**1. Introduction**

The equitable utilisation of water in the real world is a very complex challenge involving a wide range of often competing actors and factors that need to work synergistically and be integrated if we are to effectively manage this valuable resource for productive land use. Additionally, the relationship between land and water is politically, economically and culturally complex and this complexity is expected to increase with the progression of growing populations, increasing water scarcity, growing demand for water, and food security concerns. This challenge is bound to gain global significance particularly in regions where communities are vulnerable to the profound impacts of global change. Integrated policy, planning and management of water and land resources can therefore provide improved benefits and create innovative opportunities for regional economic development by contributing to ecosystem stability, sustainable livelihoods and food security.

Water and land reform in South Africa is a special case highlighting the importance of integrated approaches. The last two decades have seen an abundance of comprehensive reforms the world over in the management of natural resources, with an emphasis on greater integration, the devolution of power and the decentralisation of government decision making. In the developing world, this phenomenon has been particularly prevalent in the water and agricultural sectors with new national development policies and action plans developed and harmonised to regional and/or international legal and institutional frameworks. Technocratic templates from developed countries in Europe and North America, such as the concept of Integrated Water Resources Management (IWRM), have also been suggested as best practice. However, not enough attention has been placed on factoring in local configurations, domestic policy, political identities, and social and cultural institutions, particularly in the African context (Jacobs, 2010).

In South Africa, water and land reform policies have been embedded within a complex socio-political and socio-economic environment, and yet have occurred largely independently of one another. South Africa presents an interesting example of the consequences of the non-integration of reform policy and yields lessons for countries in the rest of the world in terms of the challenges to successfully implementing land and water management reform programmes. The role of the South African government in providing a coordinating role is important. However, a concerted multi-stakeholder and multi-sectoral

Integration Challenges of Water and Land Reform – A Critical Review of South Africa 83

*"IWRM is a process, which promotes the co-ordinated development and management of water, land and related resources, in order to maximise the resultant economic and social welfare in an equitable manner without compromising the sustainability of vital* 

The distinction between "integrated" and "traditional" management of water and natural resources relies largely on the scope and sphere of operation of the two. "Traditional" management is typically sector-oriented (water supply, irrigation, agriculture, hydropower, etc.) and focused on satisfying the perceived demands within each sector. "Integrated" management, in contrast, attempts to take a cross-sectoral approach and focuses on the management of water and natural resources, as well as the demand, supply and use of

It is argued that the successful implementation of IWRM can prevent human health, economic and environmental losses that might hamper development and frustrate poverty reduction efforts. In addition, the participative processes that make up ''good'' IWRM can help developing countries to meet the millennium development goals (MDGs). The MDGs aim to address poverty, gender equality and health issues and also strive to attain

Operationally, and similar to INRM, IWRM approaches apply knowledge from several disciplines as well as multiple stakeholders to devise and implement efficient, equitable and sustainable solutions to water and development problems. As such, IWRM is a comprehensive, participatory planning tool that involves the coordinated planning and management of land, water and other environmental resources for their equitable, efficient and sustainable use (Calder, 1999). Key points here are process, coordination, and the relationship between sustainability and economic and social welfare. IWRM can be seen as consisting of five main characteristics that may cause complications and problems and necessitate action: Multi-functionality (e.g., fishing, farming, water supply), user interests and conflicts, multiple managers at different levels (e.g., local, regional, national), asymmetric power relations (e.g., up- and downstream users and managers), and technical

Having identified different possible approaches to integration of water and land management, it becomes important to establish a definition of "integration". This definition is based on the discussion of the international approaches above but also specifically applies them to the issue of water allocation and land reform in the South African context. Integration can therefore be defined as follows: the degree to which policies formulated in one government department are harmonised or coordinated with policies developed in other government departments, other sectors, or acknowledge the interconnectedness of various resources and the degree to which inter-departmental coordination and

Integration therefore refers to policy harmonisation and coordination across government departments and sectors as a result of the recognition of the interconnectedness of different natural resources. Furthermore, integration entails acknowledging and taking into account

communication take place in the implementation of said policies.

*ecosystems" (GWP-TAC, 2000).* 

water and natural resources (Gooch and Stålnacke 2006).

environmental sustainability (Jonch-Clausen, 2004).

complexity (Mostert, 1998).

**3.2 Definition of integration** 

effort is required at all levels, from the local to the national, if integration is to be operational and implementable.
