The Albufeira Convention, a landmark agreement that governs the joint management and shared use of water resources between Spain and Portugal, recently marked its 25th anniversary. However, as the Iberian Peninsula grapples with increasingly severe droughts and water scarcity due to climate change, questions are being raised about the convention’s efficacy in addressing the current reality.
Supported by the Journalism Fund Europe’s Earth Investigations Program, a recent investigation has shed light on a culture that prioritizes economic gain and resource exploitation over the conservation of rivers and water reserves. In times of drought, instead of reducing consumption, there is a trend of accelerating usage. Despite this, there are individuals and groups fighting against this unsustainable approach.
In the first of a three-part series, we delve into the state of cooperation for managing Iberian water resources, the continued relevance of the Albufeira Convention – particularly from the perspective of Portugal, which is resistant to change – and the historical context that led to the agreement.
The summer of this year has been particularly harsh, with a significant portion of both Portugal and Spain experiencing severe drought conditions. Regions such as Alentejo, Algarve, Extremadura, and Andalusia have been especially hard-hit, with water emergencies and supply restrictions in place. While recent rains have provided some relief, the long-term trend points towards more frequent and intense droughts becoming the new norm.
The Albufeira Convention, signed in 1998, lays out the framework for cooperation between Portugal and Spain in managing shared water resources. One key aspect of the convention is the establishment of minimum flow regimes that Spain must adhere to in order to maintain river discharges to Portugal. However, as droughts become more severe, tensions between the two countries over water usage rights have escalated.
In 2022, Spain struggled to meet the agreed-upon quotas for the Douro and Tagus rivers due to low reservoir levels. This raises the question of whether the Albufeira Convention, now a quarter of a century old, is still equipped to address the challenges of water scarcity in the region.
Despite the increase in extreme drought events, climatologists caution against labeling the situation as a historical drought without scientific basis. While climate change is exacerbating water scarcity, it is important to consider long-term averages rather than short-term fluctuations. The droughts of the early 1990s and mid-2000s played a significant role in the negotiations that led to the Albufeira Convention, highlighting the importance of proactive water management strategies.
As the Iberian Peninsula grapples with the effects of climate change, it is essential for both countries to reassess their water management strategies and ensure that the Albufeira Convention remains relevant in addressing the challenges of the 21st century. Only through collaborative and sustainable approaches can the region effectively manage its precious water resources for future generations. Ten years later, the issue of water management in the Iberian Peninsula continues to be a pressing concern. Despite the implementation of the Additional Protocol to update river flow discharge regulations, there are still challenges that need to be addressed to ensure the sustainability of riverside ecosystems.
One of the key issues highlighted by environmental activists is the need for an ecological river flow regime that mimics the natural behavior of rivers. This would involve regulating water discharge based on seasonal variations and precipitation levels, allowing for the adaptation of plants and animals to these natural fluctuations. The current regime, which includes weekly and quarterly flows, still leaves room for manipulation by hydroelectric plants and does not fully account for ecological needs.
In addition to the challenges posed by the river flow regime, water scarcity in the region is exacerbated by excessive water consumption, particularly in agriculture. As water resources become increasingly scarce, the need for sustainable water management practices becomes more urgent.
Groups like PAS – Plataforma Água Sustentável in Portugal are working to address water scarcity issues and present sustainable solutions. The movement to defend water and rivers has gained momentum in both Portugal and Spain, with networks of activists coming together to advocate for better water management practices.
The recent National Citizenship Meeting for the Defense of Rivers and Water in Coimbra, Portugal, brought together activists from across the region to discuss the pressing issues facing Iberian waterways. Topics such as transfers, dams, conservation efforts, and community engagement were at the forefront of discussions, highlighting the need for collaborative action to protect and preserve water resources in the region.
As the debate on water management in the Iberian Peninsula continues to evolve, it is clear that a holistic approach that considers ecological, social, and economic factors is needed to ensure the long-term sustainability of rivers and water resources. By working together and advocating for sustainable practices, activists and stakeholders can help address the challenges posed by water scarcity and promote the health and well-being of riverside ecosystems for generations to come. 31 of the Water Framework Directive is also emphasized in the complaint, as it is considered crucial for the conservation of river ecosystems and species. This indicator includes aspects such as the river’s flow regime, sediment transport, and the continuity of habitats, all of which are essential for maintaining the ecological balance of the river.
The lack of implementation of ecological flows in the Cedillo dam, as well as in other dams in the Iberian Peninsula, poses a serious threat to the biodiversity and ecological health of the rivers. The ProTejo collective and its 27 signatory organizations are calling for immediate action to rectify this situation and ensure the proper implementation of ecological flows in accordance with EU community law.
The joint complaint to the European Commission marks a significant step towards protecting the rivers of the Iberian Peninsula and ensuring their long-term sustainability. By holding Portugal and Spain accountable for their non-compliance with the Water Framework Directive, the ProTejo collective is advocating for the preservation of these vital water resources and the ecosystems they support.
As the fight for ecological flows continues, it is crucial for all stakeholders, including governments, environmental organizations, and local communities, to come together and work towards a sustainable future for the rivers of the Iberian Peninsula. Only through collective action and a commitment to environmental stewardship can we ensure the health and well-being of these precious natural resources for generations to come. The flow regime, as defined by Article 31 of the European Commission, is a crucial indicator for water management strategies. In Portugal, this indicator is also referenced in the National Water Plan as a key element in maintaining the environmental objectives necessary to prevent eutrophication in still waters. However, recent complaints have highlighted the mismanagement of flows and the lack of ecological flows, leading to a deterioration of the ecological status of water bodies.
According to Constantino, the spokesperson for ProTejo, the absence of ecological flows has had a significant impact on the environment, highlighting the urgent need for a change in the way flows are managed. This issue goes beyond scientific markers or economic interests; it represents a fundamental difference in principles of water use between countries. The ecological flow regime recognizes water as a vital resource for the planet, while the extractivist perspective focuses on maximizing individual gains without considering the long-term consequences.
The insufficiency of joint drought mitigation mechanisms has also put pressure on the Albufeira Convention, a key agreement between Portugal and Spain regarding water management in shared river basins. Recent severe droughts in the Iberian Peninsula have led to calls for changes to the convention, with Spanish farmers demanding more water retention infrastructure and emergency water transfers from Portugal to Spain.
However, changing the convention is a complex issue, with political resistance on both sides of the border. The lack of well-defined limits for river flows in drought conditions and ineffective mitigation protocols have further complicated the situation. The Albufeira Convention, which was established to coordinate actions during droughts and water scarcity, has proven to be inadequate in addressing the challenges posed by extreme weather events.
The responsibility for co-managing drought situations falls to the Commission for the Application and Development of the Convention (CADC), which includes representatives from both countries. However, the CADC’s Working Group on Flow Regime, Droughts, and Emergency Situations is no longer operational, raising concerns about the effectiveness of current mechanisms for managing water resources during droughts.
As the Albufeira Convention approaches its 25th anniversary, it is clear that a shift from utilitarianism to sustainability is necessary. The convention, which predates the Water Framework Directive, must adapt to the changing climate and environmental conditions. Pedro Cunha Serra, a former president of the Water Institute and a key figure in the original negotiations for the convention, emphasizes the continued relevance of the agreement in today’s context.
In conclusion, the challenges posed by worsening droughts and inadequate water management mechanisms require a reevaluation of the Albufeira Convention. Collaboration between Portugal and Spain, along with a commitment to sustainable water use, is essential to safeguarding the shared river basins and ensuring the long-term health of water bodies in the region. The Albufeira Convention, signed in 1998, marked a significant moment in the management of water resources shared between Portugal and Spain. The Convention, which laid the groundwork for the Water Framework Directive (WFD) being discussed in Brussels at the time, aimed to establish a framework for joint management of river basins across the EU. Additionally, the financial incentives provided by the European Cohesion Fund prompted Portugal to dedicate a substantial portion of funding to hydraulic projects, such as the Alqueva mega-dam project.
Despite the Convention being driven by the drought of 1991-1995, the primary focus of the negotiations was on the equitable division of resources for exploration. Environmental concerns, although included in the Convention, were not given the priority they deserved at the time. The failure to implement mitigation strategies and ensure cooperation between the two countries has led to administrative dilemmas and obstacles to effective water management.
One such obstacle is the incomplete implementation of Hydrographic Basin Plans (HBP) as mandated by the WFD. While the plans aim to coordinate river basin management and protection between Spain and Portugal, the lack of enforcement mechanisms has resulted in delays and inefficiencies. The opacity surrounding the meetings between hydraulic administrations and the failure to address key issues such as ecological flows have raised concerns among water defense associations.
