Practice.
By: Fadl Ghassan Slim
January 2017
This report is submitted in partial fulfilment of the requirements for the degree of Master of
Construction Project Management at The Robert Gordon University, Aberdeen.
ii
Abstract
Integrated Water Resources Management (IWRM) as a process has enthused a range
of positive international debate following its becoming the one paradigm being
globally promoted by institutions and water professionals to answer to the multidimensional, multi-sectoral and multi-regional water issues. Despite it becoming a
commonplace concept in many countries that seek to address critical water resource
management issues and water shortages, the extent to which it is being adopted in
the affluent State of Qatar remains unknown with little evidence to indicate that
progress has been achieved in embracing an IWRM plan that is attuned to Qatar’s
needs.
This study explored the perception of IWRM and the factors impeding the adoption of
Integrated Water Resource Management as a process for managing the water
resources and addressing the critical water-shortage problems in Qatar. A
comprehensive qualitative literature review was carried out to seek out critical
information about the subject of IWRM. Several challenges and barriers were
identified from literature and used in exploratory interviews with industry experts in
Qatar to investigate the relevance of each. A survey questionnaire was prepared and
commissioned with water experts and practitioners from various backgrounds
ranging from government representatives, property developers, consultants and
contractors who are all involved in water development and management.
The interviews were prudent to help identify the level of awareness and the top three
factors hindering the adoption and application of IWRM in Qatar. The results revealed
that participants were mostly familiar with the concept of IWRM however only 40%
said they were well-versed. The results also indicated that human capacity building
(80%) is the number one reason preventing a full-fledge development of IWRM
followed by the fragmental and piecemeal approach towards managing water
resources (60%) and lastly, the ineffective management of water-related data and
information (50%). The clear majority felt that the current legal framework in place
comprised of policies and legislation that promote that concept of IWRM. The study
also showed an urgent need in Qatar for education and promotion of IWRM concepts
and principles at the level of water practitioners as well as the civil society and general
public.
In conclusion recommendations on improvements, emphasis and strategic direction
to attain IWRM plan in Qatar were drawn out and discussed.
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ACKNOWLEDGEMENTS
First, I would like to express my sincere gratitude to my supervisor Dr. Amar Bennadji
for the continuous support throughout my research study and for his patience,
valuable input, enthusiasm, and immense knowledge. His guidance helped me in
directing my research towards the right path and to make the most out of the vast
amount of information out there for a true learning experience. The sustainable
development course he teaches, made me realize more than ever the need to
implement a better construction procurement strategy that promotes environmental
awareness and even made me contemplate pursuing further the sustainable
development arena in the future.
Besides my supervisor, I would like to thank Dr. Quazi Zaman, Dr. David Moore and
Toni Fisher for their encouragement, insightful comments, and support in making the
Msc. Of Construction Project Management courses as enjoyable and beneficial as they
are.
Last but not the least, I would like to thank my wife, Nadine, for her support in
providing the suitable atmosphere needed to make this journey a successful venture.
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Contents
1.0 Introduction ............................................................................................................................................ 1
2.0 Review of Literature................................................................................................................................ 3
3.0 Chapter one ............................................................................................................................................ 4
3.1 Definition of Integrated Water Resource Management (IWRM): Similarities and variances in
defining IWRM .......................................................................................................................................... 4
3.2 Background to IWRM and its Main Principles .................................................................................... 6
3.2.1 Context for IWRM ........................................................................................................................ 6
3.2.2 Main Principles of IWRM and Interpretations in Academic Literature........................................ 8
3.3 The drivers and benefits to implementing IWRM in general and Qatar in particular. ....................... 9
3.3.1 Similarity in the Approach to IWRM ............................................................................................ 9
3.3.2 Common Issues: Drivers and Benefits ....................................................................................... 10
3.3.3 Differences or contradiction of statements by previous writers ............................................... 12
3.4 Critiquing the literature on Drivers and Benefits.............................................................................. 14
3.5 Chapter Review ................................................................................................................................. 15
4.0 Chapter two .......................................................................................................................................... 18
4.1 Literature review into the challenges and barriers impeding the application of IWRM .................. 18
4.2 Common Difficulties.......................................................................................................................... 18
4.2.1 Overly broad principles – The What’s? ...................................................................................... 18
4.2.2 Vague Implementation Strategies – The How’s? ....................................................................... 19
4.2.3 Data Management ..................................................................................................................... 20
4.3 Differences in statements ................................................................................................................. 21
4.3.1 The integration challenge .......................................................................................................... 21
4.3.2 The stakeholder participation challenge ................................................................................... 23
4.4 Critiquing the literature on Challenges and Barriers ........................................................................ 24
4.5 Chapter Review ................................................................................................................................. 25
5.0 Chapter Three ....................................................................................................................................... 28
5.1 Feasibility of implementing IWRM in Qatar...................................................................................... 28
5.2 Scope of the Chapter ........................................................................................................................ 29
5.3 Similarities in literature on what constitute requisites for successful implementation................... 29
5.4 Common actions related to successful implementation .................................................................. 30
5.4.1 The Enabling Environment Pillar ................................................................................................ 31
5.4.2 The Institutional Roles ............................................................................................................... 33
5.4.3 The Management Instruments .................................................................................................. 37
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5.5 Variances in the statements about the requisites for successful implementation of IWRM ........... 38
5.6 Critiquing the Literature on Successful Implementation .................................................................. 38
5.7 Chapter Review ................................................................................................................................. 39
6.0 Chapter Four ......................................................................................................................................... 41
6.1 Research Design and Methodology .................................................................................................. 41
6.2 Research Design Overview ................................................................................................................ 41
6.3 Population and Sample Selection ..................................................................................................... 42
6.4 Questionnaire Development............................................................................................................. 42
6.4.1 Concept Awareness.................................................................................................................... 43
6.4.2 Management Approach: ............................................................................................................ 43
6.4.3 Policy and legislation.................................................................................................................. 43
6.4.4 Institutional roles ....................................................................................................................... 43
6.4.5 Data management ..................................................................................................................... 44
6.5 Research questions and the reasoning behind each ........................................................................ 44
6.6 Variables & Attributes ....................................................................................................................... 48
6.7 Data Collection .................................................................................................................................. 49
6.8 Data Analysis ..................................................................................................................................... 50
6.9 Summary ........................................................................................................................................... 51
7.0 Chapter Five .......................................................................................................................................... 52
7.1 Presentation and analysis of data ..................................................................................................... 52
7.2 Questions and analysis...................................................................................................................... 52
7.3 Summary ........................................................................................................................................... 62
8.0 Chapter Six ............................................................................................................................................ 63
8.1 Discussion and recommendations for future action ........................................................................ 63
8.1.1 Lack of Capacity Building............................................................................................................ 64
8.1.2 Restrictive approach to Water Resource Management ............................................................ 65
8.1.3 Management of Water-related Data ......................................................................................... 66
8.2 Conclusion ......................................................................................................................................... 67
9.0 List of References .................................................................................................................................. 69
10.0 Annexures ........................................................................................................................................... 75
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List of Figures
Figure 1: The IWRM Cross Sectoral Integration: Courtesy GWP (2010) ....................................................... 5
Figure 2: Evolution of IWRM - Courtesy Grigg (2008)................................................................................... 6
Figure 3: Map of the GCC Member States – Courtesy Fanack.com (2014) ................................................ 28
Figure 4: The IWRM implementation Framework – Courtesy GWP-TAC (2000). ....................................... 30
Figure 5: Map of the UN-ESCWA participating Member States – Courtesy Klingbeil (2010) ..................... 31
Figure 6: Question # 1 Frequency Chart ..................................................................................................... 52
Figure 7: Question # 2 Frequency Chart ..................................................................................................... 53
Figure 8: Question #3 Frequency Chart ...................................................................................................... 54
Figure 9: Question #4 Frequency Chart ...................................................................................................... 55
Figure 10: Question # 5 Frequency Chart ................................................................................................... 56
Figure 11: Questions # 2-4 Frequency Chart .............................................................................................. 57
Figure 12: Question # 6 Frequency Chart ................................................................................................... 57
Figure 13: Question # 7 Frequency Chart .................................................................................................. 58
Figure 14: Question # 8 Frequency Chart ................................................................................................... 59
Figure 15: Question # 9 Frequency Chart ................................................................................................... 60
Figure 16: Question # 10 Frequency Chart ................................................................................................ 61
List of Tables
Table 1: Variables and attributes ................................................................................................................ 48
Table 2: Frquency table for non-numerical data ........................................................................................ 51
List of Abbreviations
CRU
Climatic Research Unit
EPA
Environmental Protection Agency
ESCWA
United Nations – Economic and Social Commission for East Asia
FANRPAN
Food Agriculture and Natural Resources Policy Analysis Network
GCC
Gulf Cooperation Council
GWP
Global Water Partnership
IWRM
Integrated Water Resource Management
KAHRAMAA Qatar General Electrical and Water Authority – Portmanteau
LNG
Liquefied Natural Gas
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MOWE
Ministry of Water & Electricity – Kingdom of Saudi Arabia
NARBO
Network of Asian River Basin Organizations
NWC
National Water Company – Kingdom of Saudi Arabia
PPP
Private Public Partnership
PWRC
Permanent Water Resources Committee
QEERI
Qatar Environment and Energy Institute
QNRS
Qatar National Research Strategy
TAC
Technical Advisory Committee
TARSHEED
National Campaign for the Conservation and Efficient Use of Water and Electricity in Qatar
TVA
Tennessee Valley Authority
UEA
University of East Anglia
UNDP
United Nations Development Program
WRC
Water Resource Commission
WSSD
World Summit on Sustainable Development
WWC
World Water Council
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1.0 Introduction
The State of Qatar today is witnessing exceptionally high economic growth and
significant population increase owing this to the development of the hydrocarbon
sector, namely the Liquefied Natural Gas (LNG) that has made Qatar one of the
richest countries in the world with GDP per capita at USD 96,732.4 in 2014 (World
Bank, 2014).
It has further been ascertained that Doha, the capital of Qatar, was, blessed with
generous oil and particularly gas reserves, which prompted the country to undertake
urban mega-projects and expensive land reclamations which have increased the
built-up area in the capital region by 60 times (Agatino Rizzo, 2013).
The above development trends however, provide huge difficulties in terms of planning
and delivering adequate services in general and water provisions in particular, to
current and future generations. This is especially true considering Qatar is known to
have one of the world’s lowest levels of rainfall at 74mm (World Bank, 2012) and is
ranked among the highest in water consumption rates per capita. According to
Qatar’s inter-ministerial Permanent Population Committee, residents consume 675
litres of water per capita per day, about twice the average consumption in the
European Union (QEWC, 2014).
When combined with the pressures from economic growth and major population
change, the low rainfall and high consumption rates make the water resource
management in Qatar a tremendous challenge. These profound effects on water
resources demand that Qatar tackles the need to manage this conundrum more
responsibly.
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Accordingly, Integrated Water Resource Management (IWRM) is a vital concept that
needs to be investigated within the Qatari context as one process that can answer to
the water demand challenges for more efficient and sustainable water resource
management in Qatar.
