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GWP -IWMI
Workshop on Climate Change, Food, and Water Security
                24-25 February 2011


   Irrigation Management Reforms:
          The Asian Experience


                   Madar Samad
     International Water Management Institute

               Water for a food-secure world
COUNTRIES WHERE IRRIGATION MANAGEMENT REFORMS
            HAVE BEEN IMPLEMENTED




             Water for a food-secure world
A Key Question


Are schemes that have been transferred to Water
User Associations performing better than when
they were under agency management ?




               Water for a food-secure world
Performance Indicators:

• Improve the quality of irrigation service to farmers.

• Improved maintenance of irrigation facilities.

• Improve the agricultural production performance.

• Financial viability of WUAs
•
• User fee collection and increase in WUAs share of the cost of
  irrigation O&M.




                     Water for a food-secure world
STUDY SITES OF IWMI
                                 1990-2000




         USA                                                China
                          Niger               Pakistan              Nepal
                          Burkina                          Bangladesh
Mexico                                     Sudan      India            Philippines
                          Faso
               Colombia                            Sri Lanka
                               Nigeria               Indonesia




                            Water for a food-secure world
Recent Review of Case Studies:
Distribution and location of cases
        - Mukherji et al, 2010




      Water for a food-secure world
Selection of case studies
– Cases post 1994 period
– Only public owned irrigation schemes




              Water for a food-secure world
Some Results
(from Mukherji et al, 2010)




   Water for a food-secure world
Finding patterns in success: Success
         by type of scheme

                                            PIM in Lift
                                            and pump
                                           schemes are
                                            marginally
                                              more
                                            successful
                                            than canal
                                             systems




           Water for a food-secure world
Success by size of system

                                                   Small schemes
                                                     perform
                                                    marginally
                                                      better




Schemes serving
lesser number of
farmers succeed
marginally more




                   Water for a food-secure world
Success by complexity

                                       PIM is
                                     marginally
                                        more
                                    successful in
                                       Simple
                                      schemes
                                        more




    Water for a food-secure world
Success by crops grown

                                      PIM in Non-
                                     paddy systems
                                        succeed
                                      significantly
                                       more than
                                     paddy systems




     Water for a food-secure world
Rehabilitated systems fare better
  than non-rehabilitated ones




     Water for a food-secure world
Cases where full O&M is transferred
         perform better




        Water for a food-secure world
Higher Failure of PIM in Schemes
Implemented by Government Agencies




          Water for a food-secure world
Distribution of success/failure as per CSS




Region    Success   Failure
S Asia    18        20
E Asia    7         2
SE Asia   12        24
C Asia    4         14



                              Water for a food-secure world
Overall Assessment

• The recent results are largely consistent with earlier
  research findings – mixed performance
• Service provision has largely improved and arrested
  the anarchy of the pre 1990s era
• Despite uncertainties IMT continues to be a major
  component of institutional reform programs
  worldwide.
• Some loss in the momentum of the early 1990s


                   Water for a food-secure world
Why has PIM/IMT has largely a limited
                 Impact?

1. Conceptual Problem?




2. Implementation Failure?




                  Water for a food-secure world
Conceptual Problem?
1. Central concept of PIM is collective action by
   farmers
1. Collective action by user/beneficiary groups have
2.
   succeeded in many areas of NRM: Community forestry,
   fisheries, watershed management, milk producers, small tank
   irrigation systems
3 Lin Ostrom was awarded the Nobel Prize for
  Economics primarily for her work on collective action
  in NRM
4 “tragedy of the commons” has been avoided and
  communally managed irrigation systems have
  stood the test of time (Ostrom et al)
                     Water for a food-secure world
Key Questions ?
 If Collective Action has largely succeeded in many areas
  of NRM, why has there been limited success in large
  scale government management irrigation schemes?

  Implementation Failures?
    − Reforms only at the lowest level
    − Irrigation agency intact

   Partial Reforms, Partial Success!

Neglect of Main system Management?
         – David Mosse: Rule of Water
                    Water for a food-secure world
Throw the Baby and the Bathwater?




        Water for a food-secure world
Four key lessons about WUAs:
Lesson 1:
   Enabling environment + support = Capable WUA
        (Ex: Mexico, Indonesia & Paliganj, Bihar)
Lesson 2:
   WUA w/o empowerment = common, but not productive or sustainable
   WUA w/ empowerment = rare, but productive & sustainable
        (Mexico, places in Andhra Pradesh & Indonesia)
Lesson 3:
   Rehabilitation/Construction = incentive to form WUA, but is risky
        (Many Asian cases vs Madagascar, USA )
Lesson 4:
   PIM should be integrated with broader reforms in irrigation, agriculture &
        environment (Ex: Mexico)



                           Water for a food-secure world
The Way Forward
• Need to focus on evolving a strategy that addresses
  the entire complex of constraints that farmers in
  irrigation schemes are facing.

• The first step must be to enhance the income
  creation potential of smallholder irrigated farming:
   – strengthening market access,
   – promoting high-value crops
   – improving extension and technical support to smallholder
     irrigators.



                    Water for a food-secure world
• Irrigation schemes should be run as
  enterprises (public or private)

• Replace administrative systems with
  service delivery arrangements




              Water for a food-secure world
OPTIONS
 Reform and Strengthen Public Irrigation
  Agencies – difficult but not impossible


• Persist with PIM and provide effective
  support systems to WUAs
     • PIM Support Units In Andhra Pradesh




                Water for a food-secure world
• Look for Institutions beyond State, Parastatals
  or Farmer Organizations

      Contractual arrangements between private
      irrigation service providers and irrigators (WUAs)
        ⁻ China, Kyrgyzstan
        ⁻ Contract between agency and private providers for main
          systems management.


    Political Acceptability of private sector engagement ?
    - Bangladesh water policy states that the management of
    large scale irrigation systems will handed over to private
    sector


                    Water for a food-secure world
• Sri Lanka – Farmer companies:

    Companies undertake input supply, credit and
     marketing commitments

• Lessons other institutions in the Agricultural
  Sector:
   – Farmer Cooperatives
   – Dairy coops in India




                  Water for a food-secure world
Andhra Pradesh: Mobile Phone based
   Information System for Efficient Water
               Management
Mobile phone technology used to develop two
applications:.

  1. First one is Reservoir Storage Monitoring System
     (RSMS)

   2. Canal Network Flow Monitoring System
  (CNFMS).


                Water for a food-secure world
Mobile Phone Based Information System for Main
     Canal Management – Andhra Pradesh




             Water for a food-secure world
Water for a food-secure world
Water for a food-secure world
 Mobile technology enabled actual assessment of water
  flows in each distributary on a daily basis which helps
  to identify the water flows against the planned and
  actual design discharge.
 Timely information dissemination helped farmer
  organizations to undertake timely flood management
  measures.
 Low Cost (Rs 0.20/SMS)
 This enhanced transparency and accountability
  between irrigation officials and FOs and
  resulted in judicious use of water.
                  Water for a food-secure world
Thank you




Water for a food-secure world

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Irrigation Management Reforms: The Asia Experience, by Madar Samad, IWMI

  • 1. GWP -IWMI Workshop on Climate Change, Food, and Water Security 24-25 February 2011 Irrigation Management Reforms: The Asian Experience Madar Samad International Water Management Institute Water for a food-secure world
  • 2. COUNTRIES WHERE IRRIGATION MANAGEMENT REFORMS HAVE BEEN IMPLEMENTED Water for a food-secure world
  • 3. A Key Question Are schemes that have been transferred to Water User Associations performing better than when they were under agency management ? Water for a food-secure world
  • 4. Performance Indicators: • Improve the quality of irrigation service to farmers. • Improved maintenance of irrigation facilities. • Improve the agricultural production performance. • Financial viability of WUAs • • User fee collection and increase in WUAs share of the cost of irrigation O&M. Water for a food-secure world
  • 5. STUDY SITES OF IWMI 1990-2000 USA China Niger Pakistan Nepal Burkina Bangladesh Mexico Sudan India Philippines Faso Colombia Sri Lanka Nigeria Indonesia Water for a food-secure world
  • 6. Recent Review of Case Studies: Distribution and location of cases - