Prologue | The Different Names We Give to Water

“Water transfer,” “water diversion,” “water connection,” and “water purchasing” may seem like similar terms, yet each carries different political positions and power relations. Is the movement of water understood as a commercial transaction between equal parties, or as a form of supply and assistance imbued with political meaning? These different terms reveal competing interpretations of—and tensions surrounding—water exchanges between Kinmen and mainland China.

Water issues in Kinmen are complex, encompassing politics, everyday needs, economics, and geology. In this lecture, Assistant Professor Shu-Wei Huang of National Taiwan University examined the historical development, political negotiations, and governance challenges of Kinmen’s water resources through the lenses of “hydraulic boundaries” and “sociotechnical systems.” As Professor Huang emphasized, water resources are more than an engineering concern. They are also shaped by historical circumstances, cross-strait relations, and tensions between local industrial development and resource allocation.

Geological Constraints and Water Infrastructure under Military Administration

For Kinmen, water has always been a precious and limited resource. In earlier times, Kinmen residents who had traveled to Southeast Asia to earn a living often gave back to their hometowns by funding the digging of wells upon their return. A well supplied water for daily household needs while also reflecting the importance of water in local life.

During the military confrontation between the Nationalists and the Communists, the arrival of large numbers of troops placed greater pressure on Kinmen’s already limited water resources. Professor Huang explained that the military promoted the planting of casuarina trees in an effort to improve the island’s environment and microclimate. Meanwhile, the policy of exchanging “one catty of sorghum for one catty of rice” encouraged sorghum cultivation and liquor production, gradually shaping Kinmen’s industries and resource demands.

Kinmen’s water supply has also been influenced by geological differences between its eastern and western halves. The western half relies primarily on groundwater of relatively good quality, while difficulties in developing groundwater resources in the east led to the construction of several small reservoirs. These reservoirs, however, face problems such as sedimentation and salinization. Sorghum cultivation, livestock farming, and associated pollution within their catchments have further contributed to eutrophication and increased the burden on water treatment.

Tourism Development and the Challenges of Finding Alternative Water Sources

Following the end of military administration, Kinmen gradually developed its tourism sector. Accommodation services and related industries created new water demands, intensifying pressure on groundwater extraction in the western half of the island. Excessive groundwater extraction threatens the sustainable use of water resources and affects the water used by Kinmen Kaoliang Liquor Inc., a major pillar of the local economy.

To diversify the water supply, the government built a seawater desalination plant. Its operation, however, encountered challenges involving electricity supply and the location of its seawater intake. Efforts to promote reclaimed water were also constrained by public acceptance. As measures to increase local supply and conserve water encountered obstacles, importing water from mainland China became one option for securing a stable supply.

Political Negotiations and Boundary Practices in Cross-Strait Water Diversion

The process of bringing water from mainland China involved both infrastructure construction and negotiations over political narratives and the application of regulations. In Taiwan, the term “water purchasing” emphasizes a commercial transaction. Mainland China more often uses terms such as “water connection” or “water supply,” attaching the political message that “the two sides of the Taiwan Strait are one family.” A single pipeline thus carries different political visions.

Professor Huang also described how the project sought workable arrangements within existing institutions and boundaries. For example, when confronted with restrictions related to direct cross-strait cargo shipping and food regulations, the authorities sought solutions through WTO rules. During the connection of the pipeline, engineering personnel from the two sides had to carry out a handover at the maritime dividing line. Facilities near Tianpu Reservoir also used live fish as a supplementary means of providing early warning of water quality problems.

From regulatory negotiations and personnel handovers to water quality monitoring, these practical arrangements demonstrate that although water crosses geographical boundaries, political, institutional, and psychological boundaries remain embedded in everyday operations.

Governance Challenges and Reflections after the Water Began to Flow

The commencement of the water supply eased pressure on Kinmen’s water resources, but it did not resolve all of its water governance challenges. Professor Huang noted that delays in the island’s water transmission pipeline projects prevented the goal of “sending water from east to west” from being fully realized. The western half therefore continued to rely on groundwater, limiting the extent to which imported water could reduce groundwater extraction.

Water transfers across regions also bring new ecological concerns. Aquatic organisms transported with raw water may not be adequately captured by existing water quality testing parameters. Non-native species and their potential ecological impacts have therefore become issues requiring continued attention. This reminds us that compliance with water quality standards and the ecological effects of moving water between locations are distinct questions that must be considered together.

Water allocation also involves domestic needs, ecological conservation, and industrial development, making broader participation by local residents essential. Yet existing governance structures and approaches to policy implementation leave limited space for public participation, and local views may not be adequately incorporated into decision-making.

At the close of the lecture, Professor Huang reminded the audience that Kinmen’s motivation for protecting groundwater is closely tied to sustaining its kaoliang liquor industry and the local public finances and social welfare provisions that the industry supports. Environmental protection is therefore only one part of the picture. Understanding these interconnected relationships allows us to recognize the choices and trade-offs underlying water governance.

Kinmen’s experience shows that water sustainability involves more than increasing supply or building infrastructure. It also raises questions about who makes decisions, how resources are allocated, and who can participate in the discussion. Once water crosses boundaries, ensuring that different needs and local voices receive meaningful consideration remains an ongoing challenge for sustainable action on water resources.