TABLE OF CONTENTS
? The Mekong River Commission
? Message from the Chairman of the Mekong
River Commission Council
? Structure of the Mekong River Commission
? Organogram of the Mekong River
Commission
Annual Report 2003
? Progress Report 2003
? Corporate highlights
Mekong River Commission
? Scenarios for Mekong development
? Measuring ecological health
? Early warning on floods
? Co-managing the Mekong's fisheries
? Donor cooperation in 2003
? Income and expenditure in 2003
A Vision
for the Mekong River Basin
An economically prosperous, socially just and
environmentally sound Mekong River Basin
A Vision
for the Mekong River Commission
A world class, financially secure, international river
basin organization serving the Mekong countries to
achieve the basin vision
The Mission
of the Mekong River Commission
To promote and coordinate sustainable
management and development of water
and related resources for the countries'
mutual benefit and the people's well-being
by implementing strategic programmes and
activities and providing scientific information
© Mekong River Commission 2003
Photos by: MRC archive, Jim Holmes,
Chhoy Pisei.
1

---

The MEKONG RIVER
COMMISSION
The Mekong River Commission is an intergovernmental
Structure
body created in 1995 by an agreement between the
governments of Cambodia, Lao PDR, Thailand and Viet
Nam.
The MRC consists of three permanent bodies: the
Council, the Joint Committee (JC) and the Secretariat.
The Agreement on the Cooperation for the Sustainable
Development of the Mekong River Basin came about
The Council, comprising one member at Ministerial and
as the four countries saw a common interest in jointly
Cabinet level from each MRC member country,
managing their shared natural resources. Signed on 5
convenes annually and has overall governance of the
April 1995, it set a new mandate for the organization
Mekong River Commission.
"to cooperate in all fields of sustainable development,
utilization, management and conservation of the water
The JC, comprising also one member from each
and related resources of the Mekong River Basin."
member country at Head of Department level or higher,
convenes at least two times a year. This body functions
The agreement brought a change of identity for the
as a board of management.
organization previously known as the Mekong
Committee, which had been established in 1957 as
The Secretariat, which provides technical and
the Committee for Coordination of Investigations of the
administrative services to the JC and the Council, is
Lower Mekong Basin - the Mekong Committee.
under the direction of a Chief Executive Officer (CEO)
appointed by the Council. The Secretariat is located in
Since the 1995 Agreement, the Mekong River
Phnom Penh, Cambodia. The Assistant CEO is of the
Commission (MRC) has launched a process to ensure
same nationality as the JC Chair and serves a one-
"reasonable and equitable use" of the Mekong River
year term.
System, through a participatory process with National
Mekong Committees in each country to develop rules
The MRC is funded by contributions from the four
and procedures for water utilisation. The MRC monitors
member countries and from aid donors. Formal
the quality of water resources, and is supporting a joint
consultation with the donor community is carried out
basin-wide planning process with the four countries
through an annual Donor Consultative Group meeting.
called the Basin Development Plan. The MRC is also
involved in fisheries management, promotion of safe
The National Mekong Committees coordinate MRC
navigation, agricultural development, flood mitigation
programmes at the national level and provides links
and hydropower planning within an overall framework
between the MRC Secretariat and the national
of renewable resources management.
ministries and line agencies. The principal
implementing agencies of the MRC programmes and
The two upper states of the Mekong River Basin, the
projects are the line agencies of the riparian countries
People's Republic of China and the Union of Myanmar,
in the Lower Mekong Basin.
are dialogue partners to the MRC.
2

---

Message from the
Chairman of the Mekong
River Commission Council
On behalf of the Mekong River Commission (MRC), I take pleasure in extending to all readers my best wishes
and warmest greetings.
2003 was a successful year for the MRC. We have made progress in a number of central activities within the
framework of the 1995 Agreement on the Cooperation for the Sustainable Development of the Mekong River
Basin. These achievements take us forward on the path to our common goal: an economically prosperous,
socially just and environmentally sound Mekong river basin.
In this context, the MRC Council members, at their tenth meeting in November 2003 in Phnom Penh, have
signed the final Procedures for Water Use Monitoring and Procedures for Notification, Prior Consultation and
Agreement. This is a crucial achievement in our ongoing effort to put the 1995 Agreement to work and agree on
the details of its implementation with regard to a fair and equitable utilisation of the Mekong water and resources.
The MRC has also made good progress in its overall planning framework, the Basin Development Plan. The BDP
uses a bottom-up approach to planning, based on a participatory analysis in a sectoral and geographical
perspective. This process of analysis has been nearing completion in 2003 and will form the basis for the
development of proposals for transboundary cooperation projects.
The Environment Programme has been updated and revised. Important achievements include guidelines for the
development of transboundary environmental assessment, ecological health monitoring, water quality assessment,
environment risk assessment and a self-study river awareness kit on CD-ROM.
I am also pleased that in 2003 the MRC Council has agreed to establish the MRC Flood Management and
Mitigation Programme as a core programme of the organisation. The FMMP will be a valuable programme,
ensuring that the MRC can contribute to preserving the benefits of Mekong floods while at the same time mitigating
their negative impacts. I am looking forward to the start-up of the programme, that will include the establishment
of the Regional Flood Management and Mitigation Centre in Phnom Penh.
The MRC Council also approved the new Navigation Programme. This Programme is important as it will enable
our countries to employ the Mekong as a trade and transport route for economic development - a potential that is
only scarcely used today.
The present report also outlines the progress and impact of other core and sector programmes of the MRC in
2003. These programmes are part of the integrated programme approach allowing the MRC to benefit from
linkages between its different areas of work. Similar cooperation links have also been maintained in 2003 with
our outside partners at the bilateral and multilateral level and in the civil society. In the same vein, the MRC has
continued its fruitful dialogue with the upstream Mekong countries, China and Myanmar. This enables the MRC
to take developments along the full length of the Mekong into account in its work.
The Commission has made great strides in its work programme in 2003. This has been possible through the
generous support extended by our partners and friends to the organisation and the strong involvement and
ownership of our Member States. I am particularly pleased to convey to the MRC donor community, cooperating
agencies and partners, international organisations and friends our warm regards and appreciation for their kind
cooperation and assistance to the MRC in 2003, and we look forward to further fruitful cooperation in 2004.
H.E. Mr Lim Kean Hor
Chairman of the MRC Council in 2003/2004
3

