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Roping in China to deal with challenges of the Mekong

16 May, 2018
Wang Yan, The Third Pole

Mekong.jpg

Mekong river | Photo credit: Akuppa John Wigham/Flickr [CC BY 2.0]

In a candid interview, the head of Mekong River Commission, Pham Tuan Phan, talks about how important it is to involve China to sustainably develop the river basin.

Although the Mekong is popularly seen as a South East Asian river, its headwaters are located in China, where it is known as the Lancang. From there it flows through Myanmar, Laos, Thailand, Cambodia and Vietnam. The future of the Mekong, though, will be heavily impacted by large hydropower dams in China and in the downstream countries. The question of what this future will look like was one of the main discussion point at the third summit of the Mekong River Commission (MRC), held on 5 April 2018 in Siem Reap, Cambodia.

The MRC is an important intergovernmental organisation that aims to improve cross border management and sustainable development of the Mekong between Thailand, Laos, Cambodia and Vietnam, with Myanmar and China participating as “dialogue partners”. It works on fisheries, flood control, hydropower, irrigation and navigation.

At this year’s summit, the MRC released findings of a new study it commissioned to provide a detailed analysis of the costs and benefits of hydropower. Carried out between 2012-2017, the study, which is not peer-reviewed, claims that damming the river for power generation will have huge implications for the region.

By 2040, hydropower development could deliver a whopping 16-fold increase in economic benefits. But new dams may reduce income from fisheries by up to 15% and reduce sediment reaching the river mouth by as much as 97% by 2040. Loss of such nutrient rich sediment would be disastrous for fish and agriculture, particularly in the delta.

As investment rushes into hydropower development in the Mekong River Basin, what can intergovernmental platforms such as the MRC do to promote economic and environmental justice? What role does China play in lower Mekong affairs? To discuss these questions, we sat down with Pham Tuan Phan, chief executive officer of the MRC.

Wang Yan (WY): What is your perspective on hydropower construction along the Lancang Mekong River?

Pham Tuan Phan (PTP): At the core of our work (the 1995 Mekong Agreement to cooperatively and sustainably develop the river basin), any proposed construction of hydropower dams on the Mekong mainstream requires prior-consultation, under the MRC Procedure for Notification, Prior Consultation, and Agreement (PNPCA).

The Council study results are very clear that countries’ plans are not optimal and sustainable from a basin-wide perspective. It is understandable as countries plans are made from a national perspective. The MRC will bring countries together to optimise their future plans to increase benefits and reduce potential costs.

I am very interested in the Senegal River Basin (shared between Mali, Mauritania and Senegal) and other examples where countries have jointly owned and operated dams. Such cases tell us that only through joint investment, and sharing costs and benefits, will countries address the bigger impacts of development.

At the same time, the MRC is now working with member countries to develop a joint environmental monitoring scheme for the current mainstream dams. The development of this scheme is based on the recommendations of the past prior consultation processes of three proposed mainstream dams: Xayaburi (2011), Don Sahong (2015) and Pak Beng (2017). [Editor’s note: These three dams are being built in Laos despite MRC recommendations to suspend construction until further impact studies had been completed. A total of 11 dam projects are either under construction or being developed on the mainstream of the Lower Mekong River, with seven on the river in China.]

The scheme will include monitoring five key environment parameters, including hydrology, sediment, water quality, aquatic ecology and fisheries, to be conducted close to the dam sites. Results of the monitoring will inform adaptive management measures of the hydropower projects.

WY: What role does the MRC play in the Lancang-Mekong region as an intergovernmental organisation, particularly in bridging gaps of understanding and shaping common interests?

PTP: I think the MRC has a unique role to play in the regional governance of water and related resources for sustainable development.

It should be noted that there has been high demand for using Mekong water to boost economies in the region. Without a proper dialogue and benefit sharing mechanism, development in one country may mean losses in another. But when there is a proper mechanism for the countries to work together this creates the opportunity for cooperation and peace.

This is where the MRC plays the most important role as the platform for water diplomacy. No other organisation has the mandate or capacity to present an overall integrated basin perspective. The MRC also has a singular ability to carry out professional analysis both within and across sectors – hydropower, fisheries, navigation, irrigation, water quality, wetlands and so on.

Taking a strategic basin-wide assessment allows us to determine and minimise risks. As a regional body, the MRC can assist here by acting as a facilitator of dialogue and by looking into mechanisms for sharing of benefits across borders.

Such a role was acknowledged and reconfirmed at the third summit by leaders of the MRC member countries. Our dialogue partners (China and Myanmar) also acknowledged the MRC’s importance.

WY: Can you give us some examples of how the MRC is promoting common views among different Mekong countries?

PTP: For example, through our water diplomacy platform the four countries are now increasing bilateral dialogue to build a common understanding of key cross-border water issues, find durable solutions to address issues together, and share best practices in water resources management.

On top of this, the countries also agreed to implement five joint projects that would lead to investment in water development and management. For example, the Mekong and Sekong Rivers Fisheries Management Project between Cambodia and Lao PDR addresses the issue of declining migratory whitefish species, and the Tonle Sap Lake and Songkhla Lake Basins Communication Outreach Project between Cambodia and Thailand supports healthy lake governance through outreach and learning exchange.

WY: What are the barriers to such cooperation?

PTP: Our member countries have been cooperating well under the 1995 Mekong Agreement, and with strong support from partners around the world. But since the Mekong River flows through six countries, and only countries in the lower reaches of the river are members of the commission, we have always wanted our dialogue partners – China and Myanmar – to join us.

I believe we could achieve more if the two countries join – for the sake of our shared water and people’s livelihoods. We also need to work closely with the Lancang-Mekong Cooperation mechanism and they should also work with us in the same spirit of cooperation and openness. [Editor’s note: In March 2016 China announced the establishment of a new sub-regional mechanism that promotes cooperation between China and the five lower Mekong countries.]

WY: What is China’s role as a dialogue partner in the MRC? Do you think the MRC is compatible with the Lancang-Mekong Cooperation mechanism, proposed by China?

PTP: Although China is not a full member of the MRC, there is a cooperative working relationship, which has gradually improved in recent years. The basis of that co-operation is good scientific analysis and understanding of the Mekong.

As a dialogue partner with the MRC, China is well aware of the potential consequences of hydropower construction and has indicated its willingness to work together at a technical level on these issues. China has also clearly stated that it will operate the upstream projects so that river flows downstream are maintained at acceptable levels.

At the third summit, China has once again expressed its willingness to work with the MRC and all riparian countries, inviting us to play a constructive role in the Lancang- Mekong water resources cooperation.

But it should be noted that cooperation still needs to be stronger. I am determined to showcase close cooperation and to eliminate doubts that MRC and LMC are competing. I invite China to work closely with us.

WY: Are there any existing mechanisms to provide ecological compensation to MRC members who will suffer from dam construction? What’s your view on cross-border ecological compensation?

PTP: We do not have any existing ecological compensation projects yet. At the national level, there are laws and regulations. At the regional/transboundary level, these kinds of schemes have to be negotiated. A possibility would be to have a MRC regional fund for managing and protecting key ecological or environment assets with regional significance.

We are now at an initial stage of preparing a strategy for basin-wide environment management.

 

[This article originally appeared on thethirdpole.net]

ArticleClimate Diplomacy
Source
Topic
Climate Diplomacy
Water

Region
Asia

Topics

Adaptation & Resilience

All countries will need to adapt to some of the environmental, social and economic impacts of climate change that are already unavoidable. Food security, livelihoods, water resource availability and public health are some affected areas. People living in poverty are more vulnerable, having a lower capacity to adapt. Thus, it is essential to promote resilience building. The adaptation and resilience aspects need to be mainstreamed into planning by policy makers and the private sector as well as integrated into development strategies.

Biodiversity & Livelihoods

Nature protection is most sustainable if it essentially contributes to the long-term stability of human needs. Today many regions around the world are confronted with increasing destruction of the natural foundations of life. The consequences of wide-ranging resource destruction are no longer regionally limited, but rather represent a global threat. Those affected are mainly rural populations, who find the sources of their income and the foundations of their way of life swept away. The depletion and destruction of natural resources goes hand in hand with decreasing agricultural yields and increasing poverty, which in turn forces the affected populations to deplete the remaining resources.

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Capacity Building

On the one hand, conflicts are caused by structural factors, such as economic and social inequality or environmental destruction. On the other hand, conflicts are fuelled by a lack of democratic structures, deficient mechanisms of non-violent conflict settlement, inadequate rule of law, the destruction of social and cultural identity and the disregard of human rights. Against this backdrop, development policies have been dedicated to a broad concept of security, which comprises political, economic, ecological and social stability. As a consequence, development cooperation agencies and actors have developed a broad spectrum of approaches for conflict prevention and transformation as well as for sustainable use of natural resources.

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Cities

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Civil Society

Civil society is the first victim of environmental pollution, under-development and conflicts. Economically disadvantaged and politically marginalized population groups are particularly affected by violent conflicts as well as increasing resource degradation. Simultaneously, civil society is a fundamental pillar for implementing sustainable development. It contributes in many ways to strengthening conflict prevention and plays a significant role in the peaceful and democratic development of states. It must be supported to strengthen civil rights, adherence to human rights in general and democratic participation.

Climate Change

Climate change resulting from the emission of greenhouse gases represents one of the vital challenges for international environmental policy. Flooding, droughts, shifting of climate zones and increasingly frequent and intense extreme weather events will have serious economic and social consequences for entire regions. The climate problem is also directly linked to the question of future energy generation.

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Climate Diplomacy

To address the challenges posed by climate change, a new profile of climate diplomacy is evolving. This utilises a full range of policies, including development cooperation, conflict prevention efforts, and humanitarian assistance, in addition to more traditional measures of climate change adaptation and mitigation. Moving from a risk analysis of climate-related threats to well-timed preventive action requires a greater commitment to integrating climate change concerns into development, foreign, and security policies. Examples include strengthening diplomatic networks, building new alliances with partners, and raising awareness – not only of potentially negative climate change impacts, but also of opportunities to embark on a sustainable transformation of our societies.

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Co-Benefits

Climate action entails an array of economic, social, political and environmental co-benefits. It provides an opportunity for economic growth and new jobs. Many investments can take into account climate considerations without becoming more costly. Further important co-benefits include: improved energy security, less local air and water pollution, health benefits as well as ecosystem and biodiversity protection.

Conflict Transformation

In order to overcome the structural causes of violent conflicts and thus bring about an improvement in the framework conditions for peaceful and fair development, it is essential to have long term and broadly planned peace development and peace advancement. Various governmental and non-governmental, national and international actors and groups are involved in these processes.

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Development

Climate change and development are inextricably linked. Climate change endangers the development agenda and has the potential to reverse development goals. Furthermore, successful mitigation of climate change heavily depends on development choices around the world. Therefore, development strategies need to be climate-compatible to provide long-term success, and there are viable policy options that support this compatibility. Many mitigation and adaptation activities can present development opportunities to developing countries and avoid the lock-in to environmentally damaging technologies.

Early Warning & Risk Analysis

The reasons for the development and escalation of conflicts and the incidence of risks are multifaceted and complex. Simultaneously, the assessment of the specific causes in the form of risk and conflict analyses can contribute to a better understanding of these processes and make it possible to provide warning of negative developments, or ideally help prevent them. In the context of natural resource use, risks and conflicts have gained increasing attention in the past years. The debate on possible future water wars is merely one example.

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Energy

The well-being of individuals, communities and nations depends on the availability of energy resources. The gap between energy supply and demand appears to be growing, making the world vulnerable to serious economic shocks. At the same time, the burning of fossil fuels causing climate change is one of the vital challenges of international environmental policy. So far, only rudimentary approaches exist for shaping climate and energy security in a sustainable way. The components of a strategy that can contribute to reducing vulnerabilities related to climate change and energy policy include a greater role for renewable energies, the improvement of energy efficiency and a stronger decentralisation of energy supply.

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Environment & Migration

The economic, social and environmental consequences of climate change aggravate the breakdown of eco-system-dependent livelihoods and are likely to become dominant drivers of long-term migration. Natural disasters already cause massive shorter-term displacement and the number of temporarily displaced people is likely to further increase with climate change. For vulnerable populations in vulnerable regions, such as the Sahel zone or the Ganges delta, migration often becomes the sole survival strategy. In order to address climate-related displacement and migration successfully, knowledge of effective adaptation and an improved understanding of how environmental change affects human mobility is essential. 

