Case Study of the Middle East Water Resources Working Group
(Updated May 2002)
INTRODUCTION
The Middle East Multilateral Working Group on Water
Resources (MWGWR) a case study of the "From Vision to Action" theme
adopted by this international forum on water. Almost a decade ago at the
Madrid Peace Conference, a vision for the Middle East was articulated. This
conference launched the formation of a multilateral framework to address a
number of issues in the Middle East, one of them being regional water issues.
The fundamental objective of the multilateral track has been to lay the
foundations for a just and sustainable peace by creating a dialogue that
transcends the scope of bilateral negotiations. From the outset, the purpose
was three-fold:
Support the bilateral talks of the Peace Process;
THE MADRID CONFERENCE AND THE BIRTH OF THE MULTILATERAL PROCESS
The Middle East multilateral peace process and
its bilateral track began with the Madrid
Conference in October 1991. Although the stated objective at Madrid
was to begin a process to resolve the Middle East conflict, this objective
was viewed in the broadest possible perspective. From the outset, the
conference pursued a peace settlement that extended beyond the
normalization of relations between warring parties. The message underlying
the Madrid Conference was that the time had come to shed the old paradigms
of the Middle East conflict and focus on the future.
The peace process partners agreed to establish a
multilateral track in addition to the bilateral track. The two-track model
adopted at the Madrid conference reflected the commitment of the
participants and co-sponsors to build an additional dimension into the
peace process. The decision to launch both a bilateral and multilateral
track was not just the result of compromise between opposing approaches to
negotiations. The bilateral track was designed to concentrate on the
political issues of territorial control and sovereignty, border
demarcations, security arrangements, and the political rights of the
Palestinians. The multilateral track was established to examine a range of
more technically oriented issues that extend across national boundaries
and the resolution of which, is essential for the promotion of long-term
regional development and security. The focus of the bilateral process
would deal with problems inherited from the past, and the multilateral
track would focus on issues that would shape the future of the Middle
East.
A framework for the multilateral
track was established in January 1992 at the Moscow Multilateral
Middle East Conference, a forum that included thirty-six delegations from
around the globe. There was consensus to establish five multilateral
working groups and a steering group to coordinate the activities of the
various working groups. The Multilateral
Working Group on Water Resources (MWGWR) is one of these five groups.
FROM VISION, TO ACTION: THE MULTILATERAL WORKING GROUP ON WATER
RESOURCES MODEL FOR COOPERATION
The model for cooperation incorporated in the
multilateral peace process is premised on the vision of creating synergies
through awareness of common problems, such as water. By concentrating on
the common problem of regional water scarcity, the participants in the
process have been able to transcend the realm of competing interests and
create a situation in which, all parties share benefits. The central focus
is placed on creating a positive dynamic that will lead to tangible
results in solving common water problems and that will foster actions that
will translate I into effective regional cooperation. This dynamic is
self-reinforcing. Regional awareness and sensitivity to common needs lead
to the conceptualization and definition of regional problems. This leads
to a search for regional solutions, which then are channeled back into the
process of bilateral problem solving between parties, and promotes
synergetic regional cooperation. Once tangible milestones of regional
cooperation are achieved, regional awareness is reinforced and the
momentum is perpetuated.
Characteristics of the Multilateral Model
The model of cooperation exhibited in the
multilateral framework has been a model-in-the-making. No preconceived
limitations or requirements were developed or applied. At the same time,
however, a common ground was fostered and reinforced by specific
organizational and behavioral practices. The process has been gradual,
deliberate, and, at times, laborious, requiring procedural definition,
ratification of decisions by each of the participating regional parties,
and the support (financial and otherwise) of the various donor parties
involved. The progress that has been achieved, both in terms of project
completion and confidence, building, can be attributed to a number of
important factors:
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Articulated goals: Goals were articulated
in broad terms by the regional participants themselves, and great care was
taken to maintain the general nature of these goals throughout the various
stages of the projects. The fundamental approach by all participants was
technical in nature.
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Seeking a common denominator: The parties
realized that the process would be gradual, and that the ultimate. goal
was to find a common. denominator among the various positions rather than
to focus on furthering national interests at the expense of the other
parties. This action kept the focus of discussions on the future and led
to a situation in which the success of the multilateral track was not
contingent exclusively on progress made in bilateral negotiations.