---

STRUCTURE OF THE
MEKONG RIVER COMMISSION
Members of the MRC Council
Members at Ministerial and Cabinet level, responsible for policy and decision-making
H.E. Mr Lim Kean Hour
H.E. Mr Somphong Mongkhonvilay
H.E. Mr Prapat Panyachatraksa
H.E. Mr Le Huy Ngo
Minister of Water Resources
Minister of the
Minister of Natural Resources
Minister of Agriculture
and Meteorology
Prime Minister's Office
and the Environment
and Rural Development
Member of the
Member of the
Member of the
Member of the
MRC Council for Cambodia
MRC Council for Lao PDR
MRC Council for Thailand
MRC Council for Viet Nam
Members of the MRC Joint Committee
Members at Department Head level or higher, responsible for implementing policies and decisions
H.E. Mr Sin Niny
H.E. Mr Sitaheng Rasphone
Dr Plodprasop Suraswadi
Mr Nguyen Hong Toan
Vice-Chairman of Cambodia
Vice-Minister of
Permanent Secretary,
Secretary-General of
National Mekong Committee
Agriculture and Forestry
Ministry of Natural Resources
Viet Nam National
and the Environment
Mekong Committee
Member of the
Member of the
MRC Joint Committee
MRC Joint Committee
Member of the
Member of the
for Cambodia
for Lao PDR
MRC Joint Committee
MRC Joint Committee
for Viet Nam
for Thailand
MRC Secretariat
Responsible for technical and administrative services
Dr Dao Trong Tu
Officer-In-Charge of MRC Secretariat
4

---

ORGANOGRAM OF THE
MEKONG RIVER COMMISSION
Government of
Government of
Government of
Government of
CAMBODIA
LAO PDR
THAILAND
VIET NAM


COUNCIL

Members at Ministerial

and Cabinet level


Donor Consultative
Group

National Mekong
Donor countries and


Committees (NMCs)
Member Agencies
cooperating institutions
JOINT COMMITTEE
Members at Head of


Department or higher


MRC SECRETARIAT
Technical and
administrative arm
5

---

PROGRESS
REPORT 2003
WATER
UTILISATION
PROGRAMME
2000
2003
2006
Following an intense schedule of negotiations, MRC
the year and the final version is expected to support
member countries signed off two new procedures on
the basin development planning process in its analysis
water use at the Tenth MRC Council meeting in
of scenarios.
November 2003 in Phnom Penh. They were procedures
on notification, prior consultation and agreement, and
A new project, Integrated Basin Flow Management
procedures for water use monitoring. This now
(IBFM), was developed and is now being implemented
completes the Water Utilisation Programme (WUP)
under the joint supervision of MRC's Environment
schedule of agreements on procedural rules, and paves
Programme and the WUP. The project will generate
the way for the two upcoming technical agreements in
information to support the development of rules for
the second half of the programme: rules for water
the maintenance of flows on the mainstream, to be
quantity and quality.
undertaken by WUP in 2004.
A working copy of the Decision Support Framework
WUP and the Environment Programme also jointly
(DSF) was completed by consultants by the end of the
supervised a two-year water quality diagnostic study,
year, with the final model to be presented by March
financed by the government of France.
2004. The DSF is a software package designed to
assist "players" - government and public policy advisors
Modelling activities of the Tonle Sap continued through
- to balance various scenarios, decisions and
coordination of work with Finnish and Japanese
uncertainties. Training in the use of the package was
consultants.
carried out during
6

---

BASIN
DEVELOPEMENT
PLAN
2001
2003
July 2005
Due to the need to ensure that all stakeholders are
Information from the studies is collated for discussion
fully on board the planning process, the Joint
with local representatives from government agencies,
Committee and donors to the Basin Development Plan
line ministries and departments, universities,
agreed in 2003 to extend the life of the BDP by six
international organisations and civil society. A first round
months, with no further funding sought.
of stakeholder meetings in the sub-areas were carried
out in three out of four countries in 2003 to share the
The two aims of the programme are to establish a
information and identify issues and concerns regarding
planning process at national and regional levels that
the type and pace of development in the area. A second
will enable the Lower Mekong countries to jointly plan
round of meetings will follow in 2004 to jointly prepare
the development of the river basin, and to produce the
possible scenarios for development.
first regionally-owned basin development plan based
on an agreed strategy and project ideas that have
The scenario-building approach adopted by the BDP
emerged from joint discussions. National Mekong
is new to the region (see story on page 18) and its
Committees are closely involved in the planning
innovative nature has been recognised and welcomed.
process. Coordination meetings between national
coordinators and BDP staff at the MRC Secretariat
With support from the Murray-Darling Basin
have been held every six weeks to ensure a common
Commission, the BDP team at the MRC secretariat also
approach across the four countries.
conducted three rounds of training in basin planning
during the year, with a fourth round to follow in the
The planning process is based on studies carried out
form of a river basin tour in 2004.
in ten "sub-areas" comprising clusters of sub-
catchments.
7