2
2.0 Review of Literature
A qualitative literature review is chosen to ensure comprehensive coverage of earlier
studies and researches published in relation Integrated Water Resource Management
(IWRM) in general and within the State of Qatar where available. The intent is to
critically analyze and compare studies into various aspects of IWRM to seek out
similarities in the approach, common issues, differences and advantages. The same
was presented in the following 3 Chapters:
Chapter - 1: Definition of IWRM and examination of the drivers and benefits to
implementing the process in general and Qatar in particular;
Chapter - 2: IWRM Challenges and barriers;
Chapter - 3: Feasibility of implementing IWRM in Qatar and improvement
strategies.
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3.0 Chapter one
3.1 Definition of Integrated Water Resource Management (IWRM):
Similarities and variances in defining IWRM
A review of the literature about the definition shows that IWRM is often referred to
as a process and seldom a scientific theory or a product. It has been frequently
termed almost invariably by various International Organizations, UNESCO-IHP
(2009), GWP (2000) and Environmental Agencies, EPA (2012) and others concerned
with management of water resources for sustainable and equitable development.
Perhaps the most commonly used and widely accepted definition is best coined by
the Global Water Partnership (GWP) in which it’s defined as, ‘a process which
promotes the coordinated development and management of water, land and related
resources in order to maximise economic and social welfare in an equitable manner
without compromising the sustainability of vital ecosystems’ (GWP, 2000). It is
therefore a long-term approach to managing the critical water resources in a manner
that integrates various sectors in a socially responsible manner.
While the GWP and other organizations focus on IWRM as a process that fosters the
coordinated development and management of water and other resources through
integration of various physical (catchment areas), sectoral and organizational
components, some researchers see it as a goal-driven approach that controls the
development and use of water resources only – namely the physical elements such
as water bodies. According to Cardwell et al. (2006), ‘Integrated Water Resource
Management is a coordinated, goal-directed process for controlling the development
and use of river, lake, ocean, wetland, and other water assets’.
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Despite the slight disparity in the definition, overall there appears to be consensus
on the approach and specifically the sectoral integration (Figure-1) as can be
perceived from other definitions such as the one by UNESCO-IHP (2009) which states
that, ‘IWRM is a step-by-step process and takes time. By responding to changing
social, economic and environmental needs or impacts, one can gradually achieve
better and sustainable water resources management as if moving up a spiral, through
such means as progressively developing water resources in the basin, building a more
integrated institutional framework, or improving environmental sustainability’. It can
therefore be deduced that recognizing the inherent interconnection found between
such elements as the nature, the economy and social sectors is the one aspect which
most experts appear to have concurred with at least in theory.
Figure 1: The IWRM Cross Sectoral Integration: Courtesy GWP (2010)
In the case of the state of Qatar, RAND’s Recommended Research Priorities for the
Qatar Foundation’s Environment and Energy Research by Younossi e al. (2011) offers
a similar insight to IWRM as ‘a holistic approach to water management that considers
links between different types of water sources, as well as the links between water
management and other aspects of the economy’. The links referred to in this
definition are similar to those highlighted in the cross-sectoral integration shown in
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the above figure. Hence the focus is on physical, sectoral and organizational
integration.
3.2 Background to IWRM and its Main Principles
3.2.1 Context for IWRM
IWRM is by no means a new process and has been around for some time whereby
the adoption of some of its concepts can be traced as far back to 1977, ‘since the
first global water conference in Mar del Plata (WWAP, 2009). Others claim that its
roots go back to the establishment of the Tennessee Valley Authority (TVA) in 1933
(Adams 2001, Rahaman and Varis 2005) or even back to 1917, when the Flood
Control Act called for ‘a comprehensive study of the watershed’ (Holmes, 1972).
Figure – 2 below shows the evolution of IWRM and the various progression stages
since the early 1900s as chronicled by Grigg (2008).
Figure 2: Evolution of IWRM - Courtesy Grigg (2008)
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However, it was not until 1992 that its practice gained momentum and specifically
following the World Summit on Sustainable Development (WSSD) in 1992 in Rio De
Janeiro.
Since then, IWRM has been the subject of extensive discussions. This has led to it
becoming a pivotal and useful framework for managing water resources to the point
where it was incorporated into laws and regulations within governments of at least
forty different countries. Annexure – 1 provides a non-exhaustive list of the various
countries that have found IWRM concept effective enough to implement across a
wide-range of water management applications as referred to in the UNEP-DHI (2009).
In Qatar, the literature reviewed reveals that the first signs of inclination towards
some form of integration of water resource management transpired as an objective
by ‘The Permanent Water Resources Committee (PWRC)’ which was established in
April 2004 under a decree by H.H. the Amir of the State of Qatar and via Decision
No. 7/2004 of the Council of Ministers (FAO, 2009). Until 2005, IWRM and the extent
of its application remained unknown but likely to progress as highlighted in a report
about ‘Status of IWRM Plans in the Arab Region’ (UNDP, 2005). It wasn’t until the
year 2011 that the subject of IWRM was brought to the forefront of policy-making
and water resource management planning. The limited literature available on the
subject of IWRM in Qatar showed that the process was first brought to light through
a recommendation by RAND Corporation, ‘that the institute help Qatar assess and
potentially adopt an IWRM process that is attuned to Qatar’s needs’ (Younossi, O. et
al., 2011). In October 2012, the Qatar National Research Strategy (QNRS) was
formulated within which ambitious targets aimed at, ‘improving water security
including the quantity, quality and management of water available to Qatar’ (QNRS,
7
2012) – were declared among other objectives. The strategy encompassed key pillars
through which specific actions related to water security and management were
developed for immediate implementation by way of adopting IWRM principles.
3.2.2 Main Principles of IWRM and Interpretations in Academic Literature
While various definitions for IWRM are discussed by various institutions and
researchers as presented above, the take on its Key Principles was somewhat on a
par. Almost all literature (Snellen & Screvel 2004, Lipchin et al. 2006 and Gooch &
Stalnacke 2010) about the process referred to the IWRM Principles stated in the
Dublin Conference of 1992 (International Conference on Water and the Environment).
The four principles relate to different aspects of sustainable development—
environmental, social, economic and institutional (Gooch and Stalnacke 2010). The
Principles that were quoted in most literature are:
‘Principle No. 1 - Fresh water is a finite and vulnerable resource, essential to
sustain life, development and the environment;
Principle No. 2 - Water development and management should be based on a
participatory approach, involving users, planners and policy-makers at all
levels;
Principle No. 3 - Women play a central part in the provision, management
and safeguarding of water;
Principle No. 4 - Water has an economic value in all its competing uses and
should be recognized as an economic good’ (ICWE, 1992).
Nonetheless, the consensus observed on the reference to key Principles is not
necessarily echoed in their analysis and interpretation. For instance, (Biswas 2004)
seems critical of the Principles’ broad, ‘all-catch’ nature and dubbed them ‘un8
implementable’. Whereas (Kidd and Shaw 2007) argued that the IWRM principles
have emerged as the dominant paradigms to tackle specific problems water resource
management practices which deems their implementation critical for addressing
specific water management problems albeit not as a universal blueprint.
The RAND report on the state of Qatar appears to have taken a neutral approach to
the Principles whereby the authors gave considerable weight to Principle No.2 and
Principle No.4 above and somewhat ignored the other two Principles and particularly
the one related to the role women could play in managing water resources perhaps
due to social or cultural values. For instance, the report outlines that, ‘there might
be hydrologic ties between different sources of water, making their joint management
necessary’ and that ‘land-use planning issues, in particular, can be tightly linked to
water management’ (Younossi, O. et al., 2011) which are both based on Principle
No.2 in relation to participatory approach. Similarly, the report referred to
competition between sectors thus insinuating the economic value of water which is
at the core of the 4th Principle. According to Younossi et al., ‘different sectors compete
for water, and supplying water in one sector could limit its availability in another’.
3.3 The drivers and benefits to implementing IWRM in general and Qatar in
particular.
3.3.1 Similarity in the Approach to IWRM
Nearly all literature about IWRM justifies its application by means of emphasizing the
diminishing water resources and the need to reconsider the old premise of centralized
top-down approach vested in governments by another reconciliatory one that fosters
sectoral participation and the coordination between various entities. This is clearly
echoed in the ‘approach that has now been accepted internationally as the way
9
forward for efficient, equitable and sustainable development and management of the
world's limited water resources and for coping with conflicting demands’ (UN-Water,
2008).
Likewise, coalescence is observed in the literature which characterizes the water
situation in Qatar as detrimental from which groundwater is exhausted at rates
beyond replenishment. Thus, it was noticed that academic publications by Shomar
et. al (2013) and Younossi e al. (2011) on the State of Qatar were in congruency that
managing water resources is a very challenging issue that require the need for
integration.
3.3.2 Common Issues: Drivers and Benefits
There are many factors that exacerbate the pressure on the critical water resources
and give rise to the need to implement IWRM. Most literature on IWRM refer mainly
to socio-economic factors. Population growth and a strong and sustainable economy
rank first on the list of drivers and are quoted in almost all literature reviewed.
(Cardwell 2006, Kidd and Shaw 2007, UNEP-DHI, 2009 and Lee, 2013) all refer to
population increase as being the key driver requiring the implementation of IWRM.
The same applies to the case of Qatar in which population growth and sound economic
sustainability from oil revenues are key drivers highlighted in publications as well as
academic literature. The report by RAND states that Qatar is developing and growing
rapidly. Its rich fossil fuel resources have enabled high economic growth during the
past several decades which in turn increases the demand on water resources
(Younossi, O. et al., 2011). Also, the academic literature by Shomar et al. (2013),
which argues for the implementation of IWRM in Qatar, asserted that increasing
population growth coupled with tremendous urbanization and industrialization add
10
more stress to the existing renewable water resources, and newly produced water,
namely desalted seawater and treated wastewater.
In addition to population increase and economic growth, another key driver to
implementing IWRM was discussed extensively in the literature. Many researchers on
IWRM including in Qatar referred to ‘achieving ecological sustainability’ as an
important element that warrants the application of IWRM. (Rahaman & Varis, 2005,
Cardwell et. al 2006, Jakeman, 2011 and Shomar et. al, 2013) all regard the
fundamental purpose of IWRM is to achieve and promote sustainability.
Moreover, the literature reviewed on benefits of IWRM is expansive on the
advantages of adopting the IWRM as a management process. Some literature upholds
IWRM as a strategic resource management tool that facilitates the amalgamation of
knowledge and technology to benefit the water environment. Those mainly view the
concept as a process that aids in the management of both water resources, supply
and demand by means of integrating the natural systems with humans and
technological advances (Jaspers, 2002 and Darwish et. al 2012). The authors of such
literature argue that the interdisciplinary interaction between humans and technology
on one hand and the water environment on the other encourages the maintenance
and appreciation of water quality and quantity in harmony with the latest
technologies for better and efficient water use.
Cardwell et al. (2006) maintain that integrated, collaborative approaches to water
resources management will result in more sustainable water resources development
because they completely reflect societal values and scientific knowledge, and focus
them on solving complex management problems in a more comprehensively
satisfying way. The afore-mentioned is also accentuated by a multitude of case
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studies such as ‘California’s Integrated Regional Water Management’ framework
which supports the underpinnings of IWRM as a process, and demonstrate that
sectoral integration can yield positive outcomes (Bateman and Rancier, 2012).
