The Netherlands Enterprise Agency (Rijksdienst voor Ondernemend Nederland) has spearheaded several stakeholder consultations within the Dutch water sector to discuss social inclusivity in the Netherlands-funded international water management projects. In this blog article, ISS researchers Farhad Mukhtarov and Karen Vargas, together with colleagues from Deltares, TU Delft, and IHE-Delft, discuss a recent participatory session they organized that sought to better understand ‘social inclusivity’ in the water sector. A key takeaway was that self-reflection about power dynamics among senior decision-makers and other water professionals in international water projects is crucial for making the water sector more inclusive, given the many challenges facing contemporary development cooperation.
Partners for Water, a programme managed by the Netherlands State Enterprise Agency (Rijsksdienst voor Ondernemend Nederland or RVO) to support governments around the world with subsidies and expertise on water management, organized an event titled ‘Social Inclusion in Water Climate Adaptation – Making a Transformation‘ (12 September 2023, Utrecht, the Netherlands). The departure point for this event was a broadly shared realisation that Dutch water sector parties have too often handled in a top-down fashion in international projects, displaying a condition that became known as on the pages of this blog as “polder arrogance” – a term coined by the project’s “Professor Poldergeist” (IHE-Delft, 2022). The workshop aimed to foster dialogue between academics and practitioners to promote social inclusivity in the designs and implementation of international water projects funded or delivered by the Dutch actors as an antidote to the abovementioned ‘arrogance’. As a group of long-term collaborators from Deltares, IHE Delft, and ISS/Erasmus University, we organised a session within the RVO event to discuss the transformative potential of the idea of ‘social inclusivity’ and what stands in the way of its materialisation. We aimed to create a safe space for open exchanges among diverse participants from government, advocacy groups, academia, and the private sector.
With this blog post, we aim to summarise the major topics of discussion from the workshop and offer our take-aways. We first revisit the session to invite a broader audience into the discussions about the transformative journey of the Dutch Water Sector (DWS), and then offer our reflections.
Reflexivity and humility require skills
During the RVO event, there were several plenaries, reflective exercises, and parallel sessions with panels on different subjects related to the activities of the Dutch water sector internationally. Some examples include a session on Dutch Water Authorities-operated “Blue Deal” programme on the “Valuing Water Initiative” spearheaded by RVO. In our session, we initiated a fishbowl discussion with Laura Caicedo, a recent MA graduate from the International Institute of Social Studies, Erasmus University Rotterdam (ISS/EUR), who discussed her research of an ongoing Water as Leverage project in Cartagena, Colombia, and Kim van Nieuwaal, a Dutch expert on water and climate adaptation involved in Climate Adaptation Services (CAS). Water as Leverage (WaL), as represented on the RVO website, is a Dutch-founded public-private partnership mandated with tackling urban water-related challenges such as floods and declining water quality.
We chose them to start a conversation that gave clues of what inclusivity means in Water Projects. We began by exploring the meaning of transformation in the DWS and the current state of ongoing effort, then explored the key actors in the effort to transform the projects towards more socially inclusive and finished with a discussion of key challenges and ways of transcending them.
We were positively surprised to discover a reflective stance of all participants regarding the necessity to be aware of power relations, including one’s relative power, in achieving a genuine transformation in how projects run. This is especially pertinent in relationships with the recipients of the Dutch aid, technology, or governance expertise. This self-awareness marks the initial step in recognizing actors’ positionality – how parties are situated in projects often define what can be shared and what not, how discussions take shape, and who is included or excluded from decision-making venues. For example, Caicedo’s example of a less-than-fortunate choice of a venue for a meeting with stakeholders in Cartagena – a fancy water-front expo centre, demonstrated how thoughtless choices may have great adverse consequences. Caicedo’s research showed that informal settlers and members of fishing communities did not feel welcome in such a venue and did not show up.
Willingness to be conscious of power relationships, including awareness of own power, also implies the challenge to be aware of power dynamics within one’s own team, to utilise and communicate knowledge differently, with more empathy, and to acknowledge local wisdoms and knowledges in ways that foster trust. Many of these actions require more than an attitude – they require new skills to critically listen, be mindful of own responses, and to cultivate reflexivity and curiosity in working with others.