---

ENVIRONMENT
PROGRAMME
2001
2003
2008
The Environment Programme, which has operated
assess the possible impacts of development initiatives.
since early 2001, revised its implementation plan in
2003. The revised programme for 2004-2008 was
The Environment Programme has also begun
approved by the Council in November.
preparation of advice to government at a senior level
on the development of a transboundary system of
The 15-year-old water quality monitoring network in
environmental impact assessments (EIA).
the Lower Mekong Basin was revitalised in 2003 with
Environmental risk assessments have been carried out
new equipment and training of staff. Information from
by regional teams in the areas surrounding Vientiane/
the monitoring network is being complemented by a
Nong Khai and Phnom Penh. A comprehensive review
study of water quality in the river basin. The MRC pilot-
of environmental conflicts in the region was completed
tested a system of ecological health monitoring at
as a first step in considering how the MRC can be
various locations in the river basin. Full monitoring
engaged in environmental conflict mediation and
operations will start in 2004.
resolution.
A common wetland classification system has been
A large amount of educational and training material
developed and forms the basis for a basin-wide map
has been prepared and some of it is being translated
of wetland types, together with an inventory and
into the languages of the Mekong region. This material
assessment of the ecological, economic and social
includes a self-study kit on river ecology on CD-ROM,
functions and values of important wetland types. This
a total of seven training units and 20 case studies on
information is intended to provide the basin
environmental management, the landmark State of the
development planning process with additional tools to
Basin Report 2003, and an electronic atlas of People
and the Environment, done in collaboration with WWF.
8

---

FLOOD MANAGEMENT
AND MITIGATION
PROGRAMME
2003 Preparation phase
2010
The new six-year Flood Management and Mitigation
a more echnical approach than in previous years,
Programme will begin full-scale implementation in the
drawing over 100 specialists on disaster-preparedness
second half of 2004 as a core programme of the MRC.
and hydrology.
In 2003 the programme was in the start-up phase and
has been preparing for the set-up of a Regional Flood
Community-based flood referencing activities began
Centre in Phnom Penh. Flood forecasting operations
as a pilot phase in six floodplain villages in the provinces
were carried out as usual in 2003, which was a low
of Kandal and Prey Veng, Cambodia. (See full story
flood year. It is expected that the forecasting operations
on page 22.)
will move from the Secretariat to the new centre when
it is ready.
A project to assess and improve the usefulness and
accessibility of the flood maps at the MRC Secretariat
In October, the 2nd Annual Mekong Flood Forum was
was successfully completed.
held in Phnom Penh, on the theme "Information
Sharing, Partnership and Networking". The forum took
9

---

FISHERIES
PROGRAMME
2003 Revised programme began
2005 and ongoing
The Fisheries Programme works towards the
fisheries (LARS2) jointly with the Cambodian
coordinated and sustainable development, utilisation,
Department of Fisheries and the Food and Agriculture
management and conservation of the fisheries of the
Organisation (FAO), drawing over 220 scientists and
Mekong River Basin.
fisheries professionals from around the world.
Most of the work of the programme is carried out
·
Publication of fisheries research findings as
through the government fisheries departments. This
reports and CD-ROM products. The fisheries
approach builds capacity in the departments and
newsletter, Catch and Culture, was revamped to have
heightens the relevance and ownership of specific
a greater focus on current issues and events in fisheries
activities that are undertaken. It also builds greater
management. Most publications have been translated
awareness of the need for regional cooperation in
into the languages of the Mekong region, and can be
managing the Mekong's fisheries resources.
downloaded free of charge from the MRC website.
The Fisheries Programme has four thematic areas:
·
Various major regional workshops and
fisheries ecology and impact assessment; enhancing
consultations. One of these has resulted in a widely-
livelihoods; fisheries management; and
circulated report on the most successful methodologies
communication.
for improving statistics on the inland capture fishery.
In 2003 the programme firmly re-established its
·
A three-year programme of development and
direction after disruption in 2002 following cuts in donor
implementation of community fisheries management
funding and staff turnover. The new direction has been
was completed, and is being considered for extension
recognised and well-supported by donors.
to new areas in the basin.
The year 2003 saw some significant achievements:
·
Research began into the genetics of the most
important market species in the Mekong.
·
Hosting of the very successful 2nd international
symposium on the management of large rivers for
10

---

AGRICULTURE,
IRRIGATION AND
FORESTRY
PROGRAMME
2003
2008
The Agriculture, Irrigation and Forestry Programme
management have been completed.
(AIFP) began work on a watershed management
component in August 2003, so all activities are at an
·
Maintenance and improvement of the
early stage. The aim of watershed management is to
MekongInfo website for natural resource management
ensure that the natural resource benefits of watersheds
information.
will continue, through the sustainable management of
land and land-related resources. The component
·
Research on the best methods for monitoring
emphasises the strong inter-relationships between
of land-use changes in the Mekong watersheds,
upstream and downstream interests.
including the acquisition and analysis of GIS and
satellite images of the basin.
Major achievements in 2003 were:
·
Set-up of a training programme for watershed
·
Establishment of national watershed
management planners in the Mekong region, in
management working groups in each of the MRC
partnership with two German organisations, INWENT
member countries through government links.
(Capacity Building International) and DED (German
Development Services).
·
Conducting of important baseline studies. A
training strategy, a comparison of community forestry
·
Research cooperation with the University of
approaches in Cambodia and Lao PDR, and a study
Gottingen, Germany, to study the long-term impacts
on policies and institutional frameworks for watershed
of land-use changes in uplands on the river system.
11