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Participation of the international community: The support and participation of the international community was strong
and, at times, crucial to the continuation of the process. The role of the
donor nations was proactive and not limited to financing or occasional
mediation. It reflected an international commitment to create a long-term
solution to Middle East water problems that would be based on cooperation
rather than mere compromise. While the international community role in
"shepherding" new projects was essential early in the process, a
sign of the success of the multilateral track is that their role has
changed to that of a project funding donor and a partner with the
participating parties. A further measure of success is that during a
period of comparative stagnation in the peace process, multilateral water
activities have continued to achieve, and even expand, their original
objectives.
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Orientation on results: Program emphasis
was placed on agreeing to pragmatic measures for future implementation.
High priority was placed on activities that provided visible, positive
results tot encourage public acceptance of the process. All sides
endeavored to attain tangible, recognizable achievements or measures that
could be translated into action when political circumstances permitted.
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Consensus decision-making: Decision-making
was by consensus which means that the outcome of deliberations reflected
acceptance by all the parties. This approach does not require that all
parties enter with similar objectives or that all parties are equally
committed to the outcome, but it does require that all parties can live
with the decision. It also injects a basic equality into the process, as
each individual party has the ability to veto a given proposal. Moreover,
it allows issues to be raised openly as a focus of discussion rather than
bargaining. Ultimately, consensual decision-making fosters mutual
sensitivity to the, needs of the other parties. In order to be effective,
veto power is used sparingly to reject only those proposals to which a
party has a strong objection. This differs from traditional bilateral
modes of negotiation where each side tries to gain an advantage by seeking
optimal solutions for themselves.
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High-level participants: The Working Group
was comprised of high-level decision-makers in the water sector who were
able to forge long-term personal and professional relationships. In most
cases, these professionals represented their respective governments in
other international forums, such as the Barcelona Process, and were able
to leverage regional contacts to further international networking for
themselves and the constituencies they represented.
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Comparable technical capability: Early in
the process, consensus was reached that special attention should be paid
to capacity building in the Palestinian Authority. This was an absolute
requirement for Jordanian, Israeli, and Palestinian participants to be
able to establish and maintain a comparable technical and scientific
level.
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Project flexibility: Most of the projects
were designed to be flexible in order to allow the inclusion of additional
regional participants and project elements with time. Follow-on,
complementary activities also could be incorporated easily within a given
project or activity in a manner that promoted organic growth and synergy.
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Informal atmosphere: Generally,
multilateral activities were conducted without a protocol - a situation
that encouraged participants to speak freely and openly. Multilateral
discussions were low-key, and rarely allowed to attract public attention.
Decisions reached did not formally commit participating parties to a
specific course of action, and the projects undertaken were pragmatic
rather than declaratory in purpose. This informality became particularly
important when the formal multilateral framework was suspended. The
Group's legitimacy essentially resulted from its activity.
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Public/private sector cooperation: Not only
were many participants in the multilateral track technical specialists,
rather than politicians or diplomats, but several came from the Private
sector. This was particularly, but not exclusively, the case in project
activities carried out under the aegis of the MWGWR and applied not only
to technical experts from outside the region, but also to experts from
within the region.
MULTILATERAL WORKING GROUP ON WATER RESOURCES
As in many regions. of the world, water in the
Middle East has been a point of contention for many years. The demand for
quality water in the region historically has been a major issue of
concern. The interdependency among the parties on common water resources
only complicated matters. The scarcity of quality water in the region was
designated by the multilateral track as one of five key issues that should
be addressed on a regional level. It was felt that if the inherently
bilateral issues, such as water rights and the allocation of existing
resources, could be set aside, water could serve as a catalyst for
cooperation and the advancement of peace. The multilateral framework
enabled the regional participants to create positive scenarios from what
was essentially an inwardly focused negotiation. This added dimension to
the bilateral track of peace negotiations accentuated the positive and set
the stage for capitalizing on potential synergies arising from the peace
process.
The MWGWR was established with the vision that
water could become a source of cooperation rather than contention. By
focusing on the big picture, i.e., addressing the gap between the supply
and demand for water in the entire region both east and west of the Jordan
River, the parties could create a positive dynamic that would help the
region enhance water resources and, at the same time, add substance to the
peace process.
