INMACOM partners with IWMI to deliberate on a Multi-Stakeholder Platform (MSP) – Concept Paper. By Ryan Nehring, Jonathan Lautze and Setsabile Thwala

Institutional Development of the Incomati River Basin The Incomati Basin includes parts of Eswatini, Mozambique, and South Africa. The basin is characterized by high water demand and is generally described as water-stressed. Key economic activities include commercial agriculture and energy production.  Because of these sectoral demands, there are several dams and impoundments across the river system and equitable water allocation is critical. There are two main treaties – first, the Tripartite Permanent Technical Commission (TPTC) which was created in 1983 to oversee joint developments, utilization, and management of the Incomati and Maputo River systems. Second, the Interim Inco-Maputo Agreement (IIMA) was signed in 2002 at the proposal of the TPTC. The IIMA’s main objective is to enhance cooperation on the protection and sustainable utilization of the Incomati and Maputo Watercourses. In 2021, the basin-wide RBO Incomati Maputo Watercourse Commission (INMACOM) was created to enhance basin-wide management and update the IIMA. Currently, a new agreement is being developed for the Incomati and Maputo that features references to INMACOM. However, the new agreement does not include a Multi-stakeholder Platform (MSP).

Multi-stakeholder platforms are proliferating in shared waters MSPs are defined as platforms that institutionalize the integration of diverse stakeholder voices and interests into river basin governance over time. They serve as forums for dialogue, partnerships, and processes that channel stakeholder voices at the transboundary level, build trust among actors, support conflict resolution, and facilitate information sharing upstream and downstream. MSPs have emerged as essential governance mechanisms for fostering collaboration and ensuring inclusive decision-making processes in transboundary river basins. Examples from the Zambezi and Nile Basins demonstrate different approaches to successfully implement MSPs by promoting equitable resource sharing and stakeholder coordination. Moreover, the achievements in the Nile and Zambezi Basins, including enhancing communication between transboundary communities, developing strategic plans for watercourse management, establishing rules for data sharing, and normalizing relationships among riparian states demonstrate the value of MSPs for enhancing shared water management.

Workshop to explore an Incomati Basin MSP From March 5th to 7th, 2023, the International Water Management Institute (IWMI) and the International Food Policy Research Institute (IFPRI) organized a  workshop titled “Exploring Intervention Strategies for Fostering Water Cooperation in the Incomati Basin.” Esteemed stakeholders, including water users from the Basin, representatives from INMACOM, the Nile Basin Initiative (NBI), ZAMCOM, the Inkomati-Usuthu Catchment Management Agency (IUCMA), The Commissioner of International Water in Relations South Africa, the South Regional Water Administration (ARA-Sul) in Mozambique, and the Principal Secretary of The Ministry of Natural Resources and Energy in Eswatini, along with the Joint River Basin Authorities – Project Board (JRBA-PB) in ESwatini, convened for this three-day workshop.

This concept paper The primary objective of this paper is to review deliberations at the Incomati MSP workshop, describe the proposed purpose and role for the Incomati MSP, and outline a structure that the MSP may adopt. In what follows, we first review the structure of the workshop and some of the key takeaways from various sessions. We then describe how an MSP can respond to challenges and opportunities in the basin, as well as the form that an Incomati Basin may take. Finally, we discuss a potential role for the River and Environmental Management Cooperation (REMCO) and offer concluding remarks.

1. Workshop Proceedings

Workshop participants In order to assess the viability of the MSP, the three-day workshop served as the primary method for gathering information and initiating discussions with stakeholders. More than 25 participants from key governmental and water user stakeholders attended from across the Incomati Basin. From Mozambique, participants came from the National Directorate of Hydraulic Resource Management, the South Regional Water Administration (ARA-Sul), Maragra Sugar, Xinivane Sugar and the City of Maputo. From Eswatini, participants came from the Ministry of Natural Resources, the Department of Water Affairs and the Joint River Basin Authorities (JRBA). From South Africa, participants came from the Incomati-Usuthu Catchment Management Agency (IUCMA) and the Department of Water and Sanitation. We also participants attending from outside of the basin, including the Zambezi Watercourse Commission (ZAMCOM) and the Nile Basin Discourse (NBD). Basin-wide stakeholders included the Komati Basin Water Authority (KOBWA), a joint agency between South Africa and Eswatini, and the Incomati and Maputo Watercourse Commission (INMACOM). The program, available in the Annex, for this workshop played a crucial role in clarifying the potential of the MSP and promoting collaborative discourse among stakeholders.