---

WATER RESOURCES
MANAGEMENT
PROGRAMME
2003 Preparation phase
The Water Resources Management Programme
In 2003 the WRMP began preparation of an
(WRMP) has gone through several changes in the
implementation programme based on the 2001
past two years. Flood management operations, which
hydropower strategy. The programme's immediate
were formerly part of the programme, have been
objectives are to identify the best options for
established separately as a new core programme of
sustainable hydropower development in the basin, and
the MRC.
to recommend criteria for prioritisation. The
programme will also strengthen the capacity of the
Hydropower planning remains its main function. Under
Lower Mekong governments for hydropower planning
the hydropower development strategy formulated in
and development, and provide information and advice
October 2001, the programme will now concentrate
on specific projects to the member countries.
on supporting the basin development planning process
currently under way. Construction and related detailed
The programme is scheduled to begin in 2004 with
studies rest with the countries and their lending
the approval of the Joint Committee and the Council.
agencies.
12

---

NAVIGATION
PROGRAMME
2003 Approval of new programme
2009
Regional and national workshops and consultation
Asian Development Bank and ASEAN, through
visits took place throughout the year in preparation
meetings and the joint organisation of specialist
for a jointly-owned four-country navigation strategy
workshops.
and programme. The MRC navigation strategy was
endorsed by the Joint Committee in August 2003 and
Institutional support and capacity building of the
a detailed six-year programme was approved by the
Cambodian government continued through bilateral aid
MRC Council in November.
funding. A master plan for water transport on the
Mekong River system in Cambodia is being developed
The programme consists of five components: socio-
out of these activities.
economic analysis and waterborne transport planning;
strengthening the legal framework for cross-border
Training in digitising of MRC's hydrographic atlas and
navigation; traffic safety and environmental
navigation maps also continued in Cambodia, Lao PDR
sustainability; information, promotion and
and Thailand, using the S57 standards of the
coordination; and institutional development.
International Hydrographic Office (IHO) to support the
future production of electronic navigation charts.
Closer working cooperation has been fostered with
These digitised charts will be used in planning
United Nations bodies and with the World Bank, the
improvement of the waterways, and will make updating
of the maps in future almost effortless.
TOURISM PROGRAMME
2003
Funding is being sought for a new tourism programme
13

---

INTEGRATED
CAPACITY BUILDING
PROGRAMME
2000
Ongoing
The Integrated Capacity Building Programme (ICBP)
·
The Junior Riparian Professional (JRP)
began in 2000, with the aim of developing both people
programme provides two- to three-year internships for
and systems of the MRC as a river basin organisation.
young people with professional qualifications relevant
This encompasses strengthening the various MRC
to river basin management. In 2003 there were six JRPs
entities including MRC Secretariat, National Mekong
working at the MRC Secretariat.
Committees and line agencies.
·
A twinning programme with the Murray-Darling
The programme comprises several aspects:
Basin Commission assists in building organisational
capacity, technical capacity and engagement with the
·
An integrated training programme brings the
public.
various training needs of the MRC under one umbrella
and sponsors selected studies in water resources
·
A communications component provides in-
management for Mekong region professionals. In 2003,
house expertise to the programmes for effective public
10 nationals of the Mekong countries were sponsored
information to be disseminated through events, general
on short courses for their professional development in
and technical information resources in print and
Denmark, and four were provided with scholarships to
electronic media, and press liaison.
complete degrees at Master's level.
14

---

CORPORATE
HIGHLIGHTS
MOVING TO VIENTIANE
the Challenge Programme on Water and Food. The
MRC coordinates research submissions to the
Challenge Programme through its network of partners
The MRC Council's decision to shift the Mekong River
in river basin management. The projects that received
Commission Secretariat from Phnom Penh to Vientiane
funding will contribute in many ways to ensure that
gathered speed in 2003 with the completion of a new
water abstractions from the Mekong do not exceed
building on the banks of the Mekong. Recruitment and
sustainable levels.
training of Lao support staff also began in the second
half of the year. Relocation activities have been
Among many research topics, the projects funded will:
undertaken according to a road map approved by the
Joint Committee in 2003.
·
Design better farming systems for concurrent
agriculture and fish culture.
The Secretariat's home-to-be is a five-storey building
overlooking a broad stretch of the Mekong as it flows
·
Improve rice-growing technology.
through Lao PDR's capital city. The new location is a
strong symbol of regional cooperation, providing a clear
·
Develop rice varieties that can cope with high
view of houses and shops on the opposite bank of the
levels of salinity.
Mekong, in Thailand.
·
Make more use of the Mekong's seasonal
Most professional staff will move in May 2004, and
floodwaters for rearing fish and shrimp.
some administrative staff will travel from Phnom Penh
to Vientiane to be part of a one-year handover period.
Launched in Nairobi last year, the Challenge
Programme is a global research programme spread
across nine major river basins in Africa, Asia, the Middle
MEKONG RESEARCH ON
East and South America. The river basins serve as
WATER AND FOOD
living laboratories where the impacts of development
can be clearly measured. Each basin has its own set
Scientific research in the Mekong region received a
of problems. In the Mekong River Basin, the challenge
US$10 million boost in 2003 with the funding of projects
is how to achieve sustainable agricultural, fisheries and
to improve water use efficiency in agriculture through
economic development, while alleviating poverty and
preserving the unique environment and biodiversity of
the basin.
15