Essentially, the idea was to move the focus from
an internal need to control the limited water resources to a concern for
the greater good of the regional population. In the 8 years that have
passed since the Conference in Madrid, the MWGWR has succeeded in shifting
the focus and in laying the cornerstone for regional capacity building in
the field of water management. This shift has contributed to practical
collaborative solutions to the Middle East's common water problems within
existing political reality. The organization and human dynamics behind the
multilateral process provides a model for regional cooperation that can be
emulated in other regions in the world.
The initial membership in the MWGWR was comprised
of 47 delegations, which included 15 regional parties and 32
extra-regional or donor nations, institutions, and organizations from
around the globe. A number of the participants were water professionals
with little or no previous formal experience in politics or diplomacy.
The primary aim of the Working Group on Water
Resources is to create an awareness of water issues from a regional
perspective. More specifically, the Group's objectives as articulated in
Moscow, are to foster cooperation and coordinate efforts to ameliorate
water problems through activities done under the group's four agenda
items:
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Enhancement of water data availability;
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Water management practices, including
conservation;
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Enhancement of water supply; and
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Concepts of regional water management and
cooperation.
While the direction of the multilateral track was
established in Moscow, there was no certainty at the outset of the process
that the multilateral track would succeed. No clear guidelines as to the
organization or formal procedures that would govern the group were
formulated before the launching of the multilateral track. There also was
no clear indication as to the specific character or scope of the projects
that would be undertaken in this new framework. In fact, some of the
parties declined to participate in the multilateral discussions believing
that they were premature. Despite this, a sense of common purpose did
develop over time and structural norms were established. General goals
were translated into clearly defined projects and specific on-going
activities.
The activities initiated and sponsored by the
Working Group varied in character and scope. They included regional
studies; the establishment, upgrading, and standardization of regional
water data networks; a multifaceted training program; a regional
desalination research center; workshops; and various local projects. Some
of the projects were structured as a cluster of specific activities that
could be enhanced modularly and adjusted with time. Other activities were
more strictly defined and focused on specific regional and local
activities. All projects conformed to the Moscow agenda and many
encompassed more than one of the four specified MWGWR agenda items. They
emphasized pragmatic operational measures that either would be implemented
as part of the original project activities or could be applied expediently
at some time in the future. These projects lay the groundwork for future
collaboration by preparing the building blocks from which cooperation
could be realized. In this sense, the MWGWR projects represented initial
steps towards regional capacity building; i.e., the creation of mechanisms
for action on a regional level where none existed previously.
Between 1992 and 1996 the MWGWR convened formally
nine times, both within and outside the MENA region. The last Working
Group meeting was convened in Hammamet, Tunisia, in May 1996. Between
plenary meetings, the Working Group held intersessional activities on a
frequent basis. These intersessional activities rendered continuity to the
collaboration among the parties and served as the engine driving the
MWGWR's programmatic progress.
Since 1996, despite the lack of formal MWGWR
meetings, work has continued unabated on the original projects with a
modest expansion of project activity to meet emerging needs and increasing
capacity for regional cooperation. The Major Elements of the Water Problem
in the Middle East Several major elements can be identified that
characterize the nature and scope of the water issue in the Middle East.
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Chronic Water Scarcity: There is an
ever-widening gap between the demand for quality water and the existing
supply. This fundamental problem cannot be addressed by the allocation of
existing resources. "New" sources of water must be created in
order for all parties in the region to meet their growing water needs.
Enhancement of water supply through technology and efficient water
management at the regional level are essential components to addressing
water scarcity. Structural changes in regional economies also will be
necessary to control the ever-increasing demand for water.
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Interdependence on Water Resources: Water
is a shared resource. Ninety percent of the surface water in the region
transcends at least one border and ground-water resources are shared
between the Israelis and the Palestinians. This system creates
interdependencies that require cooperation between the parties if optimum
use is to be achieved.
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Social, Economic, and Political Differences: The parties in the region have distinct social, political, and economic
systems and water regimes. Differences between the basic outlook and
agendas of the various parties must be acknowledged and overcome if water
problems are to be confronted and resolved at a regional level.