Maximizing economic and social welfare was another benefit conferred to in variety
of documented sources. Water shortage is viewed by many professionals as closely
inter-related to economic and social wellbeing. It is often contended that all human
activities need water. Thus, availability of water has in more ways than one an impact
on the social and economic developments of the countries especially in regions with
scarce water resources (ESCWA 2004, Seragelddine 2005, Lipchin et al. 2006)
It is further argued that implementing an IWRM approach include better planning and
management of water quality and supply, more cost-efficient management, and
improvements in distribution of water between ecosystem needs and consumptive
uses (Najjar & Collier, 2011). Highly regarded sources such as Technical Advisory
Committee (TAC) of the Global Water Partnership (GWP) share the same view on
IWRM as ‘a process which can assist countries in their endeavour to deal with water
issues in a cost-effective and sustainable way’ (GWP-TAC, 2000).
Similarly, the report on Qatar by RAND claims that it has long been recognized that
IWRM is crucial to the management of water resources and water demands to
maximize economic and social welfare in an equitable manner without compromising
the sustainability of vital ecosystems (Younossi, O. et al., 2011)
3.3.3 Differences or contradiction of statements by previous writers
The holistic nature of IWRM definition was one characteristic that authors of various
literature have debated as to whether this feature makes the implementation less or
more desirable. Opponents to IWRM argue that its definition is non-specific, and
12
somewhat amorphous thus leading to inefficiency during implementation which also
contribute to some of the ambiguity surrounding the process. This nebulous feat,
provides little agreement on fundamental issues since little evidence is available to
warrant that the efficacy of the IWRM approach and what aspects should be
integrated, how, by whom, or even if such integration in a wider sense is possible?
(Braga 2001, Biswas 2004, Merrey 2006, Biswas 2008)
On the other hand, many of the proponents of the IWRM view the process to be
comprehensive, interconnected, strategic, and interactive/coordinative. It is argued
that this broad definition acts as an enabler to provide a common language, facilitate
policy discussions, catalogue management practices, and support education and
capacity building (Born M and Sonzogni C. 1995, Bellamy and Johnson 2000, Grigg,
2014).
Whether or not the scope in the definition of IWRM by the GWP is too broad, it appears
that writers of the few publications about IWRM in Qatar were in favor of adopting
the all-inclusive, holistic connotation. Since the water system in Qatar is
interconnected, optimizing its management through a balanced supply-demand
approach would be part of a broader integrated water resource management plan as
argued by the authors of the RAND report. Furthermore, the panel observations
highlighted in the RAND report clearly indicate that Qatar must institutionalize
ongoing IWRM that considers the relationships between demand from different
sectors, different supply options, policies, and regulations thus insinuating the wideranging approach to IWRM (Younossi, O. et al., 2011).
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3.4 Critiquing the literature on Drivers and Benefits
The academic literature reviewed is somehow partial as to what constitutes drivers
and benefits. Little information was available to refer to factors other than the socioeconomical and sustainability issues as the main drivers. Most of the academic
literature that argue the benefits of adopting IWRM focus on the concept as means
to address crucial national development or even more critically the environmental
requirements to mitigate the adverse climatic phenomena (sustainability) (Stegen &
Donoso 2015). While some academic literature has shed the light on other factors
such as governance to regulate the development and management of water
resources and the provision of water services almost none made reference to legal
issues in relation to spatial interconnectedness where conflicts emerge around
availability and use of water, its ownership and other issues associated with sharing
this critical resource amongst communities within the same countries, neighboring
countries and even internationally which rely on common sources of water. One of
the few academic literatures, tacitly outlines the legal perspective by mainly focusing
on the need to improve the elements of accountability, transparency and participation
to improve the legal control and framework (Allan, A. and Rieu-Clarke, A. 2010). This
approach was emphasized in an article by Metha and Movik (2014) in which the
authors argued that, ‘the factors that influence emergent ‘allocation discourses’, and
the political economy context within which such discourses emerge, need to come
much more to the fore than is the case at present’.
Almost equally, the socio-political aspects for the Qatari context of IWRM as
presented in the literature were also lacking. Shomar et al. (2013) referred to the
water issue as, ‘multi-dimensional and encompasses a number of social, political, and
14
technical aspects, however, with little explanation as to what comprises the political
aspects and how they travel at multiple scales to impact the IWRM’.
3.5 Chapter Review
Chapter one presented the related literature on IWRM as a water resource
management tool that is ostensibly supposed to propound solutions to the
challenging water shortages issues. It offered an overview of the evolution, spread
and uptake of IWRM as studied by researchers from multilateral perspectives. The
chapter explored the process’s common definition and its key principles. It further
assessed the drivers and analyzed some case studies carried out by water experts,
practitioners and researchers on its benefits.
The first part of the chapter looked at the contemporary definition of IWRM and
showed that while there’s a slight disparity on its holistic approach, unanimity seemed
obvious as to what constitute its key principles as they pertain to integration of
demand processes (society, governance and environment) and supply processes
(technology systems, practitioners and infrastructures). The principles were shown
to have advocated collation of all sources of water in planning; balancing water
quantity and water quality with the environment; fostering the values of equity,
efficiency and public participation in water development with particular emphasis on
the role of women; and finally, encouraging data analysis and sharing across
disciplines and organizations.
Furthermore, the chapter has shown that even though these principles are well
recognized within the community of academic researchers, they were not necessarily
appreciated in the same way by everyone neither did they appear to have formed a
blueprint that can be applied universally. At least one of the 4 principles in relation
15
to the role of women was completely overlooked by authors of the literature that
references IWRM in the state of Qatar and was tacitly touched upon in one other
literature by Shomar et al. (2013) through the subtle reference to cultural
considerations that perhaps contribute to its looming application.
Subsequently, the view into the IWRM history revealed that IWRM is by no means a
new concept and is ever evolving. It showed that quest for a single paradigm for
managing the critical water resources existed for decades and was adopted by many
countries and organizations worldwide before an international conglomerate was
formed and the new paradigm became known as Integrated Water Resource
Management (IWRM).
The second part of the chapter examined the aspects through which socio-economic
factors
such
as
population
increase,
economic
growth
and
environmental
sustainability were identified as key drivers. The three main drivers were emphasized
in almost every literature reviewed. However, the literature review of these drivers
has brought to the fore the complexity of having to manage the one resource (water)
that is critical to all aspects of life which will be discussed in Chapter 2 of the literature
review.
In addition to the drivers, three main benefits were highlighted in the literature which
are outlined as 1- Integration; 2- Efficiency; and 3- Social Equity. The integration is
identified as the interaction between human and natural systems. Efficiency refers to
the distribution or allocation of water in the most economical way. Finally, Social
Equity is implied in the participatory approach which most academic literature
expressed as the ability of the different stakeholders to have equal access to water
in adequate quantity and quality.
16
The 3rd part intended to discuss the varying opinions about the process from the
perspective of practitioners and academic literature. This objective has gleaned a
wide range of views oscillating between those who are in favor of its comprehensive,
holistic nature and others who are critical of its all-encompassing approach that is
hampering the full implementation based on a basic framework. Furthermore, the
review has shown that in Qatar, the consensus predominantly veered towards
adopting IWRM in its broad definition.
Lastly, the critique section focused on an item which the literature did not appear to
have considered as one of the key drivers to IWRM. The review aimed at highlighting
the issues related to conflicts over water which are believed to be a major threat to
peace and stability, especially in arid regions of the world.
17
4.0 Chapter two
4.1 Literature review into the challenges and barriers impeding the
application of IWRM
The drivers into the implementation of IWRM as discussed in the previous chapter
made IWRM the quasi-panacea to tackle the issues related to water crisis perhaps on
a global scale. This notion has encouraged many in the academic as well as the
practical world to explore and examine the process and its principles even more
through researches, dissertations, guidelines and manuals. The growing body of
investigation into IWRM has highlighted many challenges and barriers preventing its
application. This chapter is intended to review the difficulties appraised by literature,
their commonalities, similarities and differences as studied by various writers,
promoters and adversaries.
4.2 Common Difficulties
4.2.1 Overly broad principles – The What’s?
The Dublin principles identified in the previous chapter tend to exhibit mainly the
following 4 characteristics: 1- Water is a limited resource and shall be treated as
such, 2- Promote Integration and Participation, 3- Encourage Decentralization and 4Improve Economic Sustainability. The wide literature on the difficulties agrees that
while the process is desirable as it seeks to resolve a multi-dimensional, multisectoral and multi-regional problem through multilateral integration and effort
coordination, it falls short of providing a mechanism for implementation to achieve
real world results.
18
It is often argued by IWRM critics that the principles are broad and often difficult to
implement in practice due to their far reaching, Nirvana-like aims (Biswas 2004, Molle
2008, Mehta and Movik, 2014). It is further asserted that these principles are too
idealistic and the likelihood of full-fledged application is unrealistic in the absence of
measurable parameters that need to be monitored to indicate that a water resources
system is functioning in an integrated manner, or a transition is about to occur from
an integrated to an ‘unintegrated’ stage, or vice versa (Biswas, 2008).
The same ambiguity argued above is echoed in the limited literature found about
IWRM in Qatar. Shomar et al. (2014) state that current plans for integrated water
resources management (IWRM) in Qatar cannot answer the basic questions about
what to manage and in which scale insinuating a meagre outlining of any plans in
relation to the IWRM principles by the authorities having jurisdiction.
4.2.2 Vague Implementation Strategies – The How’s?
Another common difficulty is resonated in the literature in which researchers
frequently note that IWRM-specific strategies are usually absent and whenever they
exist in national policies, there’s often a gap between the developed IWRM-specific
strategies and their practice. Policy adaptation and implementation are among the
difficulties that are identified in the literature aimed at the achievement of the IWRM
objectives. It is contended that policy change alone is inadequate and that policy
makers are long on roadmaps and short on actions (Rahman & Varis 2005, Biswas
2008). The writers of various articles and publications agree that providing a
comprehensive framework for the integrated management of water resources is the
first step which must be re-enforced by legal regimes governing water resources for
better implementation. This gap between policy setting and implementation is
19
considered significant so much it was at the heart of International Conference on
Freshwater – Bonn 2001 which aimed at identifying solutions to the impending
global water problems. The conference reviewed all previous water resources
development principles and recognized that there was often a gap between policy
development and practice (Rahman & Varis 2005).
Furthermore, the literature on policy formulation and reinforcement in relation to
IWRM in Qatar iterates a similar character of vacuum between policy and practice.
Shomar et al. 2014 indicates that integrated water and wastewater management
strategies are absent and the national players of the two sectors -water and
wastewater-are different. Likewise, mutually reinforcing policy and institutional
reforms also dominates two of the critical publications by ESCWA and IWRM in Middle
East which both see the role of water law is to implement and enforce policy and to
provide effective administrative and regulatory mechanisms at appropriate levels
(ESCWA, 2004, Lipchin et al. 2006).