---

GATEWAY TO INFORMATION ON THE
UPSTREAM RELATIONS
MEKONG
Dialogue between the MRC with China and Myanmar
Work on an exciting new web portal began in 2003
continued on a positive note as the parties met formally
through an MOU between the MRC, the Canadian
on 1 October 2003 following a meeting of the Joint
Space Agency and the Canadian Centre for Remote
Committee in Phnom Penh. The meeting, the eighth in
Sensing.
a series of annual talks with the upstream countries,
gave rise to further technical cooperation, with the
The portal is designed to provide access to data and
government of the Union of Myanmar proposing to
information held by the MRC. The portal, to be known
establish river level monitoring operations in
as the MRC-IS or MRC Information System, has been
cooperation with the MRC.
discussed for a long while but only in 2003 did funds
and partnership expertise become available.
China has had ongoing technical cooperation for well
over a year, based on an April 2002 agreement by China
Comprising three main sections, the portal will provide
to provide daily data on river levels to the MRC for use
users with an entry to listings of MRC's datasets on
in flood forecasting. To support the operation, the MRC
river levels, water quality, fisheries and more. A
has assisted China in modernising two river monitoring
document management system will provide advanced
stations in Yunnan province on the Upper Mekong, or
search functions to the Documentation Centre's
Lancang as it is known in China.
electronic catalogue.
At the dialogue meeting, China's permanent
The portal also provides access to satellite services
representative to the United Nations Economic and
for earth observation. While much satellite imagery is
Social Commission for the Asia-Pacific (UN-ESCAP),
freely available on the internet, the portal directs users
Mr Zhang Wanhai, assured delegates that, "We have
to the data with links and information on which services
fully realised that economic growth must not be
are best suited to specific uses such as land use
achieved at the cost of environment or resources...The
monitoring, weather monitoring or flood analysis.
Chinese government will never engage in activities that
will benefit itself at the expense of others. On the basis
Full utilisation of the portal is expected to take some
of working shoulder-to-shoulder...I am confident that
time and will be preceded by a test version to be
we could consolidate and expand our cooperation to
launched on the secretariat's intranet by the end of
get more and more achievements."
April 2004.
16

---

SCENARIOS
FOR MEKONG
DEVELOPMENT
It is the year 2020. Population in the Lower Mekong
countries as well as on observed regional trends. The
Basin has reached 80 million, up from 55 million in the
scenarios are built up by describing:
year 2000. Urban centres have grown hugely as one-
third of the people live in cities. Small farms have slowly
·
Available water resources, defined by the
been replaced by large agro-industrial holdings.
balance between the supply of water, determined
mainly by climate, and current uses. Water use can
Cambodia and Lao PDR have powered ahead with
be consumptive, as in irrigation, domestic and industrial
irrigated agriculture, based on plans made in the early
use, or non-consumptive, as in fisheries and navigation.
years of the 21st century. Half a million hectares of
land have been brought under irrigation since that time,
·
Trends that affect water use or availability, such
including areas on the Vientiane and Savannakhet
as population growth, increased irrigation or climate
plains, around the Tonle Sap Lake, and on the
change.
floodplains of eastern and southern Cambodia. The
markets are full of fresh fruit and vegetables, but river
·
Interventions, which may be physical - for
fish is more expensive than pork.
example, dams, weirs and irrigation works - or non-
physical, in the case of new management systems,
Urban homes all have piped water facilities, but water
tariffs, water use policies and laws.
rationing is in force from the months of February to
May. Water supply is an election issue in every town
As part of the scenario-building approach, public
and city.
meetings are held in defined "sub-areas" that are under
study, many in border regions. The meetings bring in
The Mekong River Commission is evaluating
targeted interest groups and community
scenarios such as this one as part of a four-year basin
representatives to identify issues of concern to local
development planning process (BDP), due to end in
people, including the opportunities and risks of different
July 2005.
development activities.
Scenarios are simply a way of asking "What if?" They
The outcomes of possible scenarios are then evaluated
provide a structured method of thinking about possible
using a combination of hydrological modelling tools and
future options, opportunities and risks and how these
expert opinion. The basin models and decision support
interact. Scenario-based planning is widely used in
framework (DSF) developed under the MRC's Water
business to help companies work through the types of
Utilisation Programme have been designed to give a
change that might affect their business. Scenarios are
detailed description of water availability and flows under
also used internationally in water resources planning,
different scenarios.
as a way of analysing likely outcomes of decisions.
The BDP teams at the MRC Secretariat and at the
National Mekong Committees are using scenarios to
describe and assess possible changes to water
resources in the Lower Mekong Basin over the next
five to 20 years, based on the development plans of
the four
17

---

When information about river flow is known,
access to scenario-based information that will enable
conclusions can then be drawn about how these will
decisions to be made within a range of acceptable
affect the environment, fisheries and livelihoods. But
choices. It will be possible to assess whether the water
can we fully predict all outcomes? Some impacts may
resources plans of the four countries are compatible,
be poorly understood, difficult to quantify, or there
with sufficient water in the system to meet all planned
may be little data available. In this case, the teams
uses. Various development options can be compared
are asking experts to provide a qualitative assessment
and ranked, with an understanding of the trade-offs
of the type and magnitude of impacts. Impacts can
inherent in the different choices.
be used to draw up a "balance sheet" of the
advantages, disadvantages and risks, to help
Scenario analysis is also being used to help countries
compare and rank different options. It is important to
determine how much water should be left in the
remember, however, that the BDP is concerned with
Mekong - the "minimum flow" that is mentioned in the
broad regional impacts and trends and will not
1995 Agreement on Cooperation for Sustainable
evaluate individual projects.
Development of the Mekong Basin. A new
Environmental Flows project at the MRC will use
By looking at a range of scenarios, it is possible to
scenarios formulated with the BDP to describe
build up a picture of how sensitive the river system is
environmental changes that can be expected. The
to particular types of change, and how different factors
countries will then be asked to decide which scenarios
interact. For example, large withdrawals of water from
are "acceptable", as the basis for defining agreed-upon
the Mekong could be disastrous under current
flow levels.
conditions during the dry season. But if the large dams
planned in China hold back water when it is plentiful,
It is not possible to dictate the future. Governments
and release it during the dry season, increased
can choose the types of developments in which they
downstream irrigation may not have any severe
will invest, but the overall economic and environmental
impact after all. Scenarios help people to visualise
context grows out of many factors beyond their control.
what different planning decisions will mean.
What is possible is to use our understanding of how
different factors interact to plan so as to allow for known
trends and possible risks. In this, the scenario-building
At the end of the BDP process, governments will have
approach is invaluable.
This dry-season satellite photo shows green fields in Viet Nam due to extensive irrigation.
In contrast Cambodia (the pink area) is little irrigated, but this may change over the next 20 years.
18