Day 1: Learning from other MSPs and discussing the role for an Incomati MSP

Opening Session The workshop commenced with introductory presentations by key stakeholders. INMACOM provided an overview of its activities, emphasizing the importance of transboundary cooperation in water management. Dr. Lautze from the Nexus Gains Program introduced the concept of Multistakeholder Platforms (MSPs), setting the stage for discussions on their potential application in the Incomati Basin. Insights from existing MSPs in other basins, namely ZAMCOM in the Zambezi Basin and the Nile Basin Discourse (NBD), were shared, highlighting their role in promoting equitable resource sharing, stakeholder engagement, and capacity building.

INMACOM & Stakeholder Engagement INMACOM, represented by Mr. Edward Mswane, presented on ‘Governance and Stakeholder Activities in INMACOM. The presentation offered an overview of its activities and the establishment of the Incomati and Maputo Watercourse Commission. The presentation underscored the importance of transboundary cooperation in promoting sustainable water management practices and highlighted INMACOM’s role in facilitating stakeholder engagement and capacity building within the basin.

Zambezi MSP Felix M. Ngamlagosi, Executive Secretary of ZAMCOM, presented on “ZAMCOM’s approach to stakeholder engagement”. The presentation shared insights into ZAMCOM’s role as a major river basin organization in Africa and its efforts to promote equitable utilization and sustainable development of the Zambezi Watercourse. The presentation emphasized the importance of multistakeholder engagement in achieving basin-wide cooperation and highlighted ZAMCOM’s strategic approach to stakeholder participation through their MSP structure, which includes National Multi-Sector Stakeholders Coordination Committees (NAMSCs) and Watercourse-wide Multi-Sector Stakeholders’ Co-ordination Committee (WAMSC).

Nile MSP Eng. Sylvester A. Matemu, the Regional Manager of NBD, presented on “The Nile Basin Discourse approach to stakeholder engagement”. The presentation outlined the important role of the organization in amplifying the voices of grassroots communities within the Nile Basin. The presentation further emphasized NBD’s mission to advocate for inclusive and multi-stakeholder transboundary water governance despite resource constraints and emerging challenges such as climate change and population growth. Matemu highlighted NBD’s values of ethics, inclusivity, and social justice, guiding its efforts to engage stakeholders and shape policy. He elaborated on NBD’s strategic objectives, which aim to strengthen public participation, contribute to transboundary water governance, and advocate for sustainable development. He concluded by discussing NBD’s strategic approach focused on inclusivity, stakeholder engagement, policy advocacy, membership expansion, and institutional sustainability to address Nile basin challenges. Table 1 below provides a summary of selective MSP achievements in the Nile and Zambezi Basins.

Table 1: Nile and Zambezi MSP’s achievements

Nile	Zambezi
Structure for basin-level governance to reach local communities, in both directions – sharing information and elevating their voices.	Strategic plan for the Zambezi Watercourse – 2-year process of consultation with stakeholders
Communicating the risks of non-cooperation and demonstrating the benefits of cooperation, concerning climate variability	Development of hot spots – consultation with stakeholders on areas that demand specific attention and resources from ZAMCOM
Normalizing relationships between transboundary communities (e.g., Ethiopia-Eritrea; Uganda-DRC)	Rules and procedures on data and information sharing. This obliges the countries to share information via their internal formal process.

Group exercises focused on the potential for Incomati MSP Throughout the workshop, participants engaged in debates regarding the role and value of MSPs in the Incomati Basin. Key insights emerged from group discussions, underscoring the potential of MSPs in channelling stakeholder voices, building trust, supporting conflict resolution, and facilitating information sharing at the transboundary level. Drawing from experiences in the Zambezi and Nile basins, stakeholders discussed organizational structures, funding mechanisms, and modalities of stakeholder interaction that have contributed to the success of existing MSPs. Through the group discussions among the participants, key points that were agreed upon included:

• Establishing a structured organizational framework for the Incomati MSP to ensure effective coordination and decision-making
• Exploring funding modalities to sustain the operations of the MSP over the long term
• The importance of inclusive stakeholder engagement to ensure representation from all relevant sectors and communities
• Implementing robust communication strategies to facilitate information sharing and transparency among stakeholders
• Incorporating lessons learned from successful MSPs in other basins, such as the Zambezi and Nile, to inform the development of the Incomati MSP
• Prioritizing capacity-building initiatives to enhance the skills and knowledge of stakeholders involved in the MSP
• Identifying potential areas of collaboration and synergy with existing initiatives and organizations working within the Incomati Basin

Day 2: Field Visit to Maragra Sugar in Mozambique

Field Trip Observations The field trip provided first-hand insights into the potential of MSPs in addressing pressing issues such as flooding in the Lower Incomati floodplain in Maragra, Mozambique. During the field trip, participants, including representatives from other basins, had the opportunity to witness first-hand the aftermath of a major flood that occurred in March 2023. This flood devastated Maragra Sugar’s operations and impacted thousands of livelihoods. Maragra Sugar is one of the largest Incomati stakeholders in Mozambique. This experience demonstrate the demand for enhanced monitoring, timely information dissemination, and improved flood management practices within the Incomati Basin. Observations included:

• The devastating impact of the flood on Maragra Sugar’s sugar production and the livelihoods of its out growers.
• Setbacks faced by Maragra Sugar, with operations disrupted for at least several years.
• Recognition of the crucial role of key stakeholders like Maragra Sugar for economic development in Mozambique’s share of the Incomati Basin.
• The importance of collaborative efforts and stakeholder engagement in addressing basin-wide challenges such as flooding.
• Insights gained from witnessing the reconstruction of dikes in the floodplain, highlighting the importance of resilient infrastructure in flood control.
• The unique opportunity for upstream and downstream stakeholders to engage with each other for a better understanding of the transboundary challenges and opportunities.
• Emphasis on the potential of Multistakeholder Platforms (MSPs) in addressing flood-related challenges and promoting sustainable basin management practices.

Day 3: Contextualizing & Conceptualizing an Incomati MSP

Contextualizing & Conceptualizing an Incomati MSP On the final day of the workshop, participants moved to discuss other relevant initiatives, on which an Incomati MSP can build. They also worked to more granularly outline a role for and structure of an Incomati MSP and discussed possible linkages with REMCO. The role for, structure of, as well as linkages to REMCO are described in sections III-IV of this report.

Building on existing INMACOM stakeholder engagement Buyani Fakudze presented the INMACOM Strategy for Funding and Stakeholder Engagement. The presentation highlighted INMACOM’s approach to securing funding for its activities, emphasizing the importance of financial sustainability. Strategies included leveraging partnerships, accessing grants and donor funding, and integrating funding mechanisms into long-term planning processes. Fakudze also discussed INMACOM’s stakeholder engagement strategy, which focuses on building strong relationships with a diverse range of stakeholders. This strategy involves conducting regular stakeholder consultations, signing memorandums of understanding (MoUs) with relevant organizations, and fostering collaboration with key partners to ensure the effective management and sustainable development of the Incomati Basin.

Acknowledging REMCO’s contributions Mr. Oscar Sibia from ARA-Sul also presented on REMCO Vision 2024-2026 as they will be the host country for the next REMCO conference. The presentation outlined REMCO’s vision for the period 2024-2026, highlighting the organization’s strategic goals and objectives. This included initiatives aimed at enhancing transboundary cooperation, promoting equitable water resource utilization, and fostering sustainable development in the Incomati and Maputo basins. Sibia discussed REMCO’s plans for advancing its mission, including strengthening partnerships with key stakeholders, implementing capacity-building initiatives, and facilitating knowledge exchange among member states. Ms Cindy Mthimkhulu, CEO of the JRBA- PB also presented on “Building on REMCO’S Work”. The presentation provided insights into REMCO’s collaborative framework for information sharing and cooperation among water management institutions in the Incomati and Maputo basins.

1. Role of an Incomati MSP

Issues & challenges Formalizing MSPs at both basin and local levels presents challenges. Securing government buy-in for basin-level MSPs and stakeholder buy-in for transboundary MSPs are crucial considerations. Strategizing stakeholder involvement, formalizing structures based on strategic goals, and co-developing processes are essential steps to achieving realistic outcomes in MSP implementation. The workshop identified a wide range of challenges confronting the Incomati Basin at both basin and local levels (Table 2), encompassing issues like fragmented coordination, resource inadequacy, communication bottlenecks, and water quality degradation. Stakeholders deliberated extensively on the important role an MSP could play in mitigating these challenges, emphasizing its potential to foster stakeholder engagement, facilitate seamless information exchange, mediate conflicts, and mobilize resources for sustainable development initiatives.