The discussion on how to build and train these skills will continue in two forthcoming events, which some of us will organise in June: a workshop at the International Institute of Social Studies devoted to the roles, skills, and attitudes of foreign policy-makers in water diplomacy to be held on 18 June, 2024, and a conference panel titled “Third-Party Engagement in Water Diplomacy and Governance: the Case of South Caucasus” at the Third International Conference on Environmental Peacebuilding in The Hague on 21 June 2024.
On the transformation journey
This session builds on earlier dialogues and seminars on rethinking the modus operandi of the Dutch Water Sector internationally. Such discussions have been motivated by evidence and growing consensus among academics and practitioners alike that the DWS parties often work through a one-sided transfer of knowledge and technology from the Netherlands to “recipient countries” and suffers from the lack of a meaningful dialogue in such projects despite continuous claims of proper participation, demand-driven project designs, and efforts for the sustainability of projects across time.
In 2018, the Center for Sustainable Development Studies from the University of Amsterdam UvA), Both ENDS, a Dutch NGO and civic advocacy group, and the Water Governance Group of IHE Delft organized the conference “Critical Perspectives on Governance by Sustainable Development Goals: Water, Food and Climate”, where discussions on Delta Dynamics and Global Challenges took place. This event was the first to engage with the sensitive subject of unequal and non-inclusive features explicitly and directly in water projects funded through the Netherlands Development Cooperation Funds. In 2019, the Netherlands Enterprise Agency (RVO) organized a follow-up event with insightful discussions and a very good end report circulated to participants. In 2021, the Partners for Water program hosted the fourth edition of the WATERPROOF event, focusing on transforming development cooperation and making social impact with it. These events, well attended and taken notice of by decision-makers, marked an important shift in the discussions on the Dutch Water Sector and its record of transformation and social inclusivity.
Unfortunately, despite these widespread discussions and initiatives by and on the DWS, a tangible structural shift has not yet occurred. Our session highlighted that while there are certainly more efforts on the part of the DWS to identify diverse groups to work with and to be inclusive, practical changes on the ground are too slow. It seemed to us that scepticism persists regarding the actual impact of transformative practices, with a real concern that sociocultural and governance complexities in project contexts often get overlooked or underplayed to sustain a certain modus operandi of the DWS parties.
Translating instead of transferring
“Sometimes the Dutch water sector looks at itself in the wrong way, or maybe too late… it is important to make changes in the way … how others are involved…. How to break the barriers and break yourself to be aware of your own position? How to transfer power to others?”
Anonymous participant
Examining the Dutch intervention internationally, the discussion touched on the need for senior decision-makers in concerned projects to be self-conscious about the power dynamics and difficulties in correcting, or at least couching, asymmetric power relationships in projects. We agreed that the DWS parties would benefit from reflecting on their role, breaking the barriers to open and clear communication with their partners, and transferring some of their powers to others to the extent that is politically possible. This is easier said than done, but luckily there are some examples that offer a possible way forward, such as Reversing the Flow (RtF) initiative, a project that supports communities in vulnerable situations by strengthening their water security and contributing to more resilient communities. Especially remarkable is the funding mechanism within RtF allowing some of the RVO funding to be given to NGOs in recipient countries in a way that surpasses Dutch private sector actors. Whether this works needs to be studied carefully.
The self-reflective approach of RtF underscores the importance of understanding power dynamics before and during negotiations, fostering reflexive discussions on resource constraints, and acknowledging the limitations of asymmetrical negotiations and working relationships. Self-reflection first needs to take place internally, among various parties involved in projects, and only then should be extended to cover partners in other countries. Earlier projects and some of the events we mentioned earlier in this post (by Both ENDS, IHE Delft, and RVO) indicate at the possibility of such a shift in the paradigm of inclusiveness provided continued effort and faith.
As an example, Wageningen University through the Centre for Development Innovation (CDI) had created manuals packing the conversation on social inclusivity in a kind of serial editions for transformation on paper. The consultancy-driven organizations tend to focus on restructuring policies to act on becoming diverse and expanding their work profiles into thematic areas such as nature-based solutions and social inclusion. The audience in our room considered that there is a gap between the scholarly work on transformations toward social inclusion and such work in practice.