---

MEASURING
ECOLOGICAL
HEALTH
The people of the Mekong will continue to enjoy the
the dry season when water current speeds are slower,
river's natural benefits only if the river remains healthy.
so their larvae does not get washed away downstream.
Healthy rivers support diverse communities of fish,
If dry-season flows are increased too much, the
insects and snails and other invertebrates and plants.
breeding of these species is affected. They may
They contain good-quality water that provides drink for
disappear from certain stretches, or from the river
farm animals, irrigation for crops and recreational
altogether.
opportunities for people. With minimal treatment, the
Mekong can provide drinking water for people as well.
In order to maintain a healthy river we need to be able
to measure river health so as to know if the river is
There are three main requirements for a river to be
becoming more or less healthy. Like human health,
healthy: the water quality must be good, the habitat
river health is difficult to define precisely and cannot
must be intact and the flow regime must be unimpaired.
be measured directly. Just as blood pressure and
If the water quality is not good the range of animals
temperature can be used as indicators of human health,
and plants able to live in the river is reduced; some
we can use a variety of indicators to measure river
species may increase in numbers, but the total variety
health. The most useful general indicators are based
is less. In extreme cases it may not be possible for
on the communities of organisms that live in the river,
any animal life to survive in the water.
since they are sensitive to changes in all three of the
requirements for river health identified above.
Unpolluted water alone is not enough for animals and
Information on chemical water quality, changes in
plants to thrive. They also need appropriate habitat.
habitat and changes in the flow regime are also
Some fish make "nests" in sandy stretches of riverbed
potentially
to lay their eggs. They cannot breed in stretches of
river flowing through a bedrock channel because there
is no nesting habitat. Some aquatic insects live on
pieces of wood in the water, others live only in fine silt,
others require clean rocks. If the habitats present are
changed - for example by canalising or dredging - the
animals and plants that live in the altered stretch of
river will also change.
Finally, the flow regime of the river is important,
especially in regulating the life cycles of many
organisms that live in rivers and wetlands. For example,
lotus plants flower in the dry season when water levels
are low, so their flowers reach above the surface. If
the water levels are too high, they cannot flower and
so cannot produce seeds. Similarly, many fish breed
in
Common freshwater invertebrates of the Mekong.
19

---

useful indicators and can assist in the interpretation of
sort of rapid ecological health assessment. Further
biological data.
work will need to be done to identify better ways to use
fish as indicators in the Mekong. Similarly, the method
In 2003, the Mekong River Commission's Environment
used to measure primary production was too time-
Programme began a new project to identify biological
consuming, taking up to six hours on each site visit. In
indicators for monitoring the ecological health of the
future, the team will have only two or three hours to
Mekong River. These indicators can be used in
sample each location, so unless a faster method can
conjunction with the existing chemical water quality
be developed this indicator cannot be used in future.
data and hydrological monitoring data to provide a
better understanding of the present health of the river
Some of the methods used proved to be redundant -
and how the river is changing.
the information they gave about the river was the same
as the information provided by another, simpler method.
A single project team, including national experts from
As a result, several of the measures were deleted and
all four riparian countries working with international
others were simplified. For example one type of
mentors, has carried out the work. The bio-assessment
sampling for zooplankton will not be used because it
team sampled sites in all four lower Mekong countries
provided no additional useful information.
looking for effective indicator techniques. The sites
sampled included both sites that were expected to be
In 2003 the MRC produced an initial State of the Basin
in very good ecological health, as well as some in which
Report that reported in detail on many aspects of the
evidence of poorer health was expected. The biological
environment in the Lower Mekong Basin. The report
assemblages tested included fish, algae and various
included some initial evaluations of chemical water
groups of invertebrates (insects, snails and other
quality, with special attention given to suspended
animals without backbones). Measures of ecological
sediment, nutrients and salinity. Unfortunately there
processes were also taken, including respiration and
was no data available on overall ecological health of
primary production - the rate at which plants grow in
the river.
the river.
Based on the present work, together with the continuing
Of the indicators tested, several will not be used in
chemical sampling programme and a diagnostic study
assessments in 2004. Fish are an important
that is looking for toxic chemicals in water and
component of the biota, but it proved too difficult to
sediments, the MRC will produce a first report card on
collect a representative sample within a reasonable
the ecological health of the lower Mekong River in 2005.
time for this
20

---

EARLY WARNING ON
FLOODS
When the flood season approaches, Chie Kolap (left)
These readings, together with weather and other
makes her house ready. The two-metre poles that hold
information, are used by the Mekong River
up her house are reinforced and braced. The wooden
Commission to develop flood forecasts up to five days
boat, that was stored upside-down in the dry season,
ahead. Their limitation in the past was that the forecasts
is checked for leaks or damage. Provisions are brought
only applied to the situation on the mainstream. Land
in. When the water rises, as it always does on this
features, built structures and proximity to lakes and
strip of lowland rimmed by tributaries and streamlets
backwaters, can mean a rather different flood situation
of the Mekong, she may be cut off for days or weeks.
in areas not located directly on the mainstream.
Others in a similar situation may go to stay with
relatives for the two or three months that the floods
With the help of the new village-based readings, over
are expected. While they prepare ahead as much as
time, a reliable picture can be built up of village flooding
possible, wind and weather conditions mean there is
in relation to the mainstream forecasts. It means that
still a large element of chance in their preparedness.
the daily warnings broadcast by the Mekong River
Commission on the secretariat website will have
This year, an innovative new project in her village may
increased relevance. With the referencing activities
make a difference.
Red Cross volunteers have been marking water
measures through the year on flood gauges planted
in a strategic selection of sites. The readings are then
linked with, or "referenced", to flood levels on the
mainstream of the Mekong.
The mainstream readings come from a network of
hydrological monitoring equipment installed on the
Mekong all the way from Chiang Saen in Thailand in
the north to Chau Doc in the delta of Viet Nam, not far
from where the Mekong empties out into the South
China Sea.
21