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Political Volatility: The pattern of
relations among the parties can be described as variable, ranging from
open hostilities to full negotiated peace. Although the momentum for peace
has been set in motion, the process is not complete and the relations
among the parties are subject to a high degree of fluctuation.
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Undefined borders: Despite some progress
during the peace process, many of the borders in the region are not
recognized internationally. As a consequence, the rights to access water
resources within those borders are undefined and can be a contributing
factor in regional tensions.
Although these elements characterize
circumstances in the Middle East, they are common, to some degree, to
other regions of the world. The scarcity of quality water, whether
resulting from limited availability or uninformed management, rarely
respects political boundaries. Water resources often are shared between
different political entities, and riparian claims can impair otherwise
normal peaceful relations between states. Disparity between socioeconomic
and political systems, also is common between neighboring states, and all
regional" water systems are affected somewhat by politics.
Accordingly, the adoption of an approach that looks beyond divisive issues
and attempts to create common ground for effective water management on a
regional scale is not unique to the Middle East.
UNITED FOR WATER: THE PROJECT PORTFOLIO
Projects undertaken by the MWGWR were chosen
based on their contribution to the four agenda items outlined at Moscow:
a) enhancement of water data availability; b) water management practices,
including conservation; c) enhancement of water supply; and d) concepts of
regional water management and cooperation. Each project fell under at
least one of these agenda items, While, some, fit into more than one
category. The projects were designed to provide technology transfer and to
achieve pragmatic results. Conclusions included recommendations for
institutionalizing regional cooperation in some form by either
implementing joint infrastructure projects, building regional institutions
and training centers, or preparing the elements necessary for regional
action.
Initially, projects generally involved
participating regional parties and a donor nation or institution that
served as a shepherd or facilitator. The original projects generally were
initiated by the donor party, with consensus acceptance by the
participating regional parties. As time went by and collegial
relationships developed, the participating regional parties assumed a more
active role in proposing additional activities and refining proposals made
by the other members of the MWGWR. For the first time, the participating
regional parties were able to articulate in a consensual manner the
nature, scope and needs of regional water issues. A joint statement issued
in February 1998 summarizes their newly developed awareness concerning
regional water problems. "Although, each core party has some limited
potential of unexploited local water resources and can improve the
efficiency of water use, the future water gap can only be covered through
the provision of new and additional water to the region."
The major projects undertaken by the MWGWR are
outlined below:
The project portfolio of the Multilateral
Working Group on Water Resources
Enhancement of water data availability
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Regional Water Data Banks
Water management practices, including
conservation
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Public Awareness & Water Conservation
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Optimization of Intensive Agriculture under
Varying Water Quality Conditions
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Comparative Study of Water Laws & Water
Institutions in the Region
Enhancement of water supply
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Regional Water Supply & Demand Study
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Middle East Desalination Research Center
Concepts of regional water management &
cooperation
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Water Sector Training Program
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Declaration on Principles for Cooperation Among
the Core Parties on Water Related Matters & New and Additional Water
Resources
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Water Atlas
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Waternet
Enhancement of Water Data Availability
Regional Water Data Banks Project
The three participating regional parties, with
support from Australia, Canada, the European Union, France, The Netherlands,
and the United States are implementing a project to establish, upgrade, and
standardize regional data banks of hydrologic data. Norway also has made a
substantial contribution to the Palestinian Water Authority that supports
the goals of the project. The project is an ongoing capacity-building
measure to enhance future cooperation in water management. It was approved
in 1994 and launched in January 1995 with the formation of the Executive
Action Team (EXACT), a regional oversight group consisting of members
from the participating regional parties and representatives from active
donor countries.
Thirty-nine priority recommendations were
identified and agreed-upon by the participating regional parties, plus Work
Package A, which is a series of actions designed to establish and promote
capacity building within the Palestinian Water Authority. Examples of work
undertaken by the Regional Water Data Banks Project the creation of regional
directories of water resource professionals, institutions, publications, and
projects and studies, compatible geographic reference systems, standardized
data collection procedures and forms, standardized laboratory analytical
methodology, development of mobile laboratories; participation in a regional
laboratory quality assurance program, access to a wide area network, and
joint training in a wide variety of hydrologic topics. These activities have
resulted, in several publications as well as the adoption of standardized
procedures among the three participating regional parties.
