Section 12. Thematic reviews

12.2. Progress in Integrated Water Resources Management and Transboundary Water Cooperation in Central Asia (SDG 6.5) in 2017–2023

Review prepared by F. Abdullaeva

This review was prepared as part of the "Thematic Reviews" series of the Water Yearbook to analyze the progress of Central Asian countries in achieving the targets outlined in the 2030 Agenda for Sustainable Development. This section analyzes the dynamics of two indicators: 6.5.1 — the degree of implementation of Integrated Water Resources Management (IWRM), and 6.5.2 — the proportion of transboundary basin area covered by operational arrangements for water cooperation in Central Asian countries (Kazakhstan, Kyrgyzstan, Tajikistan, Turkmenistan, Uzbekistan) for 2017, 2020, and 2023.

SDG 6.5 is formulated as follows: "By 2030, implement integrated water resources management at all levels, including through transboundary cooperation as appropriate". To monitor progress toward this goal, SDG 6.5.1 tracks the degree of IWRM implementation, while SDG 6.5.2 examines the country's territory within transboundary water basins and assesses the extent to which this territory is covered by operational cooperation arrangements.

Progress in IWRM implementation at all levels (SDG 6.5.1)

SDG 6.5.1 assesses the degree of IWRM implementation on a scale of 0 to 100 across four components (Fig. 1): (1) enabling environment; (2) institutions and participation; (3) management instruments; (4) financing. The indicator is determined based on a self-assessment questionnaire filled out by countries every three years.

Fig. 1. Classification of IWRM index values (SDG 6.5.1 scores)

As of 2023, 191 states submitted reports on SDG Indicator 6.5.1, of which 137 provided data for three monitoring cycles: 2017, 2020, and 2023. In 2017, among Central Asian countries, only Kazakhstan and Uzbekistan prepared reports. In 2020 and 2023, all five states of the region participated in the monitoring.

Overall Dynamics. Between 2017 and 2023, Kazakhstan improved its SDG 6.5.1 score from 30 to 51, moving from the "Low" to the "Medium-high" implementation category. Uzbekistan also demonstrated growth, from 45 to 52 points (Medium-high level). Countries that joined the monitoring in 2020 showed the following progress by 2023: Kyrgyzstan — from 31 to 38 points (remaining at the Medium-low level); Tajikistan — from 46 to 54 points (Medium-high level); Turkmenistan, which maintained the highest values in the region throughout the period, increased its score from 64 to 68 points, confirming its stable position in the Medium-high level of IWRM implementation (Table 1).

By 2023, most countries reached a Medium-high level in enabling environment (Component 1), institutional arrangements (Component 2), and practical IWRM tools (Component 3); however, financing of the water sector (Component 4) remains a lagging area in most countries of the region.

Component 1: Enabling environment (policy, legislation, plans). This component reflects the existence of policy, legal, and strategic frameworks that lay the foundation for IWRM implementation at national and subnational levels, including the existence of transboundary water management arrangements. Based on the 2020 self-assessment (Table 1), Kazakhstan (37), Tajikistan (49), and Uzbekistan (41) rated their enabling environment for IWRM as Medium-low. Kyrgyzstan recorded a Low level (27), while only Turkmenistan showed a Medium-high indicator (63).

By 2023, positive dynamics are observed in almost all Central Asian countries. Kazakhstan increased its score to 44, maintaining a Medium-low level. The national report (Table 2, indicators 1.1 a, b, c) highlights persisting challenges, including insufficient development of water legislation and strategic planning. Kyrgyzstan, despite growing to 39 points - allowing it to move from "Low" to "Medium-low" - continues to face difficulties in implementing policy documents at national and other levels (Table 2, indicators 1.1 and 1.2). Tajikistan improved its result to 61 points (Medium-high); Turkmenistan increased to 69 points (Medium-high); Uzbekistan raised its score to 49 (Medium-low). Notably, arrangements for transboundary water management (Table 2, indicator 1.2c) received high or medium-high scores in all countries. Kazakhstan, Kyrgyzstan, and Turkmenistan rated these arrangements at the maximum of 80 points, while Uzbekistan and Tajikistan rated them at 70.