Table 2: Challenges to which an MSP should respond, identified through Groupwork and Plenary Discussion

Group 1	Group 2	Group 3	Plenary Discussion
Communication Challenges: Participants emphasized the difficulty stakeholders face in understanding transboundary agreements and related obligations, highlighting the need for clear and accessible communication strategies.Accountability Concerns: Discussions focused on the importance of reaffirming commitments and building a clear understanding of the entire river system among the three countries involved.Promoting Inclusiveness: Stakeholders expressed the need for strategies to ensure inclusivity, including capacity building and aligning communication with the interests of all stakeholders.Resource Allocation Uncertainty: Issues related to uncertainty in resource availability for allocation decisions were identified, alongside concerns about unreliable data sources and the lack of strategies for promoting inclusiveness.	Legislative Disparities: Participants highlighted challenges stemming from different legislations that may not be complementary, emphasizing the need for harmonization.Data Collection and Sharing: Non-harmonized data collection and sharing methods and instruments were identified as obstacles to effective basin management.Funding Constraints: The unavailability of funds across various levels and the lack of infrastructure development were recognized as significant challenges.	Environmental Concerns: Participants discussed issues related to pollution, poor synergies in addressing environmental challenges, and the sharing of information, particularly regarding rainfall data.	The workshop identified a wide range of challenges confronting the Incomati Basin, including fragmented coordination, resource inadequacy, communication bottlenecks, and water quality issues.Stakeholder Deliberations: Stakeholders deliberated extensively on the important role each stakeholder plays in the successful management and conservation of the basin.

The Role for an Incomati MSP The groups unanimously recognized the potential benefits of implementing an MSP to address these challenges. They emphasized the importance of establishing a platform for transboundary engagement and information sharing among stakeholders to minimize redundant efforts and mobilize co-funding. Workshops were deemed essential for fostering understanding, with a focus on translating key messages into local languages to accommodate diverse cultures among the three countries. Leveraging existing data sources and ensuring continuous, stratified stakeholder engagement were identified as crucial for creating a reliable information repository and reducing conflicts. Ultimately, an MSP was recommended as an instrumental platform in enhancing clarity on basin-wide issues and promoting collaborative solutions with stakeholders.

Broader contributions of a transboundary MSP A transboundary MSP would provide a platform for stakeholders to address these challenges collectively, share best practices, and develop coordinated solutions that benefit all three countries.

• Enhancing Decision-making Processes: By involving stakeholders from all riparian countries in decision-making processes, a transboundary MSP can ensure that decisions are inclusive, transparent, and representative of the interests of all parties involved. This can lead to more effective and sustainable water management practices in the basin.
• Building Trust and Cooperation: Establishing an MSP in the Incomati Basin can help build trust and cooperation among the three countries by fostering dialogue, collaboration, and mutual understanding. This can contribute to greater stability and peace in the region by addressing potential conflicts over water resources through peaceful and cooperative means.

In summary, a transboundary multistakeholder platform has the potential to support growing water cooperation in the Incomati Basin by institutionalizing relationships, improving communication and information sharing, addressing transboundary challenges, enhancing decision-making processes, and building trust and cooperation among the countries.

1. Proposed Structure of the MSP

Roles and Responsibilities of the MSP In the envisioned MSP, several critical roles and responsibilities have been proposed to foster effective water governance and cooperation. These include harmonizing data to inform the public and citizens of the basin about water sector activities, highlighting the benefits of cooperation and the risks of non-cooperation in transboundary resource management. The MSP is anticipated to coordinate stakeholder buy-in, raise awareness on compliance matters and disaster management, influence policy decisions, and execute functions and activities as requested by INMACOM.

Proposed Structure of the MSP During workshop group discussions, recommendations were made regarding the structure of the MSP in the Incomati Basin. It is proposed that the MSP includes key stakeholders and organizations committed to enhancing water governance and cooperation, such as the International Union for Conservation of Nature (IUCN), Joint River Basin Authorities (JRBA), Komati Basin Water Authority (KOBWA), Water Users’ Associations (WUA), and other relevant entities. The proposed structure aims to ensure alignment with INMACOM to facilitate cohesive collaboration and coordination.