Additional actions that have been undertaken within
the regional Water Data Banks Project include significant hardware elements
that have enhanced the ability of the parties to monitor water systems.
Specific local infrastructure projects that have been completed as part of
the MWGWR initiative include:
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Mobile laboratories to locate and monitor
polluting agents;
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Telemetry equipment for early warning of natural
disasters; and
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Computer and communications equipment.
The original project profile made possible the
expansion of ongoing initiatives, even though the formal operation of the
multilateral framework was suspended in 1996. The success of the early
project initiatives opened opportunities for more comprehensive
cooperation and has provided an Opportunity for the participating regional
parties to dialogue focused on common water issues. Effective, teamwork
among the Working Group members, in particular the participating regional
parties, contributed immeasurably to the continued success of the MWGWR
programs and their ability to attract donor assistance.
Over the past 5 years, eleven EXACT meetings have
been convened. In addition, there have been scores of meetings among the
participating regional parties to implement the project recommendations,
keep the activities pertinent to regional needs, and to examine desirable
expansion of ongoing activities. At the meeting held in Amman in May
19,99, five additional projects were approved by EXACT:
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Rehabilitation of field equipment for flow
measurement and upgrading laboratory equipment to enhance regional
compatibility - in conjunction with the European Union.
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Initiation of a regional pilot project for the
real-time collection and transmission of hydrological data - in
conjunction with France.
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A pilot project to treat polluted local water
sources - in conjunction with The Netherlands,
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Development of hydrological models for the
infusion of marginal water to underground aquifers - in conjunction with
The Netherlands, and
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Establishment of a regional data base on high
intensity precipitation events - in conjunction with the United States.
Water Management Practices, Including Conservation
Public Awareness and Water Conservation
Project
At the 1996 MWGWR meeting held in Tunisia, the
Working Group initiated a project to focus on awareness programs for water
conservation. Regional participants included Egypt, Israel, Jordan,
Morocco, Oman, the Palestinian Authority, and Tunisia. The U.S.led program
includes technical assistance in determining the best practices for
establishing public awareness campaigns and educational programs. Public
awareness campaigns for water conservation were run simultaneously in
Israel, Jordan, the Palestinian Authority, and Tunisia. The local
campaigns of Jordan, Israel, and the Palestinian Authority then were
compiled into a video depicting the regional problem of water scarcity and
the means to address the problem. As. the next phase, Israeli, Jordanian,
and the Palestinian representatives agreed to extend activities by
introducing an educational program on water and water conservation into
their school systems. Unlike previous school curricula, this educational
program will approach the issue of water from a regional perspective. The
project was adopted May 1999, and incorporation into the school curriculum
is planned for September 2001. This project signifies the first time the
Israeli, Jordanian, and Palestinian school systems will teach a jointly
developed and identical regional program.
Optimization of Intensive Agriculture Under
Varying Water Quality Conditions
This project was initiated in 1996 by Luxembourg
and involves the Palestinian Authority, Morocco, and Israel. The aim of
the project was to set up a demonstration farm in Beit Hanoun for
technology transfer in the field of water use. The focus of the project
activities is placed on developing the use of saline and brackish water
for sustainable fanning in Gaza. Project implementation is led by Al-Azhar
University of Gaza.
Comparative Study of Water Laws and Water
Institutions in the Region
A comparative survey outlining the legislative,
regulatory, institutional, and pricing framework of water-resource
management in various Middle Eastern countries and territories was
conducted by the Norwegian government through the Center for Environmental
Studies and Resource Management, a non-governmental organization known as
"CESAR." In the first stage, common denominators among the
various water management systems were identified. The detailed comparison
among the various water regimes established a potential starting point for
consensual formal cooperation in the future. The study's appendices
included a compilation of English translations of the various water laws
and water authority by-laws as presented by each party.
Enhancement of Water Supply
Regional Water Supply and Demand Study
This three-stage study was sponsored by the
German government. The first stage, completed in 1996, involved collecting
current and projected data for the years 2010, 2020, and 2040 from the
three participating regional parties. Demand was compared with supply and
water quality data, and the magnitude of the gap between supply and demand
was calculated and modeled for these periods.