Component 2: Institutions and participation (institutions, stakeholders, coordination). This component reflects the development of institutional mechanisms for IWRM implementation, including cross-sectoral coordination, stakeholder participation, and gender aspects. As of 2020 (Table 1), Kazakhstan and Uzbekistan assessed the level of development of relevant institutions and participation processes as Medium-high (51 and 53, respectively); Tajikistan and Turkmenistan demonstrated a Medium-low level (43 and 48), while Kyrgyzstan reported a Low level (30 points). By 2023, some improvement was recorded in all countries. Kyrgyzstan moved to Medium-low (37), Turkmenistan to Medium-high (55), while others maintained their previous levels.

In 2023, Tajikistan, Turkmenistan, and Uzbekistan continued to note the effectiveness of national authorities for leading IWRM implementation (Table 3, indicator 2.1a), indicating the presence of stable institutional mechanisms. For Kazakhstan, this indicator improved from 20 to 40 (Medium-low level). In all countries of the region, with the exception of Kyrgyzstan, positive dynamics are observed in the area of intersectoral coordination (indicator 2.1b).

The engagement of the public in water resources policy, planning, and management at national level also requires strengthening. Despite high values in Kazakhstan (80) and medium-high levels in Kyrgyzstan and Uzbekistan (60 each), the assessment for other countries remains in the 40-point range, reflecting an insufficient level of transparency, participation, and dialogue at the local level (indicator 2.1 d).

For all countries, participation of vulnerable groups in water planning and management remains unchanged: Kazakhstan – medium-high, Kyrgyzstan – low, Tajikistan and Turkmenistan – very low, and Uzbekistan – medium-low (Table 3, indicator 2.2 c). Furthermore, in all Central Asian countries, the integration of gender aspects into IWRM policy and practice remains weak: Kazakhstan – 10, Kyrgyzstan – 30, Tajikistan and Turkmenistan – 40, and Uzbekistan – 50. This indicates the need for a systemic approach to ensuring gender balance, including the participation of women in water committees and gender mainstreaming in planning.

Component 3: Management Instruments (planning, monitoring, data, etc.) assesses the existence and degree of application of practical IWRM tools, including basin management plans, functioning of information systems, monitoring, research and assessment of water resources. A comparative analysis of 2020 and 2023 data showed gradual improvement in all countries of the region: Kazakhstan (51 to 61); Kyrgyzstan (43 to 47); Tajikistan (48 to 54), moving into the medium-high category; Turkmenistan (60 to 66) and Uzbekistan (60 to 62) (Table 1).

At the national level, growth was noted in: (1) monitoring of water availability (3.1a) in Tajikistan (50 to 60); (2) sustainable and efficient water use management (3.1b) in Turkmenistan (50 to 60); (3) pollution control (3.1c) in all countries (Kyrgyzstan maintained 60); (4) management of water-related ecosystems (3.1d) in Kazakhstan (40 to 60) and Tajikistan (40 to 50), while other countries maintaining the same level (60); (5) disaster risk reduction management instruments (3.1e) in Kazakhstan (60 to 70) and Tajikistan (50 to 60), other republics keeping the same indicator values.

Notable improvements also concern the development of domestic data and information sharing at all levels (Table 4, indicator 3.2 c). Specifically, Kazakhstan's score rose from 40 to 80, indicating a transition to a high degree of implementation. Despite a 10-point improvement in their scores, Kyrgyzstan, Tajikistan, and Uzbekistan saw no change in their standing.

Integration of water-related ecosystem management at the national level (indicator 3.1 d) also reflects strengthening institutional capacity.

To further advance IWRM, measures are required to bolster cross-sectoral coordination, develop integrated information systems, and ensure more comprehensive consideration of environmental and climate factors in management processes. These priority areas are vital in the face of mounting water stress and transboundary challenges within the region.

Component 4: Financing (budgets and investments for IWRM) remains one of the least developed components in most of Central Asian countries. In 2020 (Table 1), financial provision was low in Kyrgyzstan (23) and at the lower end of medium-low in Kazakhstan (43), Tajikistan (42), and Uzbekistan (37), reflecting a limited yet more stable level of funding. Only Turkmenistan demonstrated a high level (80).

In 2023, the situation changed slightly. Tajikistan reached 52 points (medium-high), Uzbekistan rose to 38, and Kyrgyzstan to 28. Kazakhstan remained at 43. The dynamics indicate a continuing deficit of sustainable and effective financial mechanisms. Turkmenistan remains the only country in the region with a high level of IWRM financing, maintaining a stable score of 80.

