Nicaragua: Evaluation of the National Water Action Plan

Without doubt, one of the most significant initiatives that the Government of Nicaragua has taken towards the introduction of sustainable criteria in the use and management of natural resources has been that of the Environmental Action Plan of 1994. This Plan had as its central theme, the formulation of a policy and associated strategies for the rational development and management of water resources.

The project was conceived as one of training and transfer of technology, within which, and by means of short inputs of international experts, the Action Plan would be developed by staff of national institutions aided by local consultants. In this way it was hoped to strengthen the concept of local project “ownership”. The team consisted of experts in the technical aspects of water resources, its institutions, water legislation, sociology and economics, backed up by local experts in similar fields. This concept was theoretically sound, but given the novelty of the project and its concepts, it would have been better to assume a greater expatriate participation at project commencement, gradually reducing this level as the project progressed in accordance with the transfer of technology achieved.

The project approach was based on the principles of integrated management of water resources in such as manner that a wide range of management tools were to be considered. In addition to basic technical solutions, other institutional, legal, sociological and economic components were identified as necessary to provide a sustainable solution to the problems encountered.

The concept of an Action Plan versus a Master Plan was a key element in the definition of the methodology of the project execution. As understood in the project, Master Plan provides a framework for water resources development, while an Action Plan contains specific actions to be taken to enable the elements of Master Plans to be effectively and sustainably executed.

After 29 months, 13 documents in total were presented, covering the following topics which includes a proposal for a National Water Resources Policy, a Draft Water Law, a Rapid Water Resources Assessment at national level, case studies of Rapid Water Resources Assessment at local level, an Institutional Assessment, Recommendations for the use of economic instruments, An information system for water resources, Sociological studies at local level and an Action Plan.

A key recommendation emerging from the project was the establishment of an independent and neutral water authority, recognizing the continuing contribution of the National Water Resources Commission, and the need to harmonize and put into operation its functions. The Draft Water Law addressed the need for establishing a system of water rights and licenses for water use, to be administered by the water authority.

There was a lack of the concept of local “ownership” of the project, which, at the same time, resulted in a lack of political will to implement the necessary changes. The fact that there has been little or no implementation of the Action Plan recommendations indicates the lack of ownership and driving force of the project at the national level.

The donor failed to follow-up the Action Plan after its conclusion, and this was a critical period in the establishment of the fundamental actions and in the maintenance of the interest of the participants. Since this follow-up was not forthcoming, staff returned to their institutions and the momentum of the project was lost. To carry out the recommendations of the Action Plan, Nicaragua must look to how to strengthen the institutional environment so there are fewer cases of institutional jealousy and a greater political will to carry out the proposed actions.

Nonetheless, given the nature of the project, the programme and the donor’s expectations could be considered as too ambitious. Projects of this type must recognise the need to overcome the strong resistance to change. These processes need time to come to fruition and it can often take years to achieve a suitable environment.