The second stage examined alternative strategies
for bridging the gap: seawater desalination, conveyance via pipelines from
fresh water sources near the region, and conveyance by sea from outlying
sources, such as Turkey.
Each regional participating party examined a
different strategic alternative. Desalination was found to be the
alternative that best met the criteria of technical and economic
feasibility. The third stage of the project where the participants
identified priority activities for implementation, was completed in
February 1998. The key recommendation arising from this study is the
proposal for joint development of prototype desalination plants on the
Mediterranean and Gulf of Aqaba coasts. It is estimated that this project
could be implemented within 3 years at a cost of $30-$50 million. The
participating regional parties have approached the German government for
assistance, and discussions currently are being held on this matter.
Middle East Desalination Research Center
The Middle East Desalination Research Center (MEDRC)
was proposed by the government of Oman in 1994, endorsed by the
Multilateral Working Group on Water Resources, and inaugurated in Muscat
in December 1996. The United States, Oman, Japan, Israel, the European
Union, and Korea contributed financial resources to fund its establishment
and initial operation. The Center's mission is to conduct, facilitate,
promote, coordinate, and support basic and applied research in water
desalination and supporting fields; and to raise the standard of living in
the Middle East and elsewhere by reducing costs and improving the quality
Of the technical processes involved in water desalination. It coordinates
and sponsors basic and applied research, initiates training programs in
desalination, promotes electronic networking, and encourages regional
cooperation towards the development, and improvement of desalination
technology.
Objectives of MEDRC are:
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Discovering, developing, and improving methods of
desalination through basic and applied research.
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Initiating training programs in the field of
desalination to develop expertise as well as technical and scientific
skills.
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Promoting electronic networking communications to
improve the dissemination of technical information on desalination.
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Establishing regional cooperation and work to
foster progress in the development, improvement, and use of water
desalination and related technical areas.
MEDRC has co-sponsored seminars and workshops
worldwide with partners from the Middle East, Asia, and Europe, and has
constructed a website at www.medrc.org.om as well as a data bank and on-line bulletin board to promote partnering in
research projects.
To date, five Requests for Proposals have been
announced, generating seventy project proposals. Seventeen multinational
research projects have been awarded resulting in twenty-seven
organizations in twelve countries working on projects primed and assisted
by MEDRC. Together, this represents a total project budget of 2.4 million
dollars.
Concepts of Regional Water Management and Cooperation
Water Sector Training Program
The MWGWR undertook a regional water sector
training needs assessment to identify human resource technical
requirements and to develop skills required to effectively manage regional
water resources. As a result of the need for assessment, approximately 275
water resource personnel from the region were trained in seminars and
courses held in Australia, Egypt, France, Israel, Japan, The Netherlands,
Norway, Oman, the United Kingdom and sponsored by the donor parties of the
MWGWR. The participants came from Egypt, Israel, Jordan, Morocco, Oman,
the Palestinian Authority, Saudi Arabia, Tunisia, and Yemen.
Declaration on Principles for Cooperation
Among the Core Parties on Water-Related Matters and New and Additional
Water Resources
Following the 1995 completion of the
Norwegian-led Comparative Study of Water Laws and Water Institutions in
the Region, participating, regional parties entered into discussions to
develop a Declaration
on Principles for Cooperation on Water-Related Matters and New and
Additional Water. In initialing the formal Declaration, the
participating regional parties jointly resolved to cooperate in the
development of new and additional water resources. They recognized the
importance of:
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Developing regionally compatible legal, economic,
and institutional frameworks, and
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The ability of the participating parties to
cooperate based on identified common denominators among their respective
water management systems.
In addition to documenting the common
denominators among the systems, the Declaration details avenues for
potential cooperation in developing new water resources and in other
water-related matters, should the participating regional parties decide to
move the process forward.
Water Atlas Project
Initiated by the Norwegian government, the Water
Atlas is a comprehensive data base of historic, scientific, technical,
legal, and economic literature (occupying some 850 pages) regarding water
resources and related issues of Israeli, Jordanian, and Palestinian
interest. This database was provided to the participating regional parties
to use as a tool to facilitate future discussions and activities.