4.2.3 Data Management
Several sources maintain that despite it being a popular tool, IWRM remains hard to
implement largely due to the sheer magnitude and type of information that must be
integrated to support the management instruments required which varies between
different countries. It is understood that many countries have managed to adopt
IWRM to a certain extent as presented earlier in the review. Others have also
incorporated IWRM theories into legal doctrines to comply with the Plan of
Implementation of the World Summit on Sustainable Development held in
Johannesburg in 2005. Those who contend the extent of IWRM application indicate
that the actual implementation of the various aspects of it to support the day-to-day
20
water management in most countries is a long way off (Biswas, 2008 and McDonnell,
2008). This is mainly due to the fragmented nature of data about water resources
whereby little or no data, mainly socio-economic, are readily available in the format
that can be rationalized to sustain IWRM efforts. Both (Abdulrazzak, 1994 and Mc
Donnell, 2008) maintain that perhaps one of the biggest limitations to truly integrated
IWRM is the poor availability and fragmentation of socio-economic data.
Furthermore, Abdulrazzak (1994) argues that efficient assessment and management
of the limited water resources in this region (GCC), which Qatar is a major part of,
require the collection of reliable water resource information. Likewise, Mc Donnell
shares the same approach albeit at a global scale and assert that for informed
decisions to be made in IWRM, both reliable and timely data must be available for all
the aspects of the base area in general (MCDonnell, 2008).
The view on information requirement in Qatar is no different. For instance,
information regarding the modeling and control of wastewater treatment processes
and desalination plants are critically needed for a successful IWRM (Shomar et. al,
2014). This argument augments that developing methods and systems that can
support the information required for integrated decision making are crucial to the
implementation IWRM.
4.3 Differences in statements
4.3.1 The integration challenge
As a result of what some may consider ‘vagueness’ portrayed in the IWRM principles,
many difficulties are discussed in literature which are shared amongst writers
disputing the process’ achievements.
21
For instance, integration bears many aspects and its execution and efficiency are
argued by few academic researchers as not always successful and having the
potential to complicate water resource management. According to its criticizers, this
is mainly due to the difficulty arising from integrating various elements across several
spheres. Some sources in the literature maintain that integration takes many forms
to
enable
interconnectedness
between
sectors,
disciplines,
and
institutions
(Svendsen et al. & Cardwell et al, 2006). Hence, for integration to be advantageous,
policies must be set in place that would govern the multi-lateral integration. However,
critics of integration, believe that since integration creates interdependencies
between variable stakeholders and institutions, its efficacy would then depend on the
effectiveness of governance which is inundated with institutional barriers (Grigg,
2008). It then follows that while the main principle of IWRM that fosters integration
and participation is paramount, implementing it becomes difficult because of poor
governance. The problems with institutional barriers and poor governance are further
heightened when integration management is effected between two or more resources
that are run by institutions that have been historic rivals (Biswas, 2008).
On the other hand, the review of the literature about IWRM in Qatar and the GCC
region for instance, refers to fragmented institutional infrastructure as a common
difficulty and in contrast to the view by writers of various literature above, this faction
of writers see integration as beneficial. It is noted in such literature that the
fragmentation of the institutions managing the water resources is what is preventing
a proper water resource management especially since the approaches to water
resources management are interrelated. Furthermore, the writers claim that one
aspect where integration is beneficial is in the case of data sharing and availability.
Concrete
integration
between
various
sectors
normally
compounded
by
22
communication silos can facilitate the collection and dissemination of data needed to
enhance its processing and uptake for better management. Abdulrazzak (1994)
maintains that emphasis should be placed on integration of systems to promote
interaction among projects in different sectors within the same country as well as
regionally between GCC member states. It is further argued that integration is the
most suitable means that can allow existing data collection networks to be expanded
to include areas within the GCC and elsewhere that have the potential for water
resource development (Abdulrazzak 1994 and Lipchin et al. 2006).
4.3.2 The stakeholder participation challenge
Stakeholder participation is yet another challenge in which literature appears divisive
as to the level of participants to be involved. Participatory water management
approaches are entrenched in almost every academic research, case studies and/or
NGO publications reviewed that promote IWRM. The assertion predominantly
encourages consultation with and active participation by ordinary citizens at various
levels in the in the decision-making process relating to water management issues
(UNESCO, 2015; Shomar et al. 2014; Bateman and Rancier, 2012; ESCWA, 2004).
Despite the above, review of erstwhile as well as current literature show that public
participation remains a rarity in the development of water management plans
especially those endorsing IWRM. Instead emphasis is put on the participation of
namely government agencies as well as involvement of local professionals and
researchers to ensure continuous updating, improvements and sensitivity to local
conditions (Abdulrazzak, 1994; World Bank, 2005). While no specific information was
available on stakeholder participation in Qatar, a joint report with the UN on capacity
building and management of water resources in the kingdom of Saudi Arabia, another
23
member state in the GCC, refers to improving the legal and regulatory framework
favoring monitoring, coordination and stakeholder participation as means to enhance
the Development of National Integrated Water Resources Management. However, the
recommendation on participation is limited to only the ‘leading institutional
stakeholders’ for prioritizing the project agenda in line with the national development
priorities (UNDP-MOWE, 2012). In other words, participation is merely restricted to
high level stakeholder at ministerial level.
4.4 Critiquing the literature on Challenges and Barriers
The review of literature in this chapter examines challenges and barriers to IWRM
approaches to solving water related issues while at the same time opens up for view
other aspects which remain unheeded. It is my opinion that while many academic as
well as practical publications are able to discern the challenges in IWRM process, very
few can gain credence on or claim to have offered solutions to some of the challenges
and particularly in relation to stakeholder participation at the lower level of the
communities. Most of the articles that advocate stakeholder participation fell short of
providing mechanisms and consultation for public participation. Almost all literature
weighs heavily on tackling and/or promoting participatory management amongst
various levels but seldom offering palpable solutions in a manner that presents
participatory formulae as part of a comprehensive strategy. For instance, the GWP
whose mission statement is to foster an integrated approach to water resources
management (IWRM) asserts that the best strategy to achieve long-term accord and
consensus in water development and management should be based on a participatory
approach, involving users, planners and policy-makers at all levels (GWP-5, 2012).
It then follows that the GWP would offer a pragmatic advice on mechanisms for such
24
involvement by each group identified and specifically the users or vulnerable groups
of population. Instead, it calls on decentralizing decision making to the lowest level
as the only strategy to involve the most vulnerable groups of the population without
offering a ground plan for implementation.
4.5 Chapter Review
The overriding purpose of chapter two aims at unearthing the challenges and barriers
to IWRM from within the literature reviewed. It starts by evaluating what researchers
view in IWRM as daunting challenges to a concept that is now transformed, according
to critics, to an end in itself rather than a mean. The assessment on challenges show
that among the key challenges is the broad and far-reaching nature of IWRM
Principles. It is argued that the means to implement such a holistic approach to water
resource management is not only practically difficult but also politically and thus
impossible.
The chapter then presents two additional challenges which are commonly referred to
in the literature in relation to implementation strategies and managing data. The
resources reviewed about implementation strategies criticize its falling short of
providing pragmatic solutions that focus on specific problems rather than on
universal, water-centered approaches.
Subsequently, the literature review in this chapter continues to explore another
challenge in relation to data management. This challenge is emphasized as
detrimental to successful implementation of IWRM due to the complexities involved
with providing information to support the decision-making process. The literature
identifies factors that contribute to this challenge which are described as mainly
socio-economic. The factors relate to availability of data to multiple users with
25
varying backgrounds as well as accessibility to data which is often limited due to costs
associated with synthesis, analysis and dispersal.
The chapter then moves on to cite varying contentions about the challenges and
perhaps most significantly in relation to the integration challenge which garnered
quite few debates. Whereas some researchers argue the difficulty of integration
others see it as a must. There are those who see integration as a barrier in
implementing IWRM due to its expansive and inclusive boundaries that incorporate
such issues as the environment and ecosystems hence adding perplexity to the ability
of water professionals and relevant stakeholders to handle such integration. This
integration, which according to (Biswas, 2008) is often beyond their knowledge,
expertise and/or legal and institutional control. In contrast, proponents of the
integration process, see it as a positive means to encourage the exchange of skills
and competencies between different administrative levels, government agencies and
departments through sharing of data and to better implement water resource
management.
Another challenge which numerous sources presented differing views on is the
participation challenge. The extent of which groups to involve and at what level is
reflected differently in the literature. Some resources such as GWP, maintain that
water development and management should be based on a participatory approach,
involving users, planners and policy-makers at all levels including ordinary citizens
and the poor population (GWP-5, 2012). Whereas others are seen to give
preferentiality to selective members of society including only relevant stakeholders
such as water practitioners and government agencies and departments.
26
The above disparity in the level of participation casts doubt on a critical attribute
which is noticed to have been overlooked in the literature. Since almost all literature
petitions to the participation of relevant stakeholders, none is seen to offer a
mechanism for its application in a functional manner without it ensuing conflicts due
to discords between different groups.
27
5.0 Chapter Three
5.1 Feasibility of implementing IWRM in Qatar.
The review of the specific literature about the feasibility of implementing IWRM in
Qatar did not divulge much information mainly since IWRM is not hugely heralded as
an empirical concept in the tiny State, hence this exploratory study. Instead and
given the dearth of such information, it was deemed appropriate to explore the
literature on feasibility of implementing IWRM in countries or regions that share
comparable geographical and economic factors as Qatar. This chapter critically
assesses the feasibility of implementing IWRM by means of evaluating the literature
on IWRM implementation elsewhere in the GCC region which comprises the GCC
member states as shown in Figure – 3 as well as the UN-ESCWA region, Figure – 5.
Figure 3: Map of the GCC Member States – Courtesy Fanack.com (2014)
28
5.2 Scope of the Chapter
The chapter starts by looking at the similarities in statements within the literature
about requisites of implementing IWRM in general and the Kingdom of Saudi Arabia
the largest member state in the GCC, in order to determine later on in the study their
feasibility of application in Qatar. It then moves on to identifying common themes
pertaining to implementation. Subsequently, the chapter reviews variances in the
studies or publications about those requisites and then critically appraises notions
that were observed to have been missed out in the literature. The chapter then ends
with an overall review of the integration approach to incorporate policy options that
recognize these pillars and an assessment to developing national water policies.
5.3 Similarities in literature on what constitute requisites for successful
implementation
The feasibility of implementing IWRM in general is often associated with the ‘how-to’
which, as noted in the previous chapters, has garnered lots of criticisms due to its
wide-ranging approach. However, the literature is mostly harmonious with respect to
practical application of IWRM which is often found to be correlated with three main
pillars that make up the requisites for implementation. These pillars are frequently
defined in most literature and technical background papers by GWP and others as, 1The Enabling Environments; 2- The Institutional Roles and 3- the Management
Instruments as shown in figure-4 below.
29
Figure 4: The IWRM implementation Framework – Courtesy GWP-TAC (2000).
Given that IWRM encompasses an integrative approach, its implementation
necessitates an amalgamation of the enabling environment, the institutional
framework and the management instruments which are equally important to IWRM.