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Finance

Climate finance, from all sources, plays a key role in supporting and enabling adaptation and mitigation action as well as climate and energy innovation. The Paris Agreement ensured that the Green Climate Fund and the Global Environment Facility are at the core of climate finance architecture as entities entrusted with the operation of the Financial Mechanism of the UNFCCC. Increasing climate finance from all relevant public and private sources is crucial. Furthermore, much needs to be done to redirect finance flows to sustainable paths, e.g. reducing fossil fuel subsidies, introducing maritime and air transportation taxes. The conditions for green investment in developing countries should also be improved.

Forests

Forests are disappearing at an alarming rate. Competition for forest resources triggers, exacerbates, or finances numerous crises and conflicts in tropical developing countries. Illegal logging and timber trade foster instability and sometimes violent conflict by strengthening illegal and armed groups, increasing corruption and exacerbating use and claim conflicts among local communities, the state and the business sector. Forests are a vital resource to poor people but they can also become areas of conflict. Sustainable management of forest resources is therefore key to preventing violent conflict over and within forests.

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Gender

Gender plays an important role as a category of conflict for many reasons. The interlinkages between gender, environment and conflicts are complex and much research is still needed. Existing insights suggest that conflicts may worsen gender inequalities that existed before the outbreak of violence. The unequal distribution of land property rights in many parts of the world serves as an example. Moreover, women (and children) are among those most affected by both violent conflict and natural disasters. At the same time, women carry much of the burden of trying to implement rehabilitation measures after crisis events.

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Land & Food

Increasing water scarcity, desertification and crop failures due to extreme weather events are becoming more and more of a threat to global food production. While the world’s population continues to grow rapidly, food production is unable to keep pace. Due to the global food crisis in 2008, the number of hungry people reached the symbolic one billion threshold for the first time – corresponding to about 16 percent of world population. Food insecurity may be a consequence or cause of conflicts. Violent conflicts often lead to the destruction of agricultural infrastructure and means of production, as well as to the displacement of local communities.

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Minerals & Mining

In the past, the discovery and tapping of valuable or strategic resources like valuable minerals, oil and natural gas, particularly in developing and emerging countries, has often led to large scale environmental contamination and negative development. The "resource curse" of some countries shows that the wealth from resource yields is frequently unfairly distributed; instead of serving development it advanced the formation of corrupt elites and in some cases even led to conflicts and civil wars. Measures in various sectors and at all levels are important in order to use the potential of these natural resources in a manner that is sustainable and prevents conflicts.

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Private Sector

The spread of violent conflict not only affects people but also companies located in such regions. Destruction of investments and infrastructure, collapse of markets and trade partnerships, flight and expulsion of employees are phenomena of conflicts and environment-induced crises that directly affect companies in unstable regions. Almost all branches of the economy thus have a clear interest in a stable and peaceful environment for their activities. Conversely, the business sector plays an important role in the interaction of economic growth, social development and a healthy environment, all of which can advance peace and sustainable development. 

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Security

Environmental issues have a significant security dimension. Access to, and overuse of, natural resources often play a key role in civil wars or other forms of internal domestic conflict. This is compounded by climate change and environmental degradation. Climate change is now widely recognised as a non-traditional, risk-multiplying threat that will have increasing security impacts. Key risks with possible implications for human and national security include water scarcity, food crises, natural disasters, and displacement. More preventive diplomacy and advocacy is needed to address the strategic implications of climate and environmental change.

Sustainable Transformation

Sustainable Transformation allows societies to profit from a growing, environmentally sustainable and socially inclusive economy – especially in emerging and developing countries. This requires a higher up-front investment, but the benefits of a sustainable transformation in the medium and long term are significant. For instance, energy cost savings and reducing the impact of price volatility offer major incentives for deploying renewable energies and promoting energy efficiency. Such benefits exist in all key sectors of the economy.

Technology & Innovation

Innovations and technologies are already readily available and affordable but their global diffusion and uptake remains a challenge. Innovation and technology are crucial to achieving ambitious climate change mitigation and adaptation targets. However, research and development often do not receive appropriate public support. Developing countries can leapfrog high-carbon industrialisation phases by adopting, deploying and improving existing innovations and technologies. For this, it is essential to minimise financial, administrative and political barriers.

