EMPOWERS Planning Cycle

Summary

Planning cycles are increasingly being used in the implementation of programmes of integrated water resource management (IWRM). The EMPOWERS participatory water planning cycle (PWPC), in common with other planning cycles, emphasises the need for decision-making that is based on good quality information and active involvement of stakeholders or their representatives.

Planning cycles should be applied flexibly, iteratively and at different levels. When used well, they ensure that decision-making is both structured and based on a clear and logical sequence of steps. This fact sheet describes the EMPOWERS planning cycle.

EMPOWERS participatory water planning cycle for IWRM

The EMPOWERS cycle is designed to be used with both community (end-user) and district/governorate level staff. It is designed to be used by stakeholders, facilitators and/or the implementers of projects or programmes. It helps to guide a process of problem analysis and medium to long-term visioning, in turn leading to the development of strategies based on a thorough assessment of key trends and scenarios. Based on these strategies, it then guides the development and implementation of concrete plans that will help to achieve the vision. The cycle expressly makes room for reflection on lessons learned as the basis for further work – supporting an adaptive and learning based approach.

It is recommended that progress through the sequence of steps be process rather than target-driven. Or put another way, it is recommended that the speed of progress be determined by factors such as the level of stakeholder involvement, or time required to reach a consensus.

The diagram shows the principal steps of the cycle.

Iterative application with sub-steps

The application of the cycle is designed to be iterative in practice, with repetition of steps more than once within the process. Additionally, each main step is divided into sub-steps as shown in following introduction to the main steps:

Step 1: Visioning

In the first step, stakeholders analyse their current situation (using problem trees) and develop an initial future vision for water resource management and water service delivery in their village or district.

Step 2: Assessing

In the second step, based the Vision and current problems, information on physical and societal aspects of water resources and services are collected and analysed.

Step 3: Strategizing

Based on steps 2 and 3, strategies[i] are developed to achieve the Vision under a range of possible future scenarios[ii]. Strategies are tested against scenarios (using Bayesian Network software) to assess likelihood of achieving the vision.

Step 4: Planning

Once a vision and strategy has been agreed by all stakeholders, detailed planning can begin to meet all or part of the strategy.Typically planning will be for some smaller sub-section of the total strategy.

Step 5: Implementing

Based on plans, roles and responsibilities of actors are identified, and implementation can take place.

Step 6: Reflecting

Reflection is shown as a distinct step in the meta-cycle.In reality however it should take place within each sub-cycle.

Identifying appropriate tools

As part of the process of action learning, within which the cycle is being developed and tested, a wide range of tools and methodologies are being applied, tested and adapted. Several of these are the subject of fact sheets.In the final guidelines that will be developed in each country, those tools and approaches found to be most appropriate will be identified and included.

Outputs of the process

The process at village or governorate level leads typically to a number of outputs including:

• Agreed and shared water resource and water service visions; and strategies for achieving them
• Plans and activities based on the strategies
• Improved understanding of water related issues
• Improved communication and understanding: horizontally between sectors and user-groups; and vertically between actors at different levels
• Actions or interventions that are better aligned to the needs and aspirations of stakeholders

Implementing the cycle

Implementing the cycle, in practice, calls for a flexible process supported by strong facilitation.There is much iteration between steps as problems are identified – initially in broad-brush terms, and then in increasing detail.Work at the village level requires constant consultation with the district/governorate. While work at governorate level calls for improved collaboration between different actors – particularly within government – and input from village level realities.Many obstacles exist in terms of capacity and resistance to change.Nevertheless, experience of the EMPOWERS project has been largely positive, with actors at all levels finding themselves empowered through interaction with each other.

Towards national guidelines

The national processes being undertaken in EMPOWERS will lead to the development of fully tested guidelines for the local level management of water resources, and development of water services – based on the steps of the planning cycle. For each step, tools and outputs will be identified, supported by case studies and practical suggestions for how to overcome potential problems and difficulties.

Conclusions and recommendations

A preliminary finding of the EMPOWERS Project is that the EMPOWERS planning cycle can play a key role in ensuring stakeholder involvement in water-related planning processes at the intermediate and local level. Indications are also that use of the planning cycle will lead to more equitable, efficient and sustainable water resource management.

[i]A strategy is a planning framework aimed at achieving a vision

[ii]A scenario is a coherent pathway or trajectory into the future