Addressing unresolved challenges, our discussion uncovered the following barriers to social inclusivity of the DWS’s operations. First, our focus shifted to project assessment terms that prioritise tangible outcomes over long-term and trust-based relationships with the partners, for instance a piece of embankment that is strengthened, a flood risk management report, or a technology transferred. More intangible but crucial elements such as capacity, trust, and joint development of problem diagnoses often deserve less attention. If project outcomes and outputs are pre-determined and the managerial logic of projects push participants to focus on these deliverables regardless the context on the ground, it is not surprising that one faces little participation and dialogue and achieves little social impact.
Second, we discussed gaps in socioeconomic class, especially among those who represent project beneficiaries on the ground in Indonesia, Bangladesh, or Colombia and the beneficiaries of the projects. Involving the beneficiaries, such as the slum dwellers, the urban poor, and the fishermen communities in the discussions requires special project design, suitable designs for deliberation, and settings suitable for such groups, as the case with the meeting venue in Cartagena illustrated.
Finally, and related to the previous two points, we discussed the time constraints of the projects that have to be delivered within a particular timeframe and to reflect a particular pre-determined “theory of change”. As an overarching theme, the critical discussion centred on the top-down approaches of the ongoing projects, urging a shift towards more bottom-up solutions and away from the mode of “transferring” knowledge, expertise, or technology. Instead, we need to foster open-ended dialogues based on respect, curiosity, and critical listening. Then transferring will become translating, and both the Netherlands and recipient countries could be seen as “co-authors” of such works – a true shift from transferring expertise to co-creating change.
Despite intentions for inclusivity, practitioners keep facing challenges in translating discussions into practical strategies. The Dutch Water Sector’s role abroad demands adaptation to diverse contexts, acknowledging that one-size-fits-all solutions are inadequate. While the Dutch Water Sector is making strides in prioritizing social inclusion in international projects, not all organizations are homogenously transforming. Applauding these efforts, we remain curious about the implications and requirements of this transformation, and we hope to see this conversation moving forward.
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About the authors: Farhad Mukhtarov, Karen Vargas, Shahnoor Hasan, Jaap Evers and Leon Hermans.
Farhad Mukhtarov is Assistant Professor of Governance and Public Policy at the International Institute of Social Sciences (ISS), Erasmus University Rotterdam and an Adjunct Senior Research Fellow at Lee Kuan Yew School of Public Policy at National University Singapore. Mukhtarov’s research can be summarised in three broad themes: water governance, politics of knowledge, and theories of policy-making. Geographically, Farhad’s work has covered Western Europe, the larger Mediterranean, and Central and South-Eastern Asia. He currently develops research in the South Caucasus.
Karen Vargas is a researcher with working experience in Colombia and Mexico. She is a political scientist holding a Master’s degree in Development Studies from Erasmus University Rotterdam, with a professional focus on public policies and governance. She has experience collaborating with research institutes, communicating results to international cooperation agencies, and fostering conversations with grassroots communities.
Shahnoor Hasan is a senior researcher and advisor at the department of resilience and planning at Deltares. Her work deals with issues of production of policies and dynamics of development cooperation from a perspective of water governance. One of Shahnoor’s research works on the Dutch Delta Approach in Vietnam and Bangladesh have generated heated and constructive debate in the Dutch water sector. It has pushed practitioners to reflect critically on their methods of exchanging delta knowledge and expertise with international partners, contributing to further discussions about social inclusion in international cooperation. With her work, Shahnoor opens-up discussions on what ‘good’ policies and practices are and stimulates rethinking about how different knowledges and ‘knowers’ can relate to each other and come together for sustainable and just development.
Jaap Evers works at IHE Delft since 2011. Starting of as lecturer in River Basin Governance, he currently has the position of Senior lecturer in Water and Environmental Policy as a member of the Water Governance department. His main research interests revolve around the departments research line Policy and Organizations. Jaap’s research interests revolve around policy implementation, and more specifically policy mobility, policy learning, policy -implementation- practices, and implementation feasibility in planning in the water sector.
Leon Hermans is Head of the Land and Water Management Department at IHE Delft, with responsibility for the department’s integral management and academic leadership. As Associate Professor of Environmental Planning and Management, Leon is also responsible for the Specialization of Environmental Planning and Management within the IHE MSc programme on Environmental Science. Leon Hermans combines work at IHE Delft with a part-time appointment as Associate Professor at TU Delft’s Faculty of Technology, Policy & Management. Prior to joining IHE Delft, Leon worked fulltime at TU Delft, where he also obtained his PhD degree in policy analysis, and at FAO at its headquarters in Rome, Italy.
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