The need for a more transparent and accountable approach to water management has led to calls for reform within the Commission for the Application of the Albufeira Convention (CADC). Suggestions to transform the CADC into an independent permanent technical commission, led by scientists and technicians rather than state representatives, have gained traction. This shift would ensure a more scientifically-driven and impartial decision-making process, addressing the shortcomings of the current system.
As voices for change grow louder, driven by increasing hydric stress and environmental concerns, it is clear that a collaborative and proactive approach to water management is essential. By addressing the challenges outlined in the Albufeira Convention and implementing effective strategies for shared resource management, Portugal and Spain can work towards a more sustainable future for their water resources. Critics of the proposed agreement between Portugal and Spain regarding the Alqueva mega-dam have raised concerns about the potential consequences of allowing Spain to access water catchments in the region. The Albufeira Convention, which governs the management of shared water resources between the two countries, has been a point of contention for years, with calls for changes to be made to ensure compliance with environmental standards.
Some critics argue that any renegotiation of the Convention could be detrimental to Portugal, as it may lead to a decrease in minimum flow requirements that would benefit Spain. Others advocate for the full implementation of the Convention as it was originally approved in 1998, without the need for further negotiations.
However, resistance to changes in the Convention has been met with political opposition, particularly from the Portuguese side. Former Minister of the Environment Duarte Cordeiro stated that Portugal is not willing to review the Albufeira Convention, fearing that any changes could put the country at a disadvantage.
Despite the challenges, there have been recent developments regarding the Alqueva mega-dam. Portugal has agreed to allow Spain access to water catchments in the region, with Spain agreeing to pay two million euros annually for the privilege. This agreement, set to be officially signed in September, includes measures to ensure compliance with ecological flows in the Tagus and Guadiana rivers.
Critics of the agreement have pointed out that allowing Spain access to water catchments in Alqueva could lead to increased competition for water resources and further environmental degradation. They argue that the agreement may normalize illegal water catchments that have been taking place in the region for years, outside the provisions of the Albufeira Convention.
While the details of the agreement are still being finalized, concerns remain about the potential impacts on water resources and the environment. The debate over the Albufeira Convention and the management of shared water resources between Portugal and Spain is likely to continue, as stakeholders on both sides grapple with the complex issues surrounding water management and conservation. However, the new water catchment project at Pomarão is not without controversy. Some environmentalists and local residents fear that the construction of the catchment and the tunnel to transport water to the Odeleite dam could have negative impacts on the local ecosystem and water resources. There are concerns about the potential disruption of wildlife habitats, changes in water flow patterns, and the depletion of water resources in the region.
In response to these concerns, the Portuguese government has stated that environmental impact assessments will be conducted to ensure that the project is carried out in a sustainable and environmentally responsible manner. The government has also emphasized the importance of balancing the needs of local populations and agricultural activities with the protection of the environment.
The project at Pomarão raises larger questions about water management and cooperation between Portugal and Spain. While the new water catchment could help alleviate water shortages in the Algarve region, it also highlights the challenges of managing shared water resources in a sustainable way. The ongoing issue of the illegal water catchment at Bocachanza on the Spanish side of the border underscores the need for greater cooperation and coordination between the two countries to ensure the equitable and sustainable use of water resources.
As Portugal moves forward with the Pomarão water catchment project, it will be important for all stakeholders to be involved in the decision-making process. Environmental organizations, local communities, farmers, and government agencies must work together to ensure that the project is carried out in a way that protects the environment, supports sustainable agriculture, and meets the needs of the local population. Only through collaboration and careful planning can Portugal and Spain effectively manage their shared water resources for the benefit of all. It regulated the sharing of water between the two countries for agricultural and industrial purposes. This agreement set the stage for future negotiations on water management in the region.
The construction of dams has been a controversial issue in both Portugal and Spain. While some advocate for the construction of more dams to secure water supply for irrigation and other uses, others argue that dams have negative environmental impacts, disrupting river ecosystems and causing sediment transport issues.
The recent approval of the Pomarão catchment project in Portugal has sparked debate among environmental groups, local authorities, and farmers. The project aims to reinforce water supply in the Algarve region, but critics argue that it will have significant negative impacts on the environment, including the potential extinction of ecosystems dependent on river flows.
