A new commission to investigate the costs of dams puts South Africa at the centre of the debate on sustainable development, writes Aspasia Karras
On a live satellite link-up between Washington and Cape Town, the World Bank and the World Conservation Union this week announced they would be establishing a world commission on dams in November to be chaired by the Minister of Water Affairs and Forestry, Professor Kader Asmal.
The eight-person commission arises from a ground-breaking conference in Gland, Switzerland, where a dtente was initiated between environmentalists and the proponents of capital-intensive development projects the most contentious being dams. According to Asmal, not only is this one of the most stimulating things that could happen to South Africa, but it is also politically very important. South Africa will be at the centre of the debate on sustainable development.
The commission will reconcile fundamental differences in an unnecessary battle where there was no dialogue to work out how effective development related to dams could be carried out. The commissions reference group is unparalleled, with over 50 stakeholder representatives from financial institutions, non-governmental organisations (NGOs) and the private sector.
Asmal has been the focus of media attention over issues that are close to the commissions agenda. He gave the go-ahead last week for the planning of a R560- million, 126,4-million m3 Skuifram dam on the Berg river near Franschoek, and concurrently extended his water project called working for water by R190-million. This project aims to clear mountain catchments in the Western Cape of alien water-guzzling invasive vegetation, thereby potentially increasing water yield by more than 30%.
Alan Taylor, adviser to the minister, believes that the two projects aim to mediate between the conflicting pressures around the demand for water in an environmentally and socially sustainable fashion on the one hand, and the building of dams for drought prevention and emergency measures on the other.
Asmal was in fact responsible for a community-driven environmental impact assessment of the dam in 1993.
The commission he will now chair will carry out a two-year review of the development effectiveness of large dams and devise standards and guidelines to advise countries on future dam-building.
In fact, it is the first cost-benefit analysis on a global scale of the impasse between the Scylla of droughts and floods and the Charybdis of dams and their environmental and social damage.
Dams have become development pariahs in the past 20 years as the costs often far outweighed the benefits for developing countries.
In the 1980s, large dam projects began to be fundamentally questioned by affected interest groups and global coalitions of environmental and human rights groups, leading to several calls for a moratorium on World Bank-funding and reparations for those affected.
Controversial projects like the Narmada dam in India and the Three Gorges dam in China have polarised opponents and proponents and resulted in the virtual breakdown of any constructive dialogue.
Maurice Strong, chair of the Earth Council and senior adviser to the president of the World Bank contends: This initiative is very timely the issue of large dams is critical in light of growing energy needs and the role of hydropower in the future of many developing countries. However, recent experiences with large dams make it very clear that such projects should only proceed if both environmental and social concerns are fully met.
It would clearly be counterproductive to undertake large dam projects in which environmental and social costs exceed long- term benefits.
Asmal believes what is more salient is that its not the initiative of two or three wise men or an individual government. Its globalisation from below. The fact that institutions in the public sector like the World Bank, and NGOs like IUCN-World Conservation Union, could agree on terms of reference and agree on a chairperson is a first.
The conference, which unanimously decided on the need for such a commission, was the result of more than 18 months collaboration. Announcing the move, World Bank president James Wolfensohn said: Large dams constitute a major technical, social, environmental and developmental challenge. For this challenge to be met successfully, the bank is prepared to join IUCN and other stakeholders to create an appropriate framework focused on learning from experience and on the design of adequate standards.
The last being an area where the World Bank has been notoriously fickle. A recent review of the economic and social impact of bank dams by the independent operations evaluation department of the bank concluded that while 90% of the dams reviewed met the standards applicable at the time of approval, only about 25% now complied with the banks more demanding policies.
The review also stated that mitigation of the adverse social and environmental consequences of large dams would have been both feasible and economically justifiable in 74% of the cases.
Which is why activists like Patrick McCully of the International Rivers Network are so positive about the new commission: It offers the potential for the first ever objective review of the actual overall costs and benefits of large dam projects. It also offers an opportunity for recommendations on the issues of reparations to affected communities and the restoration of dam-impacted ecosystems.
For Asmal, the commission and his own pivotal role are primarily an opportunity to work out conditions that ensure that the First World cannot impose its standards on the Third World.
The commission will seek to ensure that all stakeholders are heard and given the opportunity to share their views. Through a process of wide-ranging consultation, I hope that by April 2000 the commission will be able to present a balanced and objective report in terms of diplomacy it may be even a greater challenge that some of those weve had to face in building a democratic South Africa.