Water

The availability of freshwater resources in sufficient quantity and quality is essential for the preservation of human health and sound ecosystems. The use of water resources is also vital, however, for economic development: whether for agriculture, industrial production or for electricity generation. The world's freshwater resources are distributed very unevenly in terms of geography and seasons. In addition, water shortage is becoming more prevalent in several regions due to population growth, economic development, urbanisation and increasing environmental pollution. Thus, water resources can hold potential for conflicts between parties who have different interests and needs.

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Regions

Asia

The environment in Asia is already under tremendous pressure as a result of the unsustainable use of land, forests, water and even air in many regions. Climate change will only exacerbate these challenges. Rising sea levels will likely endanger densely populated areas, changes in the monsoon patterns can strongly impact agriculture, melting glaciers will increase long-term water scarcity, and extreme weather events such as heavy rainfall and cyclones can pose further hazards.

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Central America & Caribbean

Natural disasters and water scarcity are key challenges for most of Central America and the Caribbean. These challenges will become even more pronounced as the climate changes. Weak resource and disaster risk management and land disputes pose additional security challenges for large parts of the region. Several countries of Central America and the Caribbean have limited adaptive capacities as they face political instability caused by high social inequality, crime, corruption, and intra-state conflicts.

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Europe

As one of the most developed and most densely populated regions in the world, Europe makes heavy use of its resources, resulting in difficult trade-offs and negative consequences for the environment and ecosystems. Land is used for settlements, agriculture and dense infrastructure, creating problems of soil degradation. Water resources are stressed due to unsustainable agricultural practices. Despite nature protection policies, Europe continues to lose biodiversity at an alarming pace. Some of these trends are exacerbated by climate change, which is expected, for instance, to lead to shifts in water availability.

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Global Issues

Resource scarcities, environmental pollution and climate change are not limited by national borders, but often have a transboundary or even global impact. These issues interact with political stability, governance structures and economic performance, and can trigger or worsen disputes and violent conflicts. Exacerbating some of these trends, climate change is likely to lead to the degradation of freshwater resources, declines in food production, increases in storm and flood disasters and environmentally induced migration. All these developments pose potential for conflict.

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Middle East & North Africa

The geopolitical position of the Middle East and North Africa (MENA), its fossil fuel resources, high population growth and the political changes spurred by the Arab Spring all make the region one of the most dynamic in the world. Nevertheless, it is also one of the most arid and environmentally stressed. Dwindling water resources, limited arable and grazing land, high pollution from household and industrial waste, remnants of conflicts and increasing desertification are key environmental challenges.

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North America

Climate change has various impacts on the three North American countries of Canada, Mexico and the US. Canada and the US have well-developed adaptive capacities and foster the strengthening of capacities in other regions as well. With high per capita emissions, these two countries also bear a greater responsibility for a changing climate. Mexico has a sound national strategy for climate change adaptation, yet fewer capacities than Canada and the US. The poorer and rural populations of Mexico are especially vulnerable to climate change, due to an increased sensitivity and a lower adaptive capacity.

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Oceania & Pacific

In Oceania, population growth and economic development trends put a strain on oceanic and island ecosystems. Freshwater scarcity, overexploitation of fisheries, loss of land biodiversity, forests and trees, invasive species, soil degradation, increasing levels of settlement, poor management of solid and hazardous waste and disproportionate use of coastal areas are some of the problems. Climate change exacerbates most of these trends, while also raising questions about the future sovereignty of some island states.

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South America

South America has diverse and unique ecosystems and is very rich in biodiversity. Weak natural resource management, land disputes and extreme weather events bring about significant challenges for the region. While South America accounts for relatively few CO2 emissions, the changing climate will alter its ecosystems and greater climate variability will lead to more hurricanes, landslides, and droughts.

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Sub-Saharan Africa

In many African states, environmental security issues rank high on the political agenda. Throughout the continent, countries suffer from water scarcity, food insecurity and energy poverty. These chronic and worsening resource scarcities have severe livelihood implications and are exacerbated by political conflicts over access to and control over these resources. Climate change may seriously threaten political and economic stability in Africa. It may also put a severe strain on the capacities of states and societies to co-ordinate activities, to communicate and to organize.

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