These trends highlight a persistent deficit of sustainable and effective financing mechanisms within the IWRM sector. Most countries in the region are characterized by limited domestic funding, a heavy reliance on international donors, and a lack of sufficient economic incentives for rational water use. In the Kyrgyz Republic, for instance, national resources cover only the basic needs of the water sector (Table 5, indicator 4.1a), which is reflected in the indicator's rise from 20 to 60 over the reporting period. Conversely, investment in IWRM activities (Table 5, indicator 4.1b) remains extremely limited (20), underscoring the ongoing need for international support. A similar pattern is observed in Uzbekistan (Table 5, indicators 4.1a and 4.1b), where the situation has remained unchanged since 2020.

Despite ongoing challenges, all Central Asian countries acknowledge the need to increase financing for IWRM. National strategies and development plans articulate intentions to scale up investment in water infrastructure and management systems. Tajikistan, for instance, has set a target to reach a "medium-high" financing level by 2030, contingent upon the active mobilization of external investment. In Uzbekistan, ongoing reforms are shaping new water financing mechanisms, including the establishment of specialized funds and the development of public-private partnership (PPP) models. At the regional level, approaches to the coordination and joint financing of transboundary initiatives are under discussion. Notably, Kyrgyzstan has introduced an initiative for neighboring states to co-finance reservoirs located in border zones.

Consequently, as of 2023, the "Financing" component remains the most vulnerable element of the SDG 6.5.1 framework for nearly all countries in the region. This significantly constrains the achievement of stated IWRM goals and underscores the urgent need for accelerated reforms in the financial and economic governance of the water sector.

Progress in Transboundary Water Cooperation (SDG 6.5.2)

SDG 6.5.2 monitors the proportion of transboundary basin area (within a country’s territory) covered by operational arrangements for water cooperation. An "arrangement" implies a bilateral or multilateral treaty, convention, agreement, or other formal arrangement between countries that establishes a framework for interaction regarding transboundary basins.

An arrangement is "operational" if it meets four criteria: (1) a joint institutional body for basin management is in place; (2) regular interstate meetings are held (at least once a year); (3) there are joint management objectives, a joint action plan, or coordinated measures; and (4) a regular exchange of data and information between the parties is maintained.

Globally, there are 286 transboundary river basins and 592 transboundary aquifer systems. According to 2023 data, the global proportion of transboundary basin area covered by operational cooperation arrangements stood at approximately 59%. This indicates that functional transboundary water cooperation mechanisms exist for just over half of the relevant basin areas. Only 27 out of 153 participating countries have achieved full (100%) coverage of their transboundary water bodies through operational agreements.

Notably, the coverage level for transboundary surface waters (rivers and lakes) was significantly higher (65%) than for transboundary aquifers, which stood at 45% (below the overall global indicator value of 59%). Furthermore, fewer countries reported data on aquifers. This suggests a lack of knowledge and understanding regarding the physical characteristics of transboundary aquifers among riparian states, as well as a limited number of cooperation agreements specifically designed for groundwater systems.

In Central Asia, the situation is highly heterogeneous: Kazakhstan and Uzbekistan achieved 100% coverage for transboundary rivers and lakes, Turkmenistan 66.02%, and Kyrgyzstan 43.68% (Table 6).

A joint body, mechanism, or commission has been established and is functioning among the riparian states to facilitate transboundary cooperation. Regular official interaction (at least once a year) occurs through meetings at political or technical levels. Furthermore, common goals and strategic priorities have been aligned, alongside a joint or coordinated management/action plan, and a regular (at least annual) exchange of data and information has been operationalized.

These results are consistent with the findings for SDG 6.5.1 (Table 7). As previously noted, in 2023, arrangements for transboundary water management (indicator 1.2.c) and the organizational framework for transboundary water management (indicator 2.2.e) received "high" and "very high" ratings from all countries in the region. Notably, Kyrgyzstan and Tajikistan showed improved scores by 2023. Scores for transboundary data and information sharing (indicator 3.2.d) remained unchanged: Kazakhstan and Turkmenistan maintain "high" ratings, reflecting advanced infrastructure and effective interaction mechanisms. In the remaining countries, this indicator persists at a "medium-low" level, highlighting the need for further enhancement of coordination and the integration of information systems.

The current status of financing for transboundary cooperation remains consistent with 2020 levels: Kazakhstan and Turkmenistan rate it as "very high," Tajikistan and Uzbekistan as "medium-low," and Kyrgyzstan as "low." Overall, the two downstream countries, Kazakhstan and Turkmenistan, remain the most satisfied with the current status of transboundary cooperation. It should be noted that this assessment encompasses cooperation not only within the Aral Sea basin but also across other basins where these countries are riparian stakeholders.