---

supported at the community level by the USAID's Office
levels were low in 2003, which meant that the village-
for Foreign Disaster Assistance (OFDA), flood forecasts
based data collection has been in a trial stage. Higher
for the mainstream will also be able to predict the
flooding in the years to come will put the system to the
situation in those particular villages, based on a simple
test.
correlation formula.
Flood-referencing brings warnings to the people most
During the flood season, daily flood warnings for the
vulnerable to the impacts of changing land-use
mainstream stations are sent out from the MRC
patterns. Those who stand to benefit most from an
Secretariat by email to the Red Cross and other
effective village-based system are those like Chie
agencies. Warnings are also posted on the MRC
Kolap, who have built homes on land that was
website. In 2003, with the help of a spreadsheet
traditionally used only for dry-season agriculture.
containing the correlation formula for villages in six pilot
Much of Cambodia is a floodplain, and the Mekong
areas, Cambodian Red Cross workers at the
predictably overflows its banks annually to cover vast
headquarters in Phnom Penh were able to check the
swathes of farmland. Local people are well aware of
forecasts for specific villages.
general flooding patterns, but land shortage and a lack
of options have meant that many have been pushed
The CRC transmits warnings of possible flooding by
to the margins, building on land that is at high-risk of
two-way radio or mobile phone to village volunteers in
severe flooding.
the project areas. Red Cross volunteers in the villages
then write up the forecasts on notice boards at
A survey of floodplain villages near Phnom Penh
prominent village locations and also pass on
showed that people placed a high importance on
explanations through word-of-mouth. In this way the
receiving flood information and warnings, second only
flood warnings are delivered to the grassroots level.
to food and ahead of other perceived needs, such as
money or supplies. In the six project areas in Lvea Em
In 2004, the pilot phase will be expanded to cover 34
and Peam Ro districts that piloted flood-referencing
more villages in a range of geographic terrain. River
activities in 2003, this need will soon be answered.
22

---

CO-MANAGING
THE MEKONG'S
FISHERIES
"Before we never negotiated directly with the
together on what activities should be carried out. The
government, but today we feel free to approach
government has the power to sanction proposed rules
and discuss with the government. The biggest
and regulations. It provides specialist services and
advantage that I see from co-management is that
facilitates the co-management process. In addition to
people have learned how to plan...how important
the planning activities, users carry out the hands-on
it is to manage the fish, if they are not to
work.
disappear."
Co-management depends first of all on finding or
developing the organs of management and
- Mrs Keung Lankhemthong, member of the
cooperation.
Lao Women's Union and Reservoir Fisheries
Management Committee in Vientiane province,
Wherever possible, organisational forms already in
Lao PDR.
place are used. For example, co-management in
Thailand is being implemented through the sub-district
Public policy specialists and practitioners around the
administration, or Aor-Bor-Tor. In Lao PDR a new form
called the Reservoir Fisheries Management Committee
world have widely supported decentralisation - the
(RFMC) was developed. Fishers' Unions were set up
moving of government functions and processes to be
in Viet Nam, similar to the existing Farmers' Unions. In
as close to the people as possible. Also generally
Cambodia, the Fisheries Programme contributed its
accepted is the principle that all users of natural
experiences to a government-led process of placing
resources should be involved in decisions about those
fisheries in many areas under community control.
resources.
In each country, plans are developed for a one-year
In the countries sharing the Lower Mekong, these
concepts have gradually been enshrined in government
period. Each plan takes into account the uniqueness
of its setting, and establishes or supports existing lines
policy on natural resource management. They are also
reflected in the Mekong River Commission's own public
of communication and cooperation between micro and
macro levels of management. After the first year of
participation guidelines, which emphasise the
importance of bringing stakeholders inside and outside
operation, they are reviewed, evaluated and adapted
as needed. The plans can have many aspects. In Lao
the MRC structure into decision-making on issues and
activities of basin development.
PDR, for example, reservoir plans concentrate on the
set-up and strengthening of the Reservoir Fisheries
Management Committees, the review and update of
The Fisheries Programme of MRC is making such
fishing regulations, stocking of reservoirs and the
policies a reality, through supporting fishers at about
identification, demarcation and enforcement of
twenty reservoir and river sites to collectively manage
conservation zones.
their aquatic resources with local government agencies.
Its approach, termed co-management, goes far beyond
Positive results have been
what often passes for public participation in government
reported from the latest one-
and aid-funded projects.
year cycles of co-
management planning and
Stakeholder involvement is often merely consultative:
the people are heard but decisions are taken
implementation. This is
rewarding, given that the
elsewhere. In contrast, with the co-management
approach, government agencies and the fishers decide
user-managers face many
problems.
23