Miscellaneous Activities Completed
Waternet Project
The Waternet Project, established by the
Norwegian Government in 1996 is the first joint initiative by the
participating (Israeli, Jordanian, and Palestinian or "Core")
parties to implement parts of the Declaration on Principles. The project
has three main parts. First, Waternet-Local establishes a computerized
information system to display relevant local water information. It is
designed to meet internal objectives related to water information. The
initial focus of the Waternet Information System (WIS) is on the
development of a module called Water Library and Information
Navigator" which features water-related bibliographic information.
Three computer node sites have been established by each party.
Waternet-Regional, the second part of the
Waternet Project, will assist the participating parties to form a shared,
computerized regional water information system. It is designed to link the
Parties' local nodes, thus permitting regional sharing of water
information.
The third part of the Waternet Project is
establishment of a Regional Waternet and Research Center in Amman, Jordan.
The objectives of the Center, which is expected to begin operation in
2000, are to develop and maintain the Waternet, to stimulate regional
cooperation on water-related matters, to initiate new regional and joint
activities, and to promote cooperation among the Core Parties as outlined
in the Declaration on Principles. The Waternet Steering Group, consisting
of regional representatives, Norwegian project implementers, and technical
experts as needed, meets regularly to lead, monitor, and evaluate the
project. A Local Steering Group and a Local Technical Group provide
further assistance and support.
IDENTIFIED NEEDS - FUTURE ACTIVITIES
Demonstrating the "ground-up" approach
by the regional party members over the years, they have compiled a list of
priority projects that require a source of funding. I This list focuses on
expanding the preliminary work already accomplished and includes, in some
cases, the, procurement of selected field equipment for various regional
water projects.
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Pilot artificial recharge studies.
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Waste water treatment for small communities.
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Digital geological mapping of the region to
facilitate data analysis, modeling, and monitoring.
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Identify sources of water pollution and waste
water reuse.
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Estimation of groundwater recharge taking account
of soils and geology.
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Development of brackish ground water.
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Water treatment and artificial recharge.
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Instrumentation and equipment - modern monitoring
equipment could enhance reliability and accuracy of water data.
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Geophysical methods.
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GIS - application and linkages to enable use of
modem mapping and spatial analysis techniques.
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Decision support system.
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Regional water resources model. Impact of climate
change.
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Regional water quality field manual to enable
regional standardization of procedures.
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Periodic water situation report.
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Implementation of a comprehensive quality control
process in each water quality laboratory.
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Digitize historic water-resources data (currently
in paper files).
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Update directories (experts and projects) and
bibliography.
UNITED FOR PEACE: COOPERATION AS A MEANS TO CONFIDENCE BUILDING
The progress attained at the programmatic level
would not have been possible without the development of mutual trust and
credibility among the participating regional parties. The success in
confidence building is evidenced by two major outcomes of the process. The
MWGWR has been at able to continue operations during the fluctuations of
the political climate of the bilateral track. In addition, the
participating regional parties have come together not only to implement,
but to expand ongoing activities within the multilateral framework.
The process of confidence building has been
dynamic, complex, and vulnerable to a wide array of elements. Despite
significant progress, however, this process is still in the making. Rather
than mitigating problems that arose within the bilateral framework, the
multilateral track served as an additional sounding board for traditional
grievances. Only after the parties had reached the first stage of the
bilateral track (the interim agreements between the Israelis and the
Palestinians and the peace accord between the Jordanians and the
Israelis), were the parties able to make significant progress on the
multilateral track. Difficulties were encountered At several junctures on
the way. At times, national interests intervened and the development of
specific programs had to change course, but they did continue to move
forward. This ability to change direction and to reach consensus is
directly related to confidence building measures and empathy developed as
a result of the multilateral activities. In the final analysis, momentum
has been positive and a mechanism that can drive operation to higher
levels has been created.
The participating regional parties have gained
credibility not only in their dealings with one another, but with the
donor nations as well. In many cases, they have cast off their earlier
role as passive recipients and have become the initiators of regional
water projects. As a sub-group, the participating parties today are able
to better articulate local and regional needs and function as active
partners in the design and direction of future initiatives. Today, the
MWGWR represents a focal point to which additional projects can be
directed and from which they can be effectively carried out.
The role of the donor parties has been crucial,
unbiased and dedicated leadership - coupled with a continuing commitment
of funds and personnel has sustained the process throughout nearly a
decade of existence. Working relations between the donor representatives
and the regional participants have emerged as a real partnership and
transcend the traditional donor-recipient relationship.
