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2015 | OriginalPaper | Buchkapitel

6. Resistant, Reactive or Proactive Institutions? Exploring Adaptive Water Resources Management in the Po and Syr Darya River Basins

verfasst von : Beatrice Mosello

Erschienen in: How to Deal with Climate Change?

Verlag: Springer International Publishing

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Abstract

The following chapter presents, interprets and compares the findings from the Po River basin in Italy and the Syr Darya River basin in Kyrgyzstan with respect to the capacity of institutions in the water sector to address the prospected impacts of climatic and socio-economic changes. The analysis suggests that for the Po River basin, the political willingness to mobilise and translate adaptation into concrete responses and longer-term action plans is missing. In Kyrgyzstan, the conditions for adaptation are not established, thus requiring substantial efforts to build adaptive capacity of institutions in the water sector by activating all the considered aspects, i.e. infrastructure, information, finances, human and social capital, and political willingness and structure. The second part of this chapter compares the two water governance systems under review in terms of how the multi-level dimension played out in shaping the relationships and defining the impacts of the hypothesised determinants of adaptive capacity. Our analysis importantly highlights the relevance of international institutions in advancing concerns about adaptive capacity in the case of Kyrgyzstan, and of domestic regional institutions in the case of the Po River basin. Finally, we suggest some policy-relevant adaptation measures to include consistent data collection and dissemination, cross-sectoral collaboration, promotion of domestic political responsibility and initiative, awareness-raising of climate change impacts among key stakeholders, and a regional strategy.

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Fußnoten
1
See Appendix.
 
2
See Appendix 4.
 
3
In the current system instead, citizens pay a water fee to the municipality in which they reside (or the company that is charged with water services by the municipality in certain cases), which is used for the operation and maintenance of aqueducts and other water-related infrastructure. The amount of the fee must be maintained very low, as water is perceived as a public good and citizens are not willing/do not perceive it as fair to pay for it. Therefore, the income from water fees remains limited and does not cover investments into the operation and maintenance of the infrastructure, for example. To solve this problem, the tendency has been to recur to private contractors, which use their own budget to operate water services in certain municipalities, although under the specific mandate and control of the municipal government (a system that was introduced by the Galli Law in 1994). Under Silvio Berlusconi’s government in 2010, an attempt was made to privatise water services entirely, but it was voted against in the 2010 Referendum, which expressed the popular willingness and determination to maintain water a public good. One of the requests made by the popular movement initiating the Referendum initiative was to solve the problem of lack of funding in the water sector with general tax revenues.
 
4
Cit. from interview with respondent at local level (Mayor), conducted by the author in the Piedmont region (Italy) on July 7, 2011
 
5
Importantly, in fact, the PBI includes two measures that have potentially overlapping effects in terms of adaptation. First of all, it mandates for interventions aimed at restoring the natural hydraulic-environmental conditions of those areas that have a low value from an agricultural point of view, but are fundamental to contain the effects of floods. Secondly, it explicitly provides for land conservation and environmental protection (in compliance with the quality objectives set by the EU WFD for 2027), specifically in those parts of the basin that are defined as “most vulnerable” and exposed to risk, such as mountain areas (AdbPo 2010, 2011). The PBI also describes some specific actions to address the prospected impacts of climate change, such as interventions on aqueducts, the definition of a register listing all the concessions for water withdrawals, and the implementation of measures aimed at reducing water consumption especially for irrigation purposes. According to the Plan, all these measures should be reversible and easily applicable (AdbPo 2011).
 
6
Cit. from interview with respondent at research sector level (Senior Researcher), conducted by the author in Verbania (Italy) on July 10, 2011.
 
7
See Appendix.
 
8
Ibid.
 
9
Ibid.
 
10
More information on this type of activity is reported in: GDFRR (2010).
 
11
For example, in March 2010, with the support of the OSCE Centre in Bishkek, a project “Integration of Environmental Security and Sustainable Development Issues into the Education Sector in Kyrgyzstan” was carried out in order to support sustainable development. Also, it is worth citing the activity of the environmental movement BIOM, which has issued more than ten different environmental posters, covering issues such as food safety, climate change and health, which have been widely distributed in all regions of the country (Bekkulova 2011, p 6).
 
12
In particular, a key international donor for these projects was said to be the GEF Small Grants Program, which finances demonstration projects in Central Asia. The projects within this program are typically short-term, small scale and aim at demonstrating the validity of tools and solutions such as drip and moisture charging irrigation, rehabilitation of degraded soils, sustainable grazing methods, diversification of agricultural crops, and reforestation.
 
13
The absolute number of references made by respondents to the different categories of determinants, as well as their relative weight expressed in percentage of the total are reported in Appendix.
 
14
See Appendix.
 
15
Of course, this particular distribution can be read as being related to the fact that government and governance and human and social resources were also the categories to be most often connected to adaptation responses and measures – as such, it is relatively not surprising that they were indicated as the ones that raised more concerns.
 
16
Since its inception in 1948, the Republic of Italy has had 62 governments. Since the average duration of a government is fixed by the Italian Constitution to a 4-year term, this data is indicative of the high instability that characterises Italian politics. The Italian system has typically been regarded as a deviant case in the political science debate about governmental systems, since the country was said to lack the basic pillars that constitute modern democracies, namely: the possibility of governmental alternation within democratic institutions, the existence of political parties in competition with each other and the presence of reciprocally legitimised political forces (Salvadori 2001, p 14). As such, Italy has been defined as a “partitocracy” (e.g., Calise 1994) whereby the power over public policy and indeed, over the life and death of Italian governments, is shifted away from the formal governmental institutions and falls into the hands of political parties, their general secretaries and leaders (Calise 1994).
 