In Spain, there has been a push to remove obsolete dams and barriers in rivers to restore natural ecosystems. However, the country still has a significant number of dams in place, leading to ongoing debates on the best approach to water management.
The history of water management between Portugal and Spain dates back to the 19th century, with the signing of the first river convention in 1867. The Albufeira Convention, which followed the construction of the Alqueva mega-dam, focused on economic agreements rather than ecological considerations.
As the debate on water management continues in both countries, it is essential to consider the long-term sustainability of water resources and the importance of balancing economic interests with environmental conservation. Collaborative efforts between Portugal and Spain will be key in ensuring the responsible management of shared water resources in the region. It has been more than 150 years since the border between Spain and Portugal was officially established, with border markers placed in 1864 to define the limits between the two countries. However, it was not until 1927 that discussions about the distribution of economic access between the two nations resumed, particularly in relation to the production of hydroelectric energy.
In 1927, Spain embarked on a project to construct the Ricobayo dam on the Esla River, a tributary of the Spanish Douro. This dam was the first of its kind in Europe, with significant potential for water storage and energy production. It marked the beginning of what would become the ‘Saltos do Douro’ network of dams and reservoirs in the border area of the Douro river basin.
The construction of subsequent dams in the region was interrupted by the outbreak of the Spanish Civil War in 1936. The energy production at the Salto de Ricobayo dam ceased, and plans for further development were put on hold. However, during the Franco dictatorship in Spain, a significant number of dams were built to boost the economy and infrastructure of the country.
In Portugal, a similar trend emerged with the construction of dams in the Douro Internacional region. The 1950s and 60s were golden decades for dam construction in both countries, with agreements reached in 1964 to share the hydroelectric potential of shared rivers, including the Douro.
Subsequent agreements in 1968 divided the hydroelectric potential of the Minho, Lima, Tagus, and Guadiana rivers between Spain and Portugal. The Alqueva mega-dam project on the Guadiana river began in the mid-1970s but was suspended due to financial difficulties. It was later resumed in 1993 with European funding.
The Spanish hydrological plan in 1993 aimed to transfer water from the Douro to the headwaters of the Tagus, sparking renewed discussions and negotiations between the two countries. The Albufeira Convention, linked to an Additional Protocol, has been a key factor in regulating water sharing between Spain and Portugal.
Despite these agreements, there are concerns about the historical perspectives and ideologies that influence water sharing practices between the two nations. The concept of water sharing is deeply rooted in past regimes, such as Francoism and Salazarism, which continue to shape water management policies.
In the next part of this series, we will delve into the exploration aspects of the Albufeira Convention and discuss the challenges of water consumption, particularly for irrigation, in times of drought. The ongoing negotiations and agreements between Spain and Portugal highlight the complex relationship between the two countries in managing shared water resources. As a photographer specialised in portrait and architecture, I have recently delved into multimedia projects focusing on sustainable forest management and drought. This shift in focus came about when I became a cork forest landowner, sparking a new passion for environmental conservation and awareness.
Collaborating with journalists Luzia Lambuça, Daniel Borges, and Emerson Mendoza Ayala, along with photographer Michele Curel, we embarked on a cross-border investigation series. Supported by JournalismFund Europe and the Ecologist Writers’ Fund, our in-depth environmental reports shed light on the crucial issues surrounding forest management and drought.
In Part I of the series, Luzia Lambuça delved into the intricacies of sustainable forest management. Through interviews with experts and on-the-ground research, she highlighted the importance of preserving cork forests and the impact of unsustainable practices on the environment. Her compelling storytelling brought to light the challenges faced by forest landowners in maintaining a balance between economic interests and ecological sustainability.
In Part II, Daniel Borges explored the effects of drought on forests and their ecosystem. Through data analysis and field observations, he uncovered the devastating consequences of prolonged drought on forest health and biodiversity. His work underscored the urgent need for proactive measures to mitigate the impact of climate change on our forests.
In the final installment, Emerson Mendoza Ayala delved into the role of multimedia in raising awareness about environmental issues. Through interactive visual storytelling and engaging multimedia content, he demonstrated the power of media in shaping public perception and driving positive change. His work served as a call to action for individuals and communities to take a stand for sustainable forest management and conservation.
As a team, we are committed to using our skills and platform to advocate for environmental conservation and sustainable practices. Through our collaborative efforts, we hope to inspire others to join us in protecting our forests and preserving the natural world for future generations.