The participating regional parties have assumed,
an increasingly pivotal role. Growing trust and credibility among the
parties has resulted in their active involvement to initiate and define,
new projects. Original project profiles have been modified to more
accurately address regional needs. This aspect will be particularly
important in the implementation of capacity building and infrastructure
projects. It also is a key element in attracting donors to support
expansion of the original project portfolio.
INTERACTION BETWEEN THE BILATERAL AND MULTILATERAL FRAMEWORKS
Despite attempts to keep a clear and well-defined
division between the bilateral and multilateral tracks, it is apparent
that each was affected by the other. As bilateral relations improved in
the early years of the process, cooperation in the multilateral framework
intensified. In this respect, it is important to note that numerous
Israeli, Jordanian, and Palestinian representatives participated in both
the bilateral and multilateral tracks of the peace negotiations.
However, when problems beset the bilateral track,
they did not automatically spill over into the multilateral framework.
Although difficulties in the bilateral track political process did create
some obstacles, the process of confidence building in the earlier years
clearly paid off. The Multilateral Track of the MWGWR may have had to
change gears but, nevertheless, it maintained its positive momentum.
The" participants maintained focus on long term goals and the
multilateral projects continued in a less formal mode. This informal
framework not only enabled the continuation of existing projects, but also
the funding and expansion of projects to meet emerging needs. The
confidence built before 1996 kept the process robust and resilient to
changing political realities. Informal meetings of the MWGWR were held in
1998 and 1999. More, importantly, informal meetings among the
participating regional parties were convened on an irregular, as needed,
basis. This new forum allowed the participating parties to jointly plan
new project initiatives and present the plan to donor nations.
FUTURE DIRECTION FOR THE MULTILATERAL WORKING GROUP ON WATER RESOURCES
- WHAT LIES AHEAD?
The multilateral peace process has proven to be
an effective mechanism for positive change. The working relations that
have been established among the participating regional parties offer an
unprecedented opportunity to move forward into new ventures that will
support regional growth, prosperity and peace. Nothing in life is static.
Either we grow, or we stagnate and wither away. Like life, the MWGWR must
be an evolving process. We must continue to grow, and we can capitalize on
the momentum and resources that have been established over the past
decade. To foster this progress, a higher profile for the MWGWR and its
activities is now in order.
The MWGWR offers a viable process to undertake
larger scale infrastructure projects that will physically demonstrate the
benefits of the multilateral framework. An excellent starting point would
be construction of the prototype desalination plants on the Mediterranean
and the Red Seas. This proposal is a direct outcome of a working group
study that demonstrates the possibility of creating as much as 10 MCM of
additional water annually in these areas.
The MWGWR should endeavor to bring other parties
from the MENA region into the process. Systems developed in the Regional
Water Data Banks and Waternet Projects easily can be extended to include
other regional parties. The many countries that participated in the
Regional Training Program represent potential partners for ongoing and
future activities.
Having proven the effectiveness of the
multilateral framework, can we extend and enhance the. project portfolio
to include, other topics that involve water management for sustainable
development, such as the potential future activities listed earlier? In
addition, regional water issues that can be addressed effectively Within
the multilateral framework and, ideally, in conjunction with the
Multilateral Working Group on the Environment, include:
The last chapter in the Middle East Peace Process
has yet to be written. Regardless of the outcome the MWGWR is a tried and
proven model And a process for effective regional cooperation in water
issues that can be applied in, other areas of the world. The combination
of commitment towards the common objective of fostering regional
awareness, directed project definition and planning, the. inclusion, of
confidence building measures as an integral part of the, group's raison
d'etre, effective teamwork, and proactive international guidance has led
to the creation of a positive dynamic that facilitates capacity building
on a regional scale. The success of the multilateral framework, as,
reflected in, the MWGWR's decade of existence, should serve as a beacon to
the rest of the world as to what CAN be accomplished by working
cooperatively on a regional level. We stand ready to share our experience
in developing regional partnerships with those who may be just beginning
the complex and daunting task of resolving national differences to enable
both sharing and effective management of water resources. Join us. We
welcome you!
Sources: Israel Ministry of Foreign Affairs |