The Relevance of Urban Water Metabolism to Groundwater Governance: Insights from Two South African Cities

Groundwater is increasingly relied upon in cities, particularly during drought, yet its management often lacks coordination and systems-based decision-making. Effective governance requires inclusive participation across sectors and scales, engaging actors with diverse knowledge, experiences, and priorities. In cities, this is challenging due to the wide range of roles and responsibilities tied to groundwater. This study examines the value of urban water metabolism analysis (UWMA) for enhancing groundwater governance in Cape Town and Nelson Mandela Bay, South Africa—both recently affected by severe drought. Through a series of Learning Labs, we convened groundwater-related actors to co-develop a shared understanding of urban water systems. We brought together two methods of systems enquiry, UWMA and governance network analysis to explore physical stocks and flows of water across metropolitan boundaries with governance processes shaping groundwater management. The UWMA revealed that, prior to the 2015 drought, Nelson Mandela Bay’s water supplies were more diversified than those of Cape Town, despite Cape Town progressively pursuing managed aquifer recharge and wastewater reuse. The governance analysis surfaced the diversity of actors influencing groundwater flows across the public, private, and civil society sectors, yet highlighted the fragmented nature of the network, with geohydrology and engineering consultants often acting as intermediaries. This research found that UWMA was perceived to be most useful at larger scales (e.g., watershed/urban scales) and was considered a valuable tool for strategic discussion, though clearer language would increase accessibility. We conclude that UWMA helps identify knowledge gaps, integrate diverse perspectives, and foster stakeholder cooperation. Coupled with scenario planning, it can support participatory and inclusive decision-making.