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NATIONAL WATER PLANNING IN MEXICO
RICARDO SANDOVAL MINERO
SYNTHESIS
Water planning has evolved along with the demographic, economic and social transformations throughout the recent history of the country
Growing demands have brought up the need to transcend sectoral and political-territorial boundaries
Nevertheless, the implementation of integrated resource management practices is still under way
A need to balance the positive aspects of rational and transactive planning approaches appears instrumental for dealing with growing challenges
GENERAL CONTEXT
112 336 538 inhabitants (2010) (11° biggest country pop.)192 247 “localities”2 456 municipalities31 states1 federal district78% urban population
(loc. > 2 500 hab)
EXPERIENCIA Y PERSPECTIVAS DE MÉXICO EN POLÍTICAS TARIFARIAS Y REGULACIÓN EN EL MARCO DEL DERECHO HUMANO AL AGUA
LEGAL FRAMEWORK
Federal Constitution
•National Waters Law
Art. 4°: constitutional right to waterArt. 27: wáter as national propertyArt. 115: municipalities responsible for water supply, sewage and wastewater treatment
Natonal Water Commission (CONAGUA), water resource management and preservationArt. 9 – also “supporting role” for the development of municipal/state water supply and sanitation systems
State constitutions•State Water Laws (regulation of water supply and sanitation services)
General framework for water supply and sanitation services, including tariff setting and organization
Municipal Orgainc Laws
Municipal reglamentation
Governmental and organizational issuesRights and duties of utilities and users
• Internal reglamentationsStructure and specific functions of utilitiesProcedures and relationship with the users
WATER RESOURCES CONTEXT
REGIONAL INEQUALITIES
Institutional mappingWater resources management in Mexico
OECD, 2013
Institutional mappingWater supply and sanitation development and management
OECD, 2013
Structure and constituencies of Mexico’s river basin councils
OECD, 2013
DEMOGRAPHICS AND PLANNING MILESTONES
1857 Constitución Política1910 Ley de Aprovechamiento de Aguas de Jurisdicción
Federal1917 Constitución - Artículo 271917 Ley Federal sobre Uso y Aprovechamiento de las Aguas
Públicas sujetas al Dominio de la Federación1926 Ley sobre Irrigación con Aguas Federales1929 Ley de Aguas de Propiedad Nacional1934 Ley de Aguas de Propiedad Nacional1938 Ley Sobre el Servicio Público de Aguas Potables en el
Distrito Federal1946 Ley de Conservación de Suelo y Agua1946 Ley de Aguas de Propiedad Nacional1948 Ley Reglamentaria del Párrafo Quinto del Art. 27
Constitucional en Materia de Aguas del Subsuelo1948 Ley Federal de Ingeniería Sanitaria1956 Ley Reglamentaria del Párrafo Quinto del Art. 27
Constitucional en Materia de Aguas del Subsuelo1956 Ley de Cooperación para Dotación de Agua Potable a los
Municipios1972 Ley de Aguas de Propiedad Nacional (Ley Federal de
Aguas)1986 Reforma de la Ley Federal de Aguas1992 Ley de Aguas Nacionales2004 Reforma de la Ley de Aguas Nacionales
En
d o
f M
exic
an
Revolu
tion
Law
for
Wate
rs o
f N
ati
on
al Pro
pert
y
“Developmental”: irrigation,
energy
“Developmental”: housing, pollution
control
“Managerial”: water rights, participation,
finance
HISTORY OF WATER POLICY IN MEXICO
Governance Legal and planning framework
Infrastructure Finance Issues Capacities
Before 1926
Constitution (Private)Public
1926-1946
National Irrigation Commission
IrrigationNational property
IrrigationEnergy production
Public Socioeconomic: agriculture, energy, water supply
External consultants
1947-1976
Hydraulic Resources MinistryWatershed Executive Commissions
National property IrrigationHousing
Public UrbanizationIndustrializationIrrigationMultiple use infrastructure
Trained at workPostgraduate scholarshipsExternal consultants
1977-1988
Agriculture and Hydraulic Resources MinistryInstitutional dispersion
Federal Waters LawNational Water Plans (1975, 1985)
Humid Tropic DevelopmentAqueductsBulk water supplyDistribution
PublicFiscal coordinationMunicipal tariffs (OPEX)
PollutionEnvironmentService provision
IMTAUniversitiesLocal consultants