Conclusions and Next Steps

Overall, between 2017 and 2023, Central Asian countries demonstrated visible progress toward achieving SDG 6.5. The IWRM implementation index (SDG Indicator 6.5.1) shows a positive trend across all states in the region. At the regional level, efforts to develop water strategies and regulatory frameworks have intensified, interagency coordination mechanisms are in process of establishment, and basin-level monitoring and planning systems are improving.

Nevertheless, several challenges persist. Key among them are insufficient funding for the water sector (with the exception of Turkmenistan), limited institutional capacity at the local level, inadequate attention to gender mainstreaming, and weak public engagement in management processes. In 2023, regarding the financing component, only Tajikistan managed to reach a "medium-high" level (52), while Kazakhstan, Kyrgyzstan, and Uzbekistan remain at "low" or "medium-low" levels.

Regarding SDG Indicator 6.5.2, which characterizes transboundary water cooperation, the situation remains largely unchanged, except for Kyrgyzstan, which improved its performance in 2023 (43.68%) compared to 2020 (29.91%). Kazakhstan and Uzbekistan have maintained 100% coverage of transboundary basins with operational arrangements, while Turkmenistan holds at approximately 66%. An analysis for Tajikistan was not possible due to a lack of official data. This underscores the need to update and expand the legal and treaty framework to cover all water bodies, including groundwater, and to ensure the effective practical implementation of existing agreements. To accelerate progress on SDG 6.5 in Central Asia, the following measures are recommended:

Strengthening financial support for IWRM. Governments should increase budget allocations for water management and mobilize extra-budgetary sources. It is crucial to develop economic mechanisms (such as PPPs, etc.) that incentivize rational water use and investment in water infrastructure. International partners - donors and financial institutions - are encouraged to expand assistance for IWRM projects, prioritizing countries with low funding levels (Kyrgyzstan, Uzbekistan).

Developing institutional capacity and coordination. Water authorities must be strengthened at both national and basin levels, provided with clear mandates and sufficient resources. Countries should expedite the establishment of basin councils/commissions in all major river basins and ensure the meaningful participation of all stakeholders (agriculture, energy, environment, and local communities). It is recommended to implement professional development programs for water sector personnel that promote gender balance and youth engagement. International organizations (UNEP, UNDP, GWP, etc.) can facilitate knowledge exchange and institutional development through platforms like the IWRM Action Hub.

Enhancing IWRM information tools. The region requires modern water monitoring systems, data exchange protocols, and scenario modeling. Support should be given to the Central Asian Regional Water Information System, integrated with national databases, to ensure transparent information sharing. Joint scientific research on water resource assessment, climate impact, and aquatic ecosystems must be intensified to ensure that decisions are evidence-based. International scientific and technical cooperation (via UNESCO, WMO, etc.) can help bridge gaps in data and monitoring technologies.

Expanding transboundary cooperation. Central Asian states should finalize and implement pending agreements, such as bilateral treaties between Uzbekistan and Kazakhstan, and Uzbekistan and Kyrgyzstan, while more actively involving Afghanistan in the Amu Darya dialogue. Particular focus should be placed on concluding agreements for transboundary aquifers, which currently remain overlooked. It is advisable to ensure that operational management mechanisms for all regional transboundary water bodies are in place by 2030. To this end, countries should leverage international instruments like the UN Water Convention and other multilateral water diplomacy initiatives.

International partners can play a pivotal role in this process by providing expert and technical support. In particular, UNECE and UNESCO, which serve as the co-custodian agencies for monitoring SDG Indicator 6.5.2, possess the necessary methodological expertise to assist countries in the drafting, implementation, and evaluation of transboundary agreements.

Monitoring and knowledge sharing. The region should continue participating in global SDG 6.5 monitoring cycles. A regular exchange of progress data among Central Asian states should be established, including regional meetings of national coordinators for indicators 6.5.1 and 6.5.2. This will facilitate peer-to-peer learning - for example, adopting Turkmenistan’s successful financing models or Kazakhstan’s public participation practices. Regional organizations and development partners should play a coordinating role in this process.

Implementing these recommendations will allow Central Asian states to solidify the foundations of integrated water resources management, address existing gaps, and ensure the achievement of SDG 6.5 at all levels by 2030.