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Water security is a major policy challenge confronting governments around the world.
In the absence of significant reforms of water and water‑related policies, the outlook
for water is pessimistic. Water security in many regions will continue to deteriorate
due to increasing water demand, water stress and water pollution. Governments need
to speed up efforts to enhance efficiency and effectiveness in water management to
better manage the risks of potential water shortages (including droughts), water excess
(including floods), inadequate water quality, as well as the risk of undermining the
resilience of freshwater systems (rivers, lakes, aquifers). By taking a broad, long‑term
vision that emphasizes the explicit management of water‑related risks and trade‑offs
between these risks, governments are more likely to meet their water‑related economic,
environmental and social objectives.
A risk‑based approach addresses water security first and foremost by determining acceptable
levels of different risks in terms of the likelihood that they will occur and the
potential economic or other impacts if they do, and balancing this against the expected
benefits of improving water security. While it is generally too expensive, and often
technically impossible, to fully eliminate water‑related risks, a risk‑based approach
can help to ensure that the implicit level of risk implied by different policy actions
reflects societal values. For example, a number of cities worldwide ‑‑ including London,
Shanghai and Amsterdam ‑‑ have protection against flood events of a magnitude that
are only expected to occur on average once in 1 000 years, while New York planning
has only protected the city against a 1‑in‑100 year event. Following the 2013 Sandy
storm, New York is now considering how to strengthen its flood defences further.
A risk‑based approach is also flexible, and the accepted level of risk can be adjusted
at relatively short notice should more cost‑effective measures to mitigate the risks
become available, or if new opportunities for economic development warrant action
to further reduce the level of risk. For example, a new housing or industrial development
may justify increasing flood defenses for a neighbouring river, which may not have
been justified if the land was used for agriculture or a natural park.
In practice, however, it is often natural disasters – and not new opportunities –
that prompt countries to revisit the acceptable levels of water risks implicit in
their policies and measures. For example, countries often revisit flood defense standards
following a hurricane or major storm, or address water shortage challenges during
or following a major drought. A risk‑based approach triggers a move from reactive
to more proactive policies. Instead of responding to water crises, which often entail
excessive costs to society, governments can establish a process to carefully assess
and manage the risks in advance and to review these on a regular basis.
By identifying water‑related risks, and helping actors agree on acceptable levels
for these risks, a risk‑based approach can facilitate the process of allocating water
risks between uses. For example, there are many regions where available water resources
have been over‑allocated and a more complete understanding of the risks and trade‑offs
around alternative uses of water can help to identify the benefits and policy options
for improving the allocation of water between agriculture, urban and ecosystem users.
This does, of course, raise significant political economy questions.
Once set, the acceptable levels of water risks should be achieved at least possible
cost. Economic instruments, such as charging appropriately for water use and pollution,
can help achieve this. Water pricing has been critical in decoupling water use from
continued economic growth in almost one‑third of OECD countries in recent decades.
Introducing prices that reflect water scarcity can help reduce demand to levels that
can avoid the premature construction of new water supply infrastructure. In Sydney,
Australia, analysis shows that if scarcity pricing had been introduced at an appropriate
time it could have reduced water demand to a level which no longer required the development
of a costly new desalination plant.
Setting acceptable levels of water risk should be the result of well‑informed policy
choices and trade‑offs with other related (sometimes conflicting) security objectives
– e.g. food, energy, climate, biodiversity. This is because policy measures aimed
at security or other policy objectives in one area may result in spill‑overs in another:
efforts to increase energy security and reduce greenhouse gas emissions through biofuel
production, for example, can result in reduced water or food security, while objectives
to enhance food security can lead to overuse of pesticides and fertilizers, contributing
to water pollution. More coherent policy approaches are increasingly being applied
in a growing number of countries. For example, shifting agricultural support from
direct production and input support to payments that are decoupled or even support
environmental objectives has reduced incentives to intensify and extend production,
thereby helping to improve water resource use efficiency and lower water pollution
from agriculture.
Water security is about learning to live with an acceptable level of water risk. This
requires a better understanding of the risks, ensuring that the level of risk that
is used for planning and policy purposes takes account of social preferences, and
managing risks and trade‑offs between risks and across water and other policy objectives
at least cost to society. The key success factors are to know, target and manage the
water risks:
Know the risk
. Identify water‑related risks, the likelihood and potential impact of their occurrence,
how people perceive them, and make sure stakeholders have the information they need
to understand and address different kinds of water risks.
Target the risk
. Consider whether the additional benefits of improved water security warrant the
additional costs to society of achieving these improvements, and set levels of water
risk accordingly. Policy objectives other than water security (for example food security,
energy security, climate security, protecting nature) and the interrelated nature
of water risks should be considered when weighing the benefits and potential costs
to society of a given level of water risk.
Manage the risk
. Implement a policy mix to reduce hazards and limit exposure and vulnerability in
order to achieve acceptable levels of risk at the least possible economic cost. Economic
instruments can play an important role, as they can fundamentally alter the incentives
facing water users, provide explicit signals about the likelihood and potential cost
of water risks, and provide financing to support actions to offset risks. Managing
water risks also require a coherent approach between water policies and sectoral and
environmental policies.