1988-2011
National Water Commission under Environmental Ministry
National Water Law (1992, 2004)National Water Programs2030 Water Chart
Slowing down construction paceAdministrative demand management mechanisms
Public-private partnershipsDiminishing public fundsLag in tariffs
Rural gapUrban growthClimate changeAging infrastructure
Loss of human capital
(Adapted from González Villarreal, 2012)
PHASES IN WATER RESOURCES PLANNING IN MEXICO
Rural to urbanCentralized
Public funded
Supply-drivenBasin-oriented
Sectorized
Demand drivenDecentralized & participatory
Integrated
NATIONAL WATER PLANS (2006-2012)
NATIONAL WATER PLANS: THE 2030 CHARTERS
NATIONAL AND SPECIAL WATER PLANS (2012-2018)
NATIONAL, REGIONAL AND STATE PLANNING ALIGNMENT
SHORT, MEDIUM AND LONG TERM ALIGNMENT
PLANNING AND REALLOCATION ISSUES
Planning as an exercise of ideas / proposals / projects / actions collection and prioritization (investment portfolio)
Hydrological & technical criteria still important in drought planning and special projects (aqueducts, flood control, Cutzamala, aquifer restoration plans)
Water imbalance and reallocation, policies to restore water balance Short-term restrictions: Lerma-Chapala basin according to negotiated nomograms;
PRONACOSE (drought programs) following a similar approach Long-term reallocation: water markets (“bancos de agua”) Management plans for aquifeers: administrative measures, negotiated reductions with
budgetary support for efficient water use, water rights “rescue” “programs for the integrated management of national waters” as a requisite to obtain
water reserves for bigger cities Environmental flows: water reserves, water funds
A REFLECTION ON PLANNING MODELS: ARE WE / SHOULD WE BE / MOVING FORWARD OR STEPPING BACK?
http://www.geo.fu-berlin.de/en/v/geolearning/watershed_management/introduction_wm/natural_resource_management_planning/how_to_plan/planning_models/index.html
Are we there?
…or where we are?
FUTURE TRENDS
1992 National Water Law introduced modern water management concepts Water rights, drilling bans, water markets Basin councils, preference order, negotiation instances Coordination, “concertation”, induction mechanisms
2004 tried to go farther Watershed-led planning and management Decentralization and participation
But two failures remained: Lack of effective ways to induce desired conducts in
other governmental spheres and private users Finance disrupted from planning
Present questions
Should the new “General Water Law” strengthen central technical and administrative capacities?
Should users participation be enhanced (actually implemented)?
Should the federal and state government re-centralize water supply and sanitation?
WHICH PLANNING CAPACITIES SHOULD WE DEVELOP OR RESTORE?
Integrated?Example: boundary organizations, decision theaters
A PROPOSAL: BOUNDARY ORGANIZATIONS FOR TECHNICALLY SOUND MODEL-BASED COLLABORATIVE PLANNING
Best practices networking in LAC
CONCLUSIONS
Planning of public works and development in Mexico has its modern roots in the social nature of Mexican revolution
Rational planning begun with a focus on coordination for the prioritized expenditure of public funds (1930-1970)
When an urbanized country made it necessary to decentralize, fiscal coordination mechanisms were put in place to allow decentralized operation under central supervision leveraged with budgetary rules (70’s on)
The rise of rational planning occurred during the 70’s: a national effort for surveying and studying natural resources and socioeconomic trends
Water management knew at least three phases which are also reflected in its legal and planning scopes: A “developmental” supply driven centralized
administration to improve socioeconomic conditions after the revolution
A “developmental” supply driven centralized and sectorized administration fragmented between agriculture and urban issues
A “managerial” demand driven decentralized and participatory (integrated) model which hasn’t fully being achieved
Immediate challenges are demanding new innovation capacities, not only technological but mostly institutional
