Policy and pragmatism in South African groundwater management

Changes to South African water law and policy since the mid-90s have promoted integrated water resource management (IWRM) and the wider application of the principle of subsidiarity (decentralization), underpinned by the Constitutional emphasis on equity, human rights and redress. New water management organisations aim to promote equity, universal access to water, economic prosperity and gender equality but the reality, especially for groundwater, is less inspiring. The Water Act of 1998 envisages new organisations including Catchment Management Agencies (CMAs), Water User Organisations (WUAs) and Water Service Authorities (WSAs), but in many cases these organisations have inadequate capacity or do not exist at all. Only two of the nine (formerly nineteen) CMAs have been formed in more than fifteen years, and neither is yet financially self-reliant. The onerous process necessary to found a WUA and other disincentives have meant that fully-fledged WUAs as envisaged by the Water Act are rare. Hydrogeologists are unusual at Water Service Authority level, and the Department of Water and Sanitation (DWS) still assesses most groundwater resources. This has stoked argument between DWS and WSAs over long-term sustainable municipal water supplies. Our mandated organisations are not delivering the outcomes for groundwater that policy makers envisaged. Municipalities campaign for surface water instead of groundwater, yet groundwater is still the mainstay of rural water supply and has the most promise for underserved areas. Intractable problems with operation and maintenance are wrongly blamed on the primary groundwater resource, or on "shortages" of one kind or another. There is a need to emphasise function and outcomes rather than trust that these will follow automatically once "the right" organisations are in place. A hybrid of top-down expertise with a genuine focus on local outcomes is called for. We currently pay a considerable opportunity cost for delays, turf-wars and finger pointing - including reputational damage to groundwater as well as less reliable water supplies for the poorest South Africans.