17
Cit. from interview with respondent at research sector level (two researchers), conducted by the author in the Piedmont Region (Italy) on July 10–11, 2011.
 
18
See Appendix.
 
19
The specific climate impacts that are expected for Kyrgyzstan have already been highlighted in Chap. Nevertheless, Kyrgyzstan also suffers from serious problems of water pollution, partly inherited from the Soviet period. More specifically, some of the problems that have been identified in the Kyrgyz water sector are: (i) low water use efficiency (including leakage from irrigation and water supply networks; (ii) avoidance of pumped water sources for drinking use, and recourse to surface water sources (which, however, are un-protected from contamination and lead to water supplies which are potentially unsafe and often susceptible to high turbidity when river flows are high); (iii) inefficient allocation of water resources internally and to downstream countries; (iv) insufficient surface/groundwater quantity and quality monitoring; (v) diffuse and point source pollution of water resources deriving from, e.g., discharges from wastewater treatment works operated by municipal water enterprises, discharges from industrial and commercial enterprises directly to water bodies with or without prior treatment by that enterprise, and discharges from tailing dams for mining activity (including radioactive uranium); (vi) incomplete coverage of improved water supply and sanitation; (vii) intermittent and unreliable piped water supply; and (viii) poor operational efficiency of water infrastructure (OECD 2011).
 
20
Cit. from interview with respondent at international level (IO Project Manager), conducted by the author in Bishkek (Kyrgyzstan) on October 1, 2011
 
21
Until October 2009, the Department of Water Resources was the formal national authority for water resources management and for the management of state irrigation and drainage systems simultaneously. In 2010, however, this entity was abolished and substituted by a State Committee of Water Resources. In October 2011, in correspondence of the first elections of the newly established parliamentary Republic (following on 1 year of Interim Government), this body was again replaced by the SCWEM (Orolbaev and Valentini 2010).
 
22
These results coincide with the findings that were reported by Alymbaeva in her study on WUA’s performance in Kyrgyzstan (Alymbaeva 2004, p 45).
 
23
These findings are in line with what is reported by (Herrfahrdt et al. 2006, p 140).
 
24
This finding aligns itself with Alymbaeva (2004).
 
25
The Fergana valley is an intermountain depression in Central Asia, between the mountain systems of the Tian Shan in the north and the Gissar-Alai in the south. Although the valley forms a single, continuous geographic unit, it is politically very divided. At present it encompasses three provinces of Kyrgyzstan (Osh, Jalal Abad and Batken), three provinces of Uzbekistan (Andijan, Fergana and Namangan) and the Sogd Province in Tajikistan. The Fergana valley forms the backbone of agriculture in Central Asia. Some 45 % of the irrigation areas of the Syr Darya basin, in fact, are located here. Ethic divisions and resource scarcity make this region particularly vulnerable to violence, which has already occurred in 1990, when bloody clashes between inhabitants of the Kyrgyz town of Osh claimed over 300 lives, or earlier, in 1989, when hundreds of the Meskhetian Turks were killed in the Uzbek town of Fergana in what was called one of the most dramatic episodes of inter-ethnic relations in the Soviet Union (Votrin 2003, p 22).
 
26
Kyrgyzstan’s largest rural finance institution is The Ayil Bank (formerly known as the Kyrgyz Agricultural Finance Corporation). It was established in 1998 with funding assistance from the World Bank and other international donors with the aim to provide credit to private farmers as part of the restructuring of rural economy. Other microcredit companies in Kyrgyzstan are Kompanion, Bai Tushum, and Finca, all working with the support of international donors, also collaborating with them in the implementation of some projects at the local level (e.g., Kompanion collaborates with the Swiss NGO Helvetas by releasing educational loans for youth). Source: information collected by the author during fieldwork.
 
27
These findings are in line with Levine et al. (2011).
 
28
See Appendix.
 
29
See Appendix.
 
30
See Appendix.
 
31
See Appendix.
 
32
See Appendix.
 
33
The distribution of absolute and relative references to adaptation measures and responses across governance levels is presented in Appendix.
 
34
According to Börzel and Risse (2009), there are four direct mechanisms of diffusion, which are typical of regional organisations such as the European Union: (a) physical or legal coercion; (b) manipulation or utility calculations; (c) socialisation; and (d) persuasion. The first mechanism is physical or legal coercion, but this is strictly speaking only relevant within the internal politics of the EU, since the EU does not have recourse to legally coercive mechanisms in international politics. The second is the manipulation of utility calculations. This can occur through either policies of conditionality, in which the one actor seeks to manipulate the cost-benefit calculations of another actor, or through capacity-building activities such as the provision of technical and financial assistance, in which one actor seeks to alter the capacity of another actor to make strategic choices. The third mechanism is socialisation, which can result in complex learning through which actors redefine their identities and interests. Successful socialisation involves actors changing their behaviour as a result of wanting to be seen as members of society “in good standing”. The final direct mechanism is persuasion, according to which actors try to persuade each other about the validity claims inherent in any causal or normative statement (Börzel and Risse 2009, p 7).
 
35
In turn, this would help solve the problems of lack of coordination and contrasting interests among the donors that some authors have identified in relation to environmental aid effectiveness (see, e.g., Connolly et al. 1996).
 
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Metadaten
Titel
Resistant, Reactive or Proactive Institutions? Exploring Adaptive Water Resources Management in the Po and Syr Darya River Basins
verfasst von
Beatrice Mosello
Copyright-Jahr
2015
DOI
https://doi.org/10.1007/978-3-319-15389-6_6