Since ignoring any one of these could imperil any IWRM system, putting IWRM into
practice requires a holistic integration of all three elements (Anukularmphai, 2010).
5.4 Common actions related to successful implementation
The review into the successful practice of IWRM reveals that countries which have
progressed in their implementation strategies have, to a certain extent achieved
some level of success in effectuating change by means of integrating the 3 pillars
albeit to varying degrees. Several resources maintain that successful implementation
involves a balance between conditions for multi-year IWRM planning processes
resulting in new national policies, strategies and laws (Enabling Environment),
desirable socio-economic development (Institutional Roles) and reform regulations,
30
monitoring and enforcement systems (Management Instruments) (Mimi, Z. 2004 &
WRC 2008). The afore-mentioned heightens the ability of water stakeholders to
tackle specific water resource development issues all while optimizing the ability of
water resources to contribute towards social, economic and ecological considerations.
5.4.1 The Enabling Environment Pillar
The ESCWA region high level briefing, published by the United Nations on enhancing
the application of IWRM, maintains that ‘appropriate national and regional policies
are the foundation for effective IWRM application. Policy development gives an
opportunity for setting national objectives for managing water resources and water
services delivery within a framework of overall development objectives’ (ESCWA,
2004).
Figure 5: Map of the UN-ESCWA participating Member States – Courtesy Klingbeil (2010)
31
Given that Qatar’s geographic location falls within the ESCWA dominion and since it
maintains an active membership in the Gulf Countries Council (GCC) and the Arab
League, it was critical for the feasibility of implementing IWRM to be assessed based
on the experiences and/or publications that focus on regional practice. The review of
the literature shows that the Enabling Environment by means of setting national
water strategies and policies that consider IWRM concepts have been initiated in the
GCC and few other Arab countries in the ESCWA region not so long ago. It also shows
that some countries like Saudi Arabia have become well versed with the enabling
environment whereby policy development is considered to have reached an advanced
stage.
For example, the Kingdom which share with Qatar its petro-dollar based economy
and water shortages due to lack of rainfall, has undertaken legislative and
institutional measures in line with IWRM process in its latest Comprehensive Water
Act and regulations following the formation of the National Water Company (NWC) in
2008 which earned the country a nomination for King Hassan II Great World Water
Prize in 2012 (WWC, 2016). The change in the legislation has led to new policies
being formulated in accordance to the IWRM principle No. 2 which advocates
integration as shown in the following policy which calls for the:
‘Harmonization of all strategies by creating horizontal linkages across government
agencies to find the best possible solution to the water allocation problem. Conflicting
interests can be reconciled by establishing technical and political coordination so that
a coordinated approach to development can be implemented. Coordination is
achieved by setting up an integrated water planning process; the instance when all
water related agencies gather (at the technical level) to bring into line water demands
32
with water availability, yielding as output unambiguous instructions for bulk water
allocation (WWC, 2016).
5.4.2 The Institutional Roles
5.4.2.1 Creating an organizational framework: forms and functions
Another commonality in the literature is in the need to create an organizational
framework: forms and functions. Congruency on organizational framework is noted
amongst a myriad of publications and/or institutions as follows:
A review of the IWRM ToolBox prepared by GWP, designed to offer detailed guidance
on IWRM, shows that ‘from the perspective of reform of institutions for better water
governance, the practitioner needs to develop the required organisations and
institutions that are integrative, coherent and transparent. Furthermore, the
institutions which include regulatory bodies, local authorities shall promote
governance reforms, legislation, river basin organizations, water utilities, and a range
of other institutional arrangements down to communities that can deliver in the
context of sustainable water management (GWP-1, 2013).
According to GWP, creating an organisational framework – forms and functions is at
the heart of ‘Institutional Roles’. In the context of IWRM, governance is defined as
‘the range of political, social, economic and administrative systems that are in place
(or need to be in place) to develop and manage water resources and the delivery of
water services, at different levels of society’ (GWP-1, 2013).
The above recommendation by GWP although recent, is shown to have been initially
asserted in the high-level briefing on the application of IWRM for the ESCWA region
which Qatar and the GCC are considered an integral part of. The briefing by ESCWA
33
(2004) thereunto referred emphasizes the role of water governance and the
responsibility of the different stakeholders. It holds that ‘whilst senior water
professionals and managers need to understand and communicate the issues,
responsibility for action lies with government ministers, policy makers, politicians and
community leaders’ (ESCWA, 2004). In addition, the aforementioned statement is
further explained in the modules reviewed within the briefing to indicate that
institutional reform is needed to aid better water governance. This includes
international organisations and agreements addressing international waters, basin
management, organisations and regulatory bodies as well as local authorities, civil
society organisations and partnerships (ESCWA, 2004).
Going back to the Saudi example, the literature shows that recommendations by GWP
and ESCWA seem to have been emulated in an effort to establish an ‘integrated and
multidimensional regulatory (legislative) framework for rational water use, water
rights and allocations, protection, and sustainable management of Water Resources
of the Kingdom’ (WWC, 2016). This is noted to have been achieved through the
development of the National Comprehensive Water Act in 2008 which is aimed at
formulating and implementing institutional, operational and financial reforms in water
sector of the Kingdom. The review of the publication by World Water Council (WWC)
shows that Ministry of Water & Electricity (MOWE) ‘has a mandate to work as
regulator of water sector of the Kingdom and is responsible to formulate, implement
and enforce the National Water Act and implementation regulations to all water affairs
of the Kingdom’ (WWC, 2016). Furthermore, an overview of the Kingdom’s
commitment towards sustainable development and management of water resources
indicate that the Ministry of Water & Electricity has effected changes in the form of
institutional and governance reforms within the water sector in order to put in place
34
an “Integrated Water Resources Planning” process so as a coordinated approach to
development can be implemented (WWC, 2016).
5.4.2.2 Institutional capacity building: developing human resources
A common notion in the literature is also observed in Institutional Roles which shows
that in addition to organizational framework, the progression of IWRM concept can
only take place through advancement of human resources involved in the water
profession at all levels. There appears to be a great deal of consistency between
different sources not only on the need to upgrade the skills and understanding of
technical managers but also empowering professionals in all sectors and building the
capacity of such organizations as regulatory bodies as well as civil society groups.
According to UNEP (2012) ‘institutional strengthening in the general sense will
comprise the focus on enabling participating organisations on water resource
management. This work will include enabling an international dimension to capacity
building by supporting capacity building programmes’.
Similarly, the GWP looks at institutional capacity building as a means of enhancing
performance. In the context of IWRM, ‘capacity building represents the sum of efforts
to nurture, enhance and utilise the skills and capabilities of people and institutions at
all levels, so that they can work towards the broader goal’ (GWP-2, 2013).
Realizing the significance of building regional and national capacities for promoting
IWRM, the ESCWA in coordination with a range of stakeholders, are noted to have
been ‘implementing a programme for regional and national capacity building in IWRM’
(ESCWA, 2004). This is done through the development of the ESCWA Region Training
Manual which broadly follows the GWP structure and uses its ToolBox as a starting
point.
35
The academic literature by Abdulrazzak (1994) makes it clear that attempts at water
resource management in the GCC in general and Saudi Arabia in particular are
crippled by managerial aspects related to capacity building of personnel which
according to the author is lacking in each country. He continues to argue that inhouse training programmes or university courses geared towards training of new
personnel or updating existing personnel do not appear to be a priority for many
agencies.
However, a review of the more recent literature shows that water professionals and
decision makers in the Kingdom have taken on board this criticism. To ensure that
the policy and institutional work is well grounded, the Saudi water resource
management plan is seen to have given ‘capacity building’ a special consideration.
After the formulation of the water act, professionals in the water industry in the
Kingdom realized the need to ‘adopt a robust, flexible and implementable operation
model and redesign the organizational structure to streamline and standardize key
work processes’ (UNDP-MOWE, 2012). This is detected in the literature whereby
through a joint implementation project aimed towards developing a capacity building
program in association with the UNDP.
Later on, in 2012, the MOWE and UNDP mutually agreed on the project dubbed
‘Capacity Development for Sustainable Development and Management of Water
Resources in The Kingdom of Saudi Arabia’ to strengthen the technical and
organizational capacities of MOWE in sustainable development and management of
the Kingdom’s water resources.
36
5.4.3 The Management Instruments
The management instruments are yet other key factors that make up the trilogy for
successful implementation of IWRM. According to GWP, ‘management instruments
are the elements and methods that enable and help decision-makers to make rational
and informed choices between alternative actions’ (GWP-3, 2013). The main sources
reviewed, especially the ones that epitomize the feasibility of implementing IWRM,
generally share the same approach towards this particular IWRM pillar being an
important aspect in the strife to attain IWRM objectives that contribute to water-wise
governance. For instance, the CEDARE publication by on IWRM in the Arab World put
considerable emphasis on ‘creating the management instruments to enable the
water-related institutions to perform their tasks successfully’ (UNDP-AWC, 2005). It
is argued that the management instruments and tools are of utmost significance in
what they provide in terms of water resource assessment, demand management,
data sharing, conflict management and allocation of water and its uses.
Also, the literature reviewed from the Saudi example shows that the champions of
the water resource management plan which led into the formulation of the National
Water Act have paid close attention to the management instruments as a critical
undertaking for an effective implementation. A specific policy was devised in the
National Water Act stipulating that the ‘prospects for better management of the
Kingdom’s water resources require several reforms that include: new enabling
legislation,
restructuring
the
management
organization
and
developing
management instruments’ (WWC, 2016). This policy was recommended for
implementation through enhancing MOWE’s operational capabilities by creating a new
37
organization around basic IWRM functions, including regional water authorities
(WWC, 2016).
5.5 Variances in the statements about the requisites for successful
implementation of IWRM
The sources reviewed about the requisites for implementing IWRM are coherent in
their approach to adopting the three pillars stipulated by GWP. It appears as if these
elements were considered as crucial by academic researchers, water resource
management proponents and practitioners alike to the point they’re literally connoted
in case studies, Water Acts, and training manuals almost unequivocally (AFDB – 2000
UNESCO-IHP – 2009 and GWP-4, 2013). Hence, no other requisites were detected
that are worthy of being mentioned as varying in nature from the 3 pillars identified
above except for one in relation to the role of private sector in water resource
management. While the GWP, stresses on the significant role the private sector plays
in financing water resource management though investment, almost all other
literature studied from within the GCC and particularly from comparable Saudi Arabia
did not put the same emphasis on Private Public Partnership (PPP). ‘It is understood
that the private sector is engaged to contribute not only in investment and economic
development by PPP but also in political, expertise and risk sharing’ (GWP-4, 2014).
However, according to A Water Sector Assessment Report by World Bank, ‘most of
the GCC countries, except the UAE, still seem to pursue the direct public management
model for water management and sanitation purposes’ (World Bank, 2005).
5.6 Critiquing the literature on Successful Implementation
The published literature as reviewed illustrates that the above 3 pillars are mostly
intimated in a manner that is somewhat limited to mainly theoretical suppositions
38
and surmises. It lacks the necessary inferences to practical applications and/or means
to enforce them. Also, the sources rarely make reference to post-application
evaluation except in the case of the ‘Capacity Development for Sustainable
Development and Management of Water Resources in the Kingdom of Saudi Arabia’
which appears to have incorporated a section on monitoring and evaluating the
project implementation through a review and evaluation process that calls for
continuous monitoring of the performance indicators for different project components
and outputs (UNDP-MOWE, 2012).