---

"Previously, there was less participation by
"We protect the fish together. We create our own
villagers, and conservation activities failed...Now
fishing rules and regulations. In this everyone takes
relationships between government officers and
part. I volunteer to participate, especially because
villagers are closer. Like brothers."
it can stop illegal fishing in our reservoir."
- Mr Prayat Gantararuk, Aor-Bor-Tor member of Tambon Nong
- Mr Phea Chork; Community Fisheries Chief near Boeung Chunlen
Buaban at Huay Luang Reservoir in Udon Thani, Thailand
Reservoir in Kandal province, Cambodia
The main benefits mentioned by users are not increases
in fish catches so much as better communication
An important transboundary issue in fisheries
between users and government, their pride in sharing
management is the protection of key habitats for fish
their own experience and competence, and an
spawning and dry-season refuges. Other
increased sense of responsibility and confidence.
transboundary concerns include matters of improving
communication between government agencies and
Fisheries management and the benefits from it occur,
users, involving users in existing management systems
for all practical purposes, on the local level. It is thus
and developing the capacity of fisheries administrations
no surprise that co-management has centered on local
to take on the challenge of public participation by
issues and activities. But their activities may affect users
themselves.
outside the immediate community, or suffer impacts
originating elswhere.
So far user organisations at national level are few.
There is an interesting model available with fish farmer
The cooperative, bottom-up approach of co-
and fisher associations organised throughout the
management contains the seeds of dispute prevention
country in Viet Nam. In Cambodia, community fisheries
across borders. A major challenge now is how fisheries
are being coordinated through a national office in the
co-management can "scale up" to deal with
Department of Fisheries of that country. And regionally,
transboundary issues. How might the existing
two fisheries research institutes in Lao PDR and
cooperation move from the local to national and,
Cambodia are now working with user communities in
possibly, regional levels?
both countries to co-manage deep pools in Southern
Laos and Northern Cambodia.
In the year 2000, the government ministries concerned
with fisheries and aquatic resource management
established a four-country Technical Advisory Board
(TAB) facilitated by the MRC Fisheries Programme.
The TAB has identified important transboundary issues,
including the management of giant fish species and
the conservation of deep pools in the Mekong. Regional
training courses in fisheries co-management have also
been carried out.
In view of the need to scale up co-management
activities, the TAB will become more important in the
future. As the transboundary issues rise higher on
natural resource agendas in all four countries, their
role is likely to become a crucial one.
"Based on the credit and savings groups, fishers
can save money for buying nets and other pieces
of equipment for fishing. The living condition of
most fishers has improved steadily."
- Mrs Tram Thi Huong fisher and treasurer of Lak Fishers' Union
at Lak Lake in Dak Lak Province, Viet Nam
24

---

DONOR COOPERATION
IN 2003
Donors continued to show their strong support of the MRC in 2003.
Funding agreements amounting to US$ 7.085 million were concluded
with Japan, Switzerland, Norway, Finland, Germany, the European
Commission, the Asian Development Bank (ADB), the Netherlands and
the UK-based Marine Resources Management Group. Compared to
funding levels over the past three years, funding in 2003 was somewhat
reduced. This is due to the fact that MRC programmes and projects
received full funding at the beginning of their programme or project phase,
mostly starting in 2001. 2003 was a year for final implementation and
completion for a number of programmes and projects, so little additional
funding was required.
However, donors have expressed strong support for MRC activities from
2004 and beyond. This is reflected in the volume of formal pledging and
commitments of support amounting to around US$ 21.014 million, made
by Denmark, Germany, Japan, the Netherlands, New Zealand, ADB and
the United Nations Development Programme (UNDP). These indications
of funding will be directed towards flood management and mitigation,
sustainable watershed management, basin development planning, the
environment, navigation and tourism programmes, and core support to
the MRC.
25

---

New Funding Agreements in 2003
Total value of new funding agreements:
US$ 7.085 million
Programme
Thousands of $
(Approximate Conversion)
1.
Core Support
1193
2.
Programme to demonstrate the multi-functionality of
318
paddy fields over the Mekong Basin
3.
Extension of the development and coordination of the
109
Navigation Programme
4
Extension of the project on modelling of the flow regime
278
and transport phenomena on the Great Lake of Tonle Sap
5.
Technical cooperation on sustainable watershed
4900
management in the Lower Mekong Basin
6.
Implementation of the proposal on the capacity-building
200
on preparedness planning and response through using
flood information
7.
Support for Annual Flood Forum 2003
52
8.
Project on uptake of adaptive learning approaches
35
for enhancement of fisheries
.
Firm Pledging Received in 2003
Total Approximate Value of Firm Pledging:
US$ 21.014 million
Programme
Thousands of $
(Approximate Conversion)
1.
Gender Mainstreaming in Water Resource Development
260
2.
Environmental Governance and Flood Management in the
1000
Mekong Sub-region
3.
MRC Participation in the Joint IUCN-UNDP-MRC Wetlands
1604
Biodiversity Programme
4.
Flood Management and Mitigation in the Lower Mekong Basin
18150
26

---

Income and Expenditure in 2003
2003 2002
USD USD
Contributions
Donors
10,232,904 11,448,269
Riparian governments
941,359 1,087,065
11,174,263 12,535,334
Revenue
Professional income
- 47,752
Interest
8,590 16,785
Miscellaneous
13,936 18,115
22,516 82,652
Total Income
11,196,779 12,617,986
Expenditure
Project expenditure
Personnel services
5,278,623 6,285,493
Sub-contracts
256,483 693,672
Training
1,002,231 1,317,864
Equipment
468,958 1,025,032
Miscellaneous expenses
453, 254 563,298
Water Utilisation Project
2,321,371 2,632,083
9,780,920 12,517,442
Relocation project
Secretariat relocation expenditure
33,338 - -
Administrative expenditure
Staff salary and fees
929,515 1,028,551
Common staff costs
391,311 424,872
Travel
3,639 3,948
Contractual services
100,143 92,073
General operating expenses
183,615 204,430
Supplies
26,111 18,882
Furniture and equipment
39,601 27,005
MRC meeting expenses
129,244 154,093
Support to National Mekong Committees and programmes
219,015 193,326
2,022,194 2,147,180
Total Expenditure
11,836,452 14,664,622
Foreign Exchange Gain
1,330 131
Movement in Fund Balances
(638,343) (2,046,505)
Fund Balances as at 1 January
5,042,790 7,089,295
Fund Balances as at 31 December
4,404,447 5,042,790
27

---