Proposed Meeting Frequency and Participants In the proposed MSP, regular meetings are suggested to facilitate dialogue, collaboration, and decision-making processes. It is recommended that basin-wide meetings occur every year and involve key stakeholders, including the Steering Committee and the General Assembly. These meetings would provide opportunities for stakeholders to discuss pertinent issues, exchange knowledge and expertise, and collectively address challenges they face on a year-to-year basis.

Proposed Funding Mechanism The funding for the proposed MSP would primarily come from INMACOM, as the overarching authority responsible for water management in the Incomati Basin. INMACOM would allocate financial resources to support the operations, activities, and initiatives of the MSP, ensuring its sustainability and effectiveness in promoting transboundary cooperation and sustainable water management.

1. Role of River and Environmental Management Cooperation (REMCO)

Potential to build on River and Environmental Management Cooperation (REMCO).  Whilst acknowledging REMCO’s existing contributions to basin governance, stakeholders recognized the need for potential modifications to align its functions with INMACOM’s requirements. These adjustments were suggested to entail clarifying REMCO’s legal status, expanding its mandate to encompass broader stakeholder engagement initiatives, and ensuring harmonization with the envisioned MSP’s overarching objectives. Currently, REMCO may operate under a framework that may not fully align with the legal mandates and structures envisioned by INMACOM. Therefore, formalizing REMCO’s legal status and ensuring its recognition as a legitimate institution within the basin governance framework is essential. This could involve establishing REMCO as a legally recognized entity with clear mandates, responsibilities, and decision-making powers conferred by relevant legal instruments or agreements.

Modifications will be required for REMCO to enhance its coordination mechanisms and stakeholder engagement processes. This could involve strengthening REMCO’s institutional capacity, improving its communication channels, and expanding its membership to ensure a broader representation of stakeholders from diverse sectors and backgrounds. Furthermore, REMCO may need to adapt its operational procedures to align with the proposed meeting frequencies and participation criteria outlined for the Incomati MSP.

• Conclusion

A transboundary MSP will add value to the management of the Incomati Basin In sum, MSPs are proliferating as a tool to enhance management of shared waters, and there appears growing consensus that the Incomati and its complementary Maputo basin may – like other shared basins – benefit from one. Particular benefits may include enhanced stakeholder engagement, improved information sharing, and more effective conflict resolution mechanisms, ultimately contributing to more sustainable and inclusive basin management and development.

Key Takeaways Work pursued through Nexus Gains, supporting the development of a transboundary MSP in the Incomati, which began in early 2023 and culminated in the March 2024 MSP workshop, has delivered several key takeaways:

1. There is agreement that MSP is needed in the Incomati and Maputo
2. There is convergence toward housing the MSP within the INMACOM framework
3. There are divergent views on REMCO. Should REMCO become the formalized Incomati Basin MSP, modifications to its mandate and legal status will be required.  
4. There is a recognition by stakeholders of the importance of securing adequate funding and stakeholder buy-in for the successful establishment and operation of the transboundary MSP in the Incomati and Maputo basins.
5. There is an acknowledgment that capacity building and continuous stakeholder engagement are crucial components for the effective functioning of the MSP, requiring ongoing support and investment in training programs and awareness-raising initiatives.

Next steps Nexus Gains support to the Incomati MSP activity will continue through the end of 2024. At least four next steps are envisioned:

• Roadmap: A roadmap will be developed that outlines the sequential steps and timelines for establishing and operationalizing the MSP. This roadmap will serve as a guide for stakeholders (member states), outlining steps from stakeholder consultation to the implementation of the MSP.
• Stakeholder Mapping/Consultation: A stakeholder mapping exercise will be conducted in the Incomati Basin side of each of the member states. The stakeholder mapping exercise will be used to identify and engage all relevant stakeholders in the basin.
• MSP Terms of Reference (ToR): A ToR will be drafted for the MSP, outlining its objectives, scope, governance structure, decision-making processes, and mechanisms for stakeholder engagement. ToR will provide a clear framework for the functioning of the MSP, which will support launching of the MSP
• Workshop: A workshop towards the end of 2024 will provide the opportunity to formalize the proposed role and structure of the Incomati Basin MSP, including modifications to REMCO and the responsibilities of INMACOM moving forward. Activities could include agreeing on a ToR, presentation of the results of stakeholder mapping and discussion of activities beyond.