5.7 Chapter Review
Chapter three above evaluates mainly what constitutes in the literature to be the
requisites of successfully implementing IWRM in general with special emphasis on
regional application. By reviewing the Global Water Partnership publications as well
as other guides by notable institutions such as the United Nation’s training manual
for ESCWA region, it was somewhat discernable that whatever the overall objective
for water resource management is, 3 main pillars stand out as most prominent. In
the regional context of IWRM, the integration approach is seen to incorporate policy
options that recognize these elements and lay the ground for change as in the case
of Saudi National Water Act. Regulatory frameworks and planning processes are set
in motion in which firm laws and legislation are formulated. Strong actions are noted
to have been intimated by the Saudi Government to attain the transformation needed
to better protect the resources as well as human health and the environment.
Similarly, the strengthening of human resources development is found to be second
nature through new policies that foster the enhancement of human resource
development.
39
The chapter review then highlights discrepancies in the literature which finds that the
involvement of the Public Sector is one element that is emphasized greatly by
distinguished organizations such as the GWP and the UN unlike in the GCC where
many countries appear to have been slow in embracing the PPP in the domain of
water resource management.
Additionally, the chapter brings to light a crucial element in the IWRM successful
implementation in relation to post-application evaluation. While the setting of
standards and guidelines to effectuate change is noted to have been enumerated in
many sources, few have actually intended to refer to specific measures or include
lessons learned.
If anything, this chapter envisages that a gradual progress towards institutionalizing
the water sector by means of adapting IWRM is feasible in the GCC provided it’s
implemented in a manner that fosters regulatory framework, encourages public
representation, auditing by means of systems control, monitoring and follow up as
well as through transparency.
40
6.0 Chapter Four
6.1 Research Design and Methodology
This section provides an explanation of the research design that was used in this
exploratory study. The study was intended to explore the degree of IWRM awareness
in Qatar and identify challenges impeding its adoption in the tiny GCC State. The
research paradigm was qualitative in nature and the method of research implemented
is a factual one that uses structured questionnaires for data collection.
6.2 Research Design Overview
A single-stage research methodology approach was adopted in this study. It was
based on semi-structured, exploratory interviews with water industry practitioners
which included engineers working for consultants and contractors alike, policymakers and client/government representatives who are active in the water industry.
The exploratory interviews were designed to seek the interviewees’ perception and
understanding of IWRM; whether it is being promoted and to what extent and identify
what various elements from the literature about challenges correlate to the practice
in Qatar. For that purpose, a list of questions was compiled that was designed to offer
an in-depth understanding of the water resource management practice in Qatar.
The intention was for data from the survey of water industry professionals’ perception
and implementation of IWRM to be gathered from face-to-face interviews. The sample
was purposefully selected to include two representatives from Kahramaa or Qatar
General Electricity and Water Authority, two representatives of international
consultants, two representatives of contractors, and one representative of
government sectors as well as three representatives of private developers that are
41
active in the water industry. Since the interviews were semi-structured, the following
topics were addressed:
Stakeholders’ perception of IWRM;
Qatar's approach to managing the water resources and IWRM awareness;
Policy and legislation as they relate to formulation and enforcement;
Institutional roles in building human capacity;
Data management;
The survey was conducted in summer 2016.
6.3 Population and Sample Selection
The study population is water industry practitioners who are actively involved in the
development of water infrastructure in Qatar. The sample comprises of engineers and
policy makers from different sectors including International and Local Consultants
that specialize in design of water infrastructure, Contractors who practice and execute
water infrastructure development projects and government personnel who are tasked
with managing the development of water resources and networks. In addition, the
sample
population
included
representatives
of
private
Developers
of
built
environment one of which was involved in the development of its own Sea Water
Reverse Osmosis plant to satisfy its development’s demand of potable water.
6.4 Questionnaire Development
The research questions were derived from extensive review of the literature in which
several variables were observed in relation to the different challenges that have the
potential to impact the application of IWRM in Qatar. The questions stemmed from
the following key points:
42
6.4.1 Concept Awareness The level of IWRM awareness is determinant of and has
a direct relationship with how effectively can the process be implemented. As
awareness of IWRM concepts is raised amongst the stakeholders, its significance is
heightened and the importance of integration among policy makers, practitioners,
and the general public is intensified. Hence, delving into the level of awareness is a
key element of any reform process relating to IWRM and its implementation.
6.4.2 Management Approach: Qatar's approach to managing the water resources.
IWRM and its
basic
principles necessitate
that
actions
are
integrative
and
that institutions practice transparency. Those actions must be inclusive and
communicative to allow for better participation of different stakeholders at various
levels. Accordingly,
seeking
information about
practitioners (study
samples)
experiences is key to determine whether Qatar's approach to managing water
resources is an obstacle in adopting IWRM.
6.4.3 Policy and legislation as they relate to formulation and enforcement.
Water-related policies are considered appropriate means that facilitate sectoral
integration leading to better implementation of IWRM. Appropriate policies are those
that work to promote demand-driven and efficient water use with protection and
conservation of water resources. Thus, investigating the efficacy of existing policies
in the development of laws and rules to achieve the environmental and economic
objectives in Qatar is essential for this study.
6.4.4 Institutional roles in building human capacity The inter-related and complex
issues involved in IWRM demand that institutions adopting the concept are on par
43
with setting goals and objectives for the management of water resources. They are
also expected to transform from single sector water planning to multi-objective and
integrated planning of various resources including but not limited to water and land.
This all presents huge challenges requiring water organizations in Qatar to impose
capacity building in the form of significant input into education programmes by water
resources management agencies to meet institutional challenges. This topic seeks
out to explore the availability and efficacy of training programmes.
6.4.5 Data management through dispersal of information.
IWRM is greatly enhanced through the exchange of water-related information
to facilitate and better manage water resources. However, for information to
be usable, certain characteristics must be present in relation to how relevant
is the information to the water problem at hand and its ease of access. In other
words, appropriateness and accessibility of data is crucial to the successful
implementation of IWRM as it allows water practitioners and the general public
to share knowledge and experience for improved learning and decisionmaking. This topic is worthy of being investigated in this study for it is a critical
tool in the capacity building efforts discussed above.
6.5 Research questions and the reasoning behind each
To address the above topics, specific questions were formulated based on extensive
review of the literature. The 10 questions were derived mainly from variables
detected in literature about challenges – See attributes in Table – 1 below.
1)
In your opinion, how do you rate the level of understanding of the concept of
IWRM and its potential benefits based on the GWP definition presented?
44
Question # 1 was designed to seek the interviewees’ perception of IWRM as a
concept and to what extent it’s being practiced if any. While on the surface the
process seems easily understood, its application is a little more difficult to discern.
The answer to this question would provide an insight on whether a basic
understanding exists in Qatar and among practitioners for feasible application of
IWRM.
2)
In your opinion, do water resource management practices in Qatar give due
consideration to the hydrological cycle and its interaction with other natural resources
and ecosystems?
Question # 2 was designed to investigate whether water resource management
practices consider the interdependencies within other systems i.e. natural system. It
is intended to uncover underlying deficiencies in the way that management systems
are operating and how?
3)
Are there many sectors involved in the exploitation of water resources in
Qatar?
Question # 3 was designed to inquire about whether multiple sectors are involved
in managing the water resources in Qatar. IWRM necessitates a multi-sectoral
approach which emphasizes the need for more stakeholders’ involvement in water
development and management. The answer to this question would help understand
better the extent to which water management is centralized, decentralized or
consolidated.
4)
Based on your experience with these sectors, do you rate the level of
interaction and coordination amongst them as high or low?
45
Question # 4 was intended to investigate the level of communication between
stakeholders as part of water resource management in Qatar. In IWRM, information
exchange among diverse water stakeholder is critical to enable proper decision
making and is advantageous in fueling practical lessons learned. The answer to this
question could better help define the approach to managing resources.
5)
Based on the above, how do you describe the approach to Water Resource
Management in Qatar?
Question # 5 was formulated in order to get interviewees to summarize in their own
words the answers to Questions 2, 3 and 4 as they relate to the water resource
management approach. IWRM draws its inventiveness from the Dublin Principles. It
necessitates a more holistic approach to management. It is therefore crucial to
conclude whether a holistic approach is realized in Qatar or a more restrictive one.
6)
Do you believe that the current legal framework in place works to promote
efficient water use, protection and conservation of water resources?
Question # 6 was designed to seek out the interviewees’ experiences with the
institutional framework within which water resources are managed. The answer to
this question would help determine if an enabling environment exists in Qatar within
which IWRM approach can be developed.
7)
Is this legal framework inclusive of policies set forth by the Qatari government
that regulate Water Resource Management?
Question # 7 was aimed at identifying specific policies in relation to Water Resource
Management. To be integrated, policies associated with water resources must mesh
46
with other policies such as economic or sectoral. The answer to this question and
question # 6 above would help in further affirming the need for institutional change.
8)
Do these policies promote the relative social and economic values of water?
Question # 8 was derived from the IWRM Dublin principle in relation to economic
and social value of water. IWRM necessitates that water is treated as an economic
good which availability must be controlled by means of implementing a tariff system
for end-users whom are mostly competing for access to this critical resource. The
answer to this question would help determine if mechanisms exist to make users
aware of the provision of costs involved and their level of enforcement.
9)
Are
there capacity
building
programmes
or
tools
that
facilitate
the
development of IWRM concept?
Question # 9 was devised to investigate institutional human capacities in relation
to water resource management. For IWRM to be effective, institutions and
organizations must possess the capacity to measure, interpret, apply and monitor
laws and standard practices. The answer to this question would help establish if
capacity building efforts are in place or must be developed.
10)
Do you believe the different parties involved possess sufficient information and
are able to share data and knowledge to function effectively and efficiently in
managing the water resources?
Question # 10 was intended to identify if data in relation to water resources are
shared among peers and across sectors. IWRM necessitates that technical data and
technical information as well as institutional and financial information is shared
vertically and horizontally in order support the building of knowledge for IWRM. The
47
answer to this question would ascertain if the required mechanisms and channels for
such knowledge sharing exists to facilitate the development of IWRM.
6.6 Variables & Attributes
The following variables were identified in the literature review.
Concept awareness
Policy and legislation
Institutional development
Capacity building and training
Data management
Table 1: Variables and attributes
Variables
CONCEPT AWARENESS
Attributes
APPROACH TO WATER RESOURCE
MANAGEMENT
POLICIES AND LEGISLATION
CAPACITY BUILDING
DATA MANAGEMENT
Yes – Fully aware
No – Low level awareness
I don’t know – Totally unaware
Yes – Holistic, all-inclusive
No – Restrictive
I don’t know – Not sure
Yes – Available and effective
No – Not available
I don’t know – Maybe, ineffective
Yes – Programmes available
No – Programmes not available
I don’t know – Not aware
Yes – Information is easily
dispersed to all
No – Information is not
exchanged
I don’t know – Exchange of
information is there but
somewhat limited
48
6.7 Data Collection
Face-to-face interviews were used to collect information about awareness and
practitioners’ attitudes and experiences with water resource management in general
and IWRM in particular, as well as potential challenges faced in Qatar. The interviews
were all scheduled in advance either through phone calls or email correspondences
during the month of September 2016 to invite the practitioners to take part in the
survey. The research topic was explained in detail and its significance was
emphasized in managing the critical water resources in Qatar. The potential
participants were requested to provide their input on the basis of anonymity whereby
none of their personal details were recorded or documented on the survey
questionnaires to assure confidentiality. The participation was clarified to the
practitioners as discretionary and that should they wish not to partake the survey,
they can choose to withdraw at any time during the interview.
During the interviews, the participants were presented with the GWP definition of
IWRM as ‘a process which promotes the coordinated development and management
of water, land and related resources to maximise economic and social welfare in an
equitable manner without compromising the sustainability of vital ecosystems’ (GWP,
2016). They were then introduced to the survey questionnaires and the reason behind
each as follows: “As a water practitioner in the state of Qatar, you would have had
the opportunity to practice water resource management and perhaps faced several
challenges while doing so. This survey is primarily designed to seek your opinion
about IWRM, the level of awareness of the concept and the challenges faced that
may/are preventing its application. It was further explained that since the topic has
not been religiously explored in Qatar, the responses will help bring the concept of
49
IWRM into the mainstream and perhaps assist other practitioners, educators, the
water community, and the public understand the prevalence or lack of and the
challenges of IWRM." The responses to each of the questions and the context of each
were also explained in line with the Variables and Attributes Table-1 above.
The interviews lasted between 30-45 minutes on average and at the end of the
interview, gratitude was extended for the participants on their taking time out of their
busy schedule to participate.
6.8 Data Analysis
A Qualitative analysis method was used to identify categorical data from the following
three responses (‘Yes’, ‘No’ and ‘I don’t know’) and the frequency of those responses
to arrive at an understanding of IWRM awareness and perception and the challenges
faced that may/are preventing its application. It should be noted that in questions –
1, 4 and 5, the answer ‘Yes’ referred to (high or all-inclusive) whereas ‘No’ referred
to (low or less inclusive).
Responses to questionnaires from 10 surveys were keyed into a frequency table for
non-numerical data which was constructed for that purpose – refer to Table-2 below.
A Frequency Formula was devised to aid with ranking responses based on their
frequency as selected by participants to identify the top 3 factors preventing the
application of IWRM in Qatar.
50
Table 2: Frequency table for non-numerical data
Question
Q-1
Q-2
Q-3
Q-4
Participant-1
yes
no
no
no
Participant-2
no
no
yes
Participant-3
no
no
no
no
I don't
know
Q-5
Q-6
Q-7
Q-8
I don't
know
no
I don't
know
yes
I don't
know
yes
I don't
know
no
no
no
no
no
Q-9
Q-10
no
no
no
I don't
know
no
Participant
no
yes
no
yes
yes
yes
yes
yes
no
yes
Participant-5
I don't
know
no
yes
yes
no
yes
yes
yes
no
yes
Participant-6
yes
no
no
no
I don't
know
no
yes
yes
yes
no
no
Participant-7
yes
I don't
know
yes
no
no
yes
yes
I don't
know
no
yes
Participant-8
no
no
no
I don't
know
no
yes
I don't
know
yes
I don't
know
I don't
know
Participant-9
no
no
no
no
yes
yes
yes
no
no
Participant-10
yes
no
no
no
yes
no
yes
no
yes
Participant-4
I don't
know
no
6.9 Summary
The 10 nos. surveys investigated water industry practitioners’ understanding and
experiences with different aspects that relate to IWRM in Qatar. Participants from an
array of sectors were interviewed and non-numerical data collated from the
respondents were inputted into a frequency table. The table was designed to
transform the responses into a statistical form that will make them easy to
understand and interpret. The arrangement of non-numerical data in a row and
column format assists in the count of responses for each question assigned to a
variable to generate descriptive information.
51
7.0 Chapter Five
7.1 Presentation and analysis of data
This study was intended to explore the awareness and challenges impending the
application of IWRM in Qatar. Water industry practitioners were interviewed, data
regarding their perceptions of IWRM and potential challenges faced were collected
and implied from responses that were carefully designed to seek out their views. Data
collected from the interviewees were then analyzed and interpreted using the
descriptive statistics method.
Twenty-two (22) water-industry practitioners were approached to participate from a
range of sectors with different backgrounds. A sample of 10 practitioners
representing all sectors (government, private, consultancy and contracting)
responded.
7.2 Questions and analysis
Question # 1
Frequency
In your opinion,
how do you rate
the level of
understanding
of the concept
of IWRM and its
potential
benefits based
on the GWP
definition
presented?
yes
no
I don't know
10%
40%
50%
Figure 6: Question # 1 Frequency Chart
52
Data indicated that 40% of the interviewees possess high level of understanding of
IWRM based on GWP definition. On the other hand, 50% of the respondents rate their
level of understanding of the IWRM as low as opposed to 10% whom did not appear
to be aware of the concept. Given the foregoing, it can be deduced that 90% of
respondents could be assumed as having some level of awareness of the concept.
Accordingly, concept awareness did not appear to be a major limitation among most
practitioners who seemed poised with some level of concept discernment.
Question # 2
In your opinion,
do water
resource
management
practices in
Qatar give due
consideration
to the
hydrological
cycle and its
interaction with
other natural
resources and
ecosystems?
Frequency
yes
no
I don't know
10%
20%
70%
Figure 7: Question # 2 Frequency Chart
Data revealed that (70%) of practitioners did not believe that water resource
management practices in Qatar give due consideration to interdependencies between
different natural systems and the respective uses of this finite resource. The high
percentage of ‘nays’ is somewhat indicative of the management approach being
rather wanting when it comes to integrating land with water use, surface and ground
water, and water quality and quantity. Furthermore, the (20%) of respondents who
stated that the practices do indicate some level of interdependency to include such
53
practices as aquifer recharge, divulged during the discussion that their response was
based on the postulation of certain plans in place by Qatar Environment and Energy
Institute (QEERI) and not on factual information or knowledge. Only (10%) had
stated lack of awareness of the subject matter. Hence, the perception of water as an
integral part of the ecosystem whose quantity and quality determine the nature of its
utilization is not on par with that of the GWP where ecosystem sustainability along
with economic efficiency and social equity are at its core.
Question # 3
Frequency
yes
Are there many
sectors involved
in the
exploitation of
water resources
in Qatar?
no
I don't know
10%
30%
60%
Figure 8: Question #3 Frequency Chart
60% of interviewees believed that there aren’t many sectors involved in the water
resource management in Qatar against 30% who believed that there exist a few
different stakeholders who are. However, when asked to identify or name the
different sectors involved, respondents speculated about different public agencies
that they thought were involved but not sure to what extent. The responses are again
suggestive of a non-integrative and restricted nature of only a limited number of
agencies (public) with little information to indicate public-private partnership that
54
involve different sectors. Only 10% of respondents claimed unawareness of approach
to sectoral integration.
Question # 4
Frequency
yes
Based on your
experience with
these sectors,
do you rate the
level of
interaction and
coordination
amongst them
as high or low?
no
I don't know
10%
30%
60%
Figure 9: Question #4 Frequency Chart
The discernable partiality in sectoral integration was echoed in the level of
coordination between the different sectors. 60% of practitioners believed that
communication across sectors is inefficient and that little coordination is experienced
between sectors. IWRM calls for water development and management to be based
on a participatory approach, involving users, planners and policy-makers at all levels.
Data collated indicated that in the absence of proper communication and
coordination, very little can be achieved in terms of sectoral integration.
55
Question # 5
Frequency
yes
Based on the
above, how do
you describe
the approach to
Water Resource
Management in
Qatar?
no
10%
I don't know
10%
80%
Figure 10: Question # 5 Frequency Chart
Whereas (10%) believed Qatar’s approach to water resource management was allinclusive, a clear majority of practitioners (80%) believed that the practice is
restrictive, predominantly sub-sectoral, bolstering top-down attitude in management
instead of being the cross-sectoral type that promotes the bottom-up approach. This
was no surprise given the unenthusiastic responses to questions 2-4 above which
were originally designed to seek the interviewees’ take on various elements that
contribute and shape the management approach to water resource management. A
quick analysis of the frequency of categorical data inputted to reflect responses to
questions 2-4 – Figure – 11 below, indicated that (70%) of practitioners considered
that interdependencies between various sectors that uses water are non-existent.
Similarly, (60%) of practitioners believed that water management practice was
centralized and did not involve users, planners and policy-makers at all levels in line
with GWP’s definition which promotes coordinated development and management of
water, land and related resources, etc.…
56
Frequency
3
Q-4
60% believe level of
interaction is low
1
1
Q-3
60% believe practice is
centralized
3
70% believe that
interdependencies
do not exist
1
Q-2
2
0
1
2
3
I don't know
4
5
no
6
7
8
yes
Figure 11: Questions # 2-4 Frequency Chart
Furthermore, (60%) believe the level of interaction and coordination among the
government sectors that supposedly manage the water resources was low and did
not foster participatory approach. Therefore, and based on the afore-mentioned, the
approach to water resource management can be deemed as one critical challenge
that ought to be studied and discussed in more details.
Question # 6
Frequency
Do you believe
that the current
legal framework
in place works
to promote
efficient water
use, protection
and
conservation of
water
resources?
yes
no
I don't know
10%
10%
80%
Figure 12: Question # 6 Frequency Chart
57
Data showed that (80%) of interviewees believed that a legal framework did exist
and that government was indeed acting as an enabler to ensure separation of
regulating and service provision functions as an example. On the other hand, only
(10%) of those interviewed did not believe the legal framework is sufficient and
maintained that no clear guidelines were in place that would potentially facilitate the
development of IWRM or other water resource management approaches. The
remaining (10%) of the respondents have stated that they have no knowledge of
whether the legal framework is in place. Given the high percentage of ‘ayes’, it can
be assumed that a legal paradigm is encapsulated which could potentially form the
basis of plans to develop IWRM process in Qatar.
Question # 7
Frequency
Is this legal
framework
inclusive of
policies set
forth by the
Qatari
government
that regulate
Water Resource
Management?
yes
no
I don't know
20%
20%
60%
Figure 13: Question # 7 Frequency Chart
The answer to this question is related to the previous question in terms of the
sufficiency of the legal framework and the associated policies which determine the
extent institutional change may be required. Data from question # 6 revealed that
while most practitioners were adamant about the legal framework for managing
water resources, they did not seem as obstinate in their responses to this question
58
about the strategies within which water-related policies were formulated and water
resource legislations were enacted. Even though (60%) of those interviewed believed
that the Qatari government had set forth policies and guidelines, these guidelines, in
their opinion, did not utterly describe an approach to introducing IWRM at any level.
Furthermore, the range of responses showed that even with the varying opinions,
the consensus during the interviews resonated that institutions and resources that
start implementing existing policies and guidelines in the context of the current
arrangements, and as capacity grows, have the potential to evolve those policies
towards a fully integrated approach in line with IWRM principles. It is worth
mentioning that while it was not pre-planned, it is interesting to see how the results
and the discussion during interviews have naturally inferred to an association
between empowering capacity building and the evolvement of policies.
Question # 8
Frequency
yes
Do these
policies
promote the
relative social
and economic
values of
water?
no
I don't know
20%
20%
60%
Figure 14: Question # 8 Frequency Chart
Analysis of data indicated that (60%) of those interviewed believed that the current
policies in place worked towards promoting the relative social and economic values
of water. Also, those who acknowledged this had all referred to the National
59
Campaign for the Conservation and Efficient Use of Water and Electricity in Qatar
(Tarsheed) which was launched and spearheaded by Qatar General Electricity and
Water Authority (Kahramaa). This resonates a somewhat purposeful approach and
implementation of the policies albeit among specific public sectors such as Kahramaa
rather than a diversified range of sectors to include the private segment of society at
the other end of the spectrum.
On the other hand, (20%) of the interviewees considered that current policies do not
endorse a proactive approach to encourage the economic and social value of water.
Equally so, (20%) stated that they had no knowledge of whether the policies in place
uphold specific measures to stimulate water’s economic value. It is hence assumed
that policies in general may have played an important role in providing the framework
for information sharing and fostering awareness leading up to the formulation of such
national projects as (Tarsheed) to encourage and offer practical lifestyle changes that
would help the public in reducing their daily consumption of water.
Question # 9
Frequency
yes
Are there
capacity
building
programmes or
tools that
facilitate the
development of
IWRM concept?
no
I don't know
0%
20%
80%
Figure 15: Question # 9 Frequency Chart
60
Whereas (20%) of the interviewees stated that they are not aware of whether or not
capicity building programmes are in place, a prodigious number of interviewees were
of the opinion that Qatar is lacking when it comes to professional development and
training of personnel programmes especially in the water development and
management arena. (80%) believed that capacity development of staff to address
present and future water resource management issues was inchoate and not on par
with tackling the vulnerability of water resource management as a whole. None have
stated any knowledge of such an important phase in the integrated water resource
management journey. This makes the capacity building element of IWRM in Qatar
extremely challenging and one that ought to be given due diligence in any attempt
to achieve a full-pledge integration in line with the GWP recommendations on
managing the vulnerable water resources.
Question # 10
Do you believe
the different
parties involved
possess
sufficient
information and
are able to
share data and
knowledge to
function
effectively and
efficiently in
managing the
water
resources?
Frequency
yes
no
I don't know
10%
40%
50%
Figure 16: Question # 10 Frequency Chart
Whereas (40%) of those interviewed thought that sufficient data was available
among those involved in the management of water resources, (50%) held that the
availability of data was limited and hampered by lack of variability and poor reliability.
61
Only (10%) of practitioners did not know if data was available and to what extent.
The responses to this question were somewhat divisive which deem the subject of
data and information management, a basis of water resource management, as yet
another challenge that ought to be explored and discussed further.
7.3 Summary
Based on the above data analysis, it is obvious that while Qatar, as a developing
country, has taken steps that signify a feeble approach towards IWRM, it still faces
several difficulties that must be taken in hand to develop and implement a long-term
water resource management plan in accordance to the basic principles of IWRM as
devised by the Dublin Conference of 1992 (International Conference on Water and
the Environment).
The responses indicated that the clear majority of water professionals are cognizant
of the IWRM concept. However, none seem to have actively participated in a fullfledged IWRM transformation which aims at integrating efforts through a multisectoral approach that promotes stakeholder participation. Furthermore, a good
percentage believed that not enough emphasis is placed on managing critical data
about water resources which is hindering management of information and integration
of systems.
62
8.0 Chapter Six
8.1 Discussion and recommendations for future action
In general, the water professionals interviewed have demonstrated a laudable level
of awareness of IWRM concept. (90%) of them revealed that they had some level of
understanding of the IWRM concept whereas only (40%) of them felt they had a
thorough understanding of the process.
There also appeared to be a realization
among practitioners that efficient development and management of water resources
often go hand in hand with water policy reforms, with which interviewees
acknowledged as being improved to address the key water-related issues such as
supply and demand, water quality, water use efficiency and allocation. In fact, more
than (60%) considered that legal frameworks and policies that govern the water
sector are designed to promote efficiency and allocation in line with the Qatar 2030
vision.
On the other hand, the same water industry practitioners have helped identify,
through their responses to the carefully designed questionnaires, three (3) main
challenges that are impeding the application of a full-fledged IWRM process. (80%)
of the practitioners considered capacity building as a major shortcoming in managing
the water resources. More than (60%) believed that the approach towards managing
water resources is fragmental and see it rather restrictive instead of being
comprehensive, cross-sectoral and flexible to better promote the involvement of local
professionals and researchers and to enhance efficiency of water resources. (50%)
of those interviewed believed that availability of information and collection of reliable
data about water resources and distribution remain lacking. Accordingly, three (3)
main challenges can be noted as follows in order of their impediment levels:
63
1. Lack of Capacity Building;
2. Restrictive Approach to Water Resource Management;
3. Management of water-related Data.
8.1.1 Lack of Capacity Building
Institutional capacity building and training of personnel is one challenge that most
practitioners have noted as a major weakness in Qatar. Interviewees have pointed
out that existing professionals are not being regularly updated or informed of the
latest trends neither are the new recruits.
IWRM is based on the understanding that the development of human resources is a
pre-requisite
implementing
for
developing
IWRM
relies
and
on
a
managing
water
multitude
of
resources.
potential
Furthermore,
interventions
and
developments, such as developing the competences and/or skills, practitioners’
understanding and the means to define, plan and implement integrated water
resource management. Hence, decision-makers must realize the significance of
professional water resource development and management through training
programmes that include but are not limited to on-site and off-site training, seminars
and joint workshops between industry experts to enhance their knowledge of new
techniques and procedures as well as providing updates on new water technology.
In addition, Qatar has the potential to and should leverage its existing ‘Education
City’ infrastructure to facilitate the proliferation of training programmes in the form
of specialty courses, degrees and higher education specifically in the realm of
hydrology, water resource management and water distribution.
64
8.1.2 Restrictive approach to Water Resource Management
Centralization is yet another weakness/challenge identified and highlighted by the
interviewees. The responses and discussions during the interviews revealed that
Qatar’s water sector is seen as primarily revolving around one entity, Qatar’s General
Electricity and Water Authority or ‘Kahramaa’ as locally recognized, a portmanteau
that combines the words ‘Electricity’ and ‘Water’ in Arabic.
Kahramaa is viewed as the umbrella organization that provides a superset of
processes and procedures for managing the distribution of water and thereby play a
major role in managing the critical resources. In part, this is because private sector
autonomy or even attempts at autonomy are undermined by such entities as
Kahramaa in retaining authority over key water-related decisions. Presently,
according to the interviewees, the situation of centralization and lack of participation
(top-down water governance as opposed to bottom-up approach) is having a
negative impact on the decision-making process, water resource development, as
well as precluding various stakeholders’ involvement and participation.
Additionally, the civil society as well as the private sector must be better empowered
leading to active public participation in the decision-making process on all levels
(national and perhaps regional). This will also help in creating a much-needed
balanced relationship between decision makers, private sector, and civil society. To
achieve this, specific arrangements by Qatar’s leadership must be devised through
the devolution of water-related powers to multiple stakeholders to enable policies
that would help open the potential for introducing sectoral integration and
stakeholder participation including but not limited to the private sector and the civil
society. Furthermore, and during the process of formulating policies for sectoral
65
integration, it would be crucial to map out the water sector’s existing institutions and
their roles and responsibilities. Identifying who will be responsible for what in the
implementation and administration of water policies must be devolved to specific
agencies to mitigate any potential overlapping between different agencies and to
enhance an enabled participating society.
8.1.3 Management of Water-related Data
The responses to the question about availability and sufficiency of water-related data
has garnered enough divisiveness between interviewees it merited the subject of data
management a spot as a third challenge that necessitated further assessment. The
difficulty, as identified by 50% of the participants, lied with the availability and
management of data in relation to water resources and distribution.
A resourceful and efficient water management plan in accordance with IWRM
principles is based on the collection of water-related data that is reliable, quantifiable
and up-to-date.
Some of the industry professionals interviewed have shared their experiences about
what they believe is exacerbating the adoption of IWRM in relation to data
management. For instance, it was noted that the lack of hard data about critical water
resources to include the extent of groundwater withdrawals and overexploitation and
even more so, fossil-fueled desalination plants, is crippling attempts aimed at
processing information for better decision-making. When met with poor cross sectoral
integration, the scarcity of information has, according to the interviewees, led to less
interaction among projects in different sectors thus impacting the potential to
empower people and organizational capacity building through sharing of knowledge.
66
Others who also stated poor data availability and management of information
maintain that there exists a shortage of up-to-date data on the unaccounted-forwater in Qatar. It was noted that the unavailability of systematic data about leakage
levels from water distribution networks limits an accurate and detailed assessment
of the scope of the problem.
Therefore, administrative bodies such as ‘Kahramaa’ that are primarily engaged in
managing water resources and water distribution must be opined to make use of the
existing policies and/or devise new ones to improve the collection, processing,
analysis and dissemination of water-related data by leveraging new technologies such
as computer-aided data management programmes. In addition to leveraging new
technologies, ‘Kahramaa’ should promote knowledge sharing and data dissemination
between various practitioners within the same sectors and among peers in various
other sectors locally and perhaps regionally. And to facilitate the knowledge sharing
experience, it would be critical to employ strategies and develop mandates for
employees to participate in training data-management programmes, data-exchange
workshops, public seminars, regional study tours and conferences that are
comprehensive in nature to include technical information as well as institutional and
financial information.
8.2 Conclusion
This exploratory study was conducted with the aim to establish an understanding of
IWRM in Qatar and the extent the process is recognized and/or practiced amongst
the different stakeholders entrusted with managing the critical water resources in
this affluent Gulf State.
67
It was evident based on participants’ input that Qatar, as a developing country, has
not yet embraced the IWRM concept in a manner that allows it to benefit fully from
what the concept has to offer in terms of synchronizing water development and
consumption with its resources via an all-inclusive approach instead of the traditional
fragmented one which is no longer viable considering water a key driver of economic
and social development.
Qatar suffers from a magnitude of water scarcity associated only with extreme desert
conditions. Unfortunately, that equates to an increased resource vulnerability which
poses great challenges to those assigned with the responsibility of managing this vital
resource.
Hence, it is imperative that the leadership advocates for water issues not to be
addressed in isolation but rather in a holistic manner that promotes sectoral
integration and seek to make empirical processes such IWRM highly participatory
amongst stakeholders. Water practitioners must be empowered with the tools needed
to advance their skills. Also, they must be afforded the ability to harness the
technological advances to enhance data management for efficient and sustainable
water resource development and management. The general public must be exposed
to the participatory approach of IWRM and to a greater extent be educated about its
principles.
68
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Figure-5:
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10.0 Annexures
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76
fadl slim