Enhancing transboundary water cooperation through multistakeholder regional dialogues

Regional multistakeholder dialogues (MSDs) are an effective way to advance transboundary water cooperation. This experience note aims to capture experiences and key lessons from regional dialogues that have been supported through GEF IW:LEARN.

It highlights how successful regional MSD in Southeast Europe was replicated in Central America, fostering cooperation and partnerships. Key enabling factors to foster such regional MSDs are introduced, and key resource materials are highlighted to replicate the effort by relevant actors within the GEF International Waters community. Experiences were also shared through an online session organized in the context of a massive open online course (MOOC) on Governance for Transboundary Freshwater Security, organized jointly with Global Water Partnership (GWP) and IW:LEARN in 2023.

The Role of Regional Multistakeholder Dialogues

Regional multistakeholder dialogues bring diverse actors to the same table, providing a vital avenue for reaching a common understanding of regional issues. In regions where multiple countries share water resources, these dialogues offer an opportunity to raise awareness about the importance of joint management. This approach has distinct merits over initiating conversations at the basin level, where dialogues often focus on specific points of contention and where upstream/downstream interests are more rigidly defined from the outset. Instead, regional dialogues allow participants to build a shared understanding of the benefits of cooperation, creating a concrete path forward for collaborative action.

The GWP and GEF IW:LEARN Partnership

As a neutral, global multistakeholder platform with a strong regional and national presence, the Global Water Partnership (GWP) is uniquely positioned to facilitate transboundary water cooperation on the ground. GWP has been a partner of GEF IW:LEARN since its early stages.

GEF IW:LEARN supported the Southeast Europe regional dialogues, where GWP Mediterranean played a key role in fostering cooperation. This dialogue, which began in 2006 and continues today, created an enabling environment for advancing transboundary water cooperation. It established a Community of Practice that became the primary vehicle for driving on-the-ground collaboration. To date, this regional dialogue has had a positive impact on initiating or advancing cooperation in four transboundary river basins and one aquifer system: the Drin Basin, the Mesta/Nestos Basin, the Sava River Basin, and the Dinaric Karst Transboundary Aquifer System.

Replication in Central America

During IW:LEARN Phase 4 (2016–2020), this successful model was replicated in Central America. The Central American Commission for Sustainable Development (CCAD) and GWP Central America initiated a regional transboundary water dialogue in 2019, facilitating sessions on an annual basis.

This dialogue initiated the development of joint regional guidelines on the principles of cooperation for transboundary water management. These guidelines were formally validated by the Council of Ministers of CCAD in 2023. The successes and lessons learned from this process were shared globally in October 2023 during an online event for the Massive Open Online Course (MOOC) on Governance for Transboundary Freshwater Security, organized jointly by GWP and GEF IW:LEARN. This marked one of the first major activities of IW:LEARN Phase 5 (2023–2026).

This Experience Note details how this replication occurred and provides a roadmap for other regions to enhance cooperation through the power of regional dialogue.

In Central America, transboundary basins cover more than 42% of the territory and are home to 21 million people. Despite their importance, the Transboundary Water Assessment Program (TWAP) identified governance—specifically the absence of formal agreements—as the region's most critical challenge.

This gap is starkly reflected in the average score for SDG Indicator 6.5.2, which measures the proportion of transboundary basin areas with operational cooperation arrangements. A 2020 survey revealed an average score of just 3.64% for Central America, underscoring an urgent need for institutionalized cooperation. In response, the Central American Commission for Sustainable Development (CCAD) integrated transboundary water management into the Regional Environmental Framework Strategy (ERAM), with GWP Central America providing essential technical expertise.

To bridge this gap, CCAD and GWP Central America (GWP CAM) launched the Multistakeholder Regional Dialogue (MSRD) in 2019. This process was designed to catalyze cooperation that could eventually lead to basin-level action, supported by the Ministries of Environment and Ministries of Foreign Affairs across the region. Initial funding was provided by GEF IW:LEARN, with co-financing from GWP, CCAD, and later, the UNECE Water Convention.

Evolution of the Dialogue (2019–2022)

The dialogue has evolved through several key stages since its inception:

• 2019: Initiating the Conversation. The first dialogue focused on the fundamental importance of transboundary cooperation. It brought together key ministries from Guatemala, El Salvador, Honduras, Nicaragua, Costa Rica, and Panama, alongside NGOs, basin organizations (such as Plan Trifinio and the Sixaola Bi-national Commission), and international experts. This facilitated an open exchange on the specific types of cooperation best suited for Central America.

• 2020: Political Commitment. The second dialogue was held alongside the CCAD Council of Ministers meeting. This strategic timing allowed ministers to participate directly, leading to formal political and technical commitments to report dialogue conclusions to high-level forums. Crucially, the idea for a regional guideline on transboundary water cooperation emerged here. The process also expanded geographically to include Belize, Mexico, and the Dominican Republic.

• 2021–2022: Adaptation and Capacity Building. Despite the challenges of the COVID-19 pandemic, dialogues continued in virtual and hybrid formats. These sessions focused on International Water Law principles as the foundation for regional guidelines. Concurrently, CCAD, GWP, and UNECE organized specialized online training sessions to build the technical capacity of the personnel responsible for driving these cooperative efforts on the ground.

Through the Multistakeholder Regional Dialogue (MSRD), participating countries formally recognized the importance of transboundary water management. This led to an expressed need for Regional Guidelines to identify common objectives and guide the establishment of future cooperation agreements.

Integrating Policy into the ERAM

In response to country requests voiced through the MSRD, the Regional Environmental Framework Strategy (ERAM 2021–2025) of the CCAD—approved in February 2021—included two critical components:

• Result 1: The constitution and operation of a regional framework for the management of international watercourses, transboundary basins, and aquifers.

• Strategic Action: The elaboration of a proposal for the adoption of Regional Guidelines for Cooperation in International Waters, involving priority political and institutional entities.

From Discussion to Validation

The roadmap for the guidelines progressed through several technical and political milestones:

• 2021–2022: Discussions on the scope of the guidelines began and continued in Panama, resulting in a proposal of 10 core principles as the foundation for the regional framework.

• Late 2022: A formal draft was circulated for consultation among the Ministries of Foreign Affairs and Ministries of Environment. Feedback was gathered through both specialized workshops and official communications.

• July 2023: After incorporating national comments, the final proposed guidelines were presented to and validated by the Council of Ministers of CCAD.

A Historic Milestone: The Catalytic Effect

The impact of these dialogues extended beyond regional guidelines to international legal frameworks. Stimulated by the awareness raised during the MSRD, Panama officially acceded to the UN Water Convention, becoming the first country in Latin America to do so. This historic step serves as a powerful testament to the catalytic effect of regional dialogues in promoting transboundary cooperation and encouraging countries to align with global international water law.

To replicate the success of these regional dialogues in other contexts, four critical enabling factors should be considered:

1. Neutral Facilitation and Inclusive Representation

A successful Multistakeholder Regional Dialogue (MSRD) requires a facilitator with strong convening power and the ability to manage diverse stakeholder inputs. In Central America, the partnership between GWP CAM and CCAD was vital in bringing the right actors to the table and ensuring an inclusive, balanced environment.

2. Integration with Existing Political and Economic Processes

Dialogues are most impactful when anchored in existing regional priorities and institutional frameworks. In this case, the MSRD successfully leveraged ongoing political processes within the Central American Integration System (SICA) and the CCAD, ensuring that the dialogue's outcomes were aligned with regional governance structures.

3. Fostering Social Learning Across Scales

The structure of the dialogues must allow for natural evolution. It is essential to ensure that:

• Topics flow logically from one session to the next, reflecting evolving regional priorities.

• Participants remain engaged over the long term to build trust.

• The design encourages social learning, moving from general awareness in early sessions to specific, joint actions in later stages.

4. Leveraging Sustainable Finance and Synergy

Securing long-term financing is crucial for the continuity of the MSRD. While GEF IW:LEARN provided the initial catalytic support, the mobilization of co-financing from GWP, CCAD, and later UNECE ensured sustainability. Additionally, conducting dialogues back-to-back with other high-level regional meetings optimized resources and ensured the participation of key decision-makers.

Further Resources for Replication

These factors were identified through GWP’s research into successful regional dialogues across Southeast Europe, South Africa, and South Asia. For a deeper dive into these pathways, the following resources are available:

• Publication: “Multi-stakeholder regional dialogues: Pathways for advancing transboundary water cooperation.”

• Interactive Learning: In 2023, GWP and IW:LEARN co-hosted an online session as part of the MOOC "Transboundary Freshwater Security Train" series.

• Recordings and Materials: Event recordings and presentation slides can be accessed via the IWRM Action Hub.

Regional dialogues provide a unique and essential entry point for fostering transboundary cooperation. While typical basin-level dialogues are effective for addressing specific upstream-downstream conflicts at a local scale, they often lack the space for stakeholders to step away from immediate points of contention.

By placing the conversation within a regional context, these dialogues allow key government actors and stakeholders to:

• Broaden Perspectives: Shift the focus from a "zero-sum" conflictual situation toward the wider, shared benefits of regional cooperation.

• Identify New Opportunities: Advance transboundary management through a lens of regional integration and mutual interest.

Another critical outcome of regional multistakeholder dialogues is the creation of Communities of Practice (CoP). Through consistent exchange and collaborative learning, a network of like-minded practitioners and stakeholders is established. These communities become the primary driving force for the process—not only ensuring the continuity of the dialogue but also serving as the technical and social vehicle for advancing concrete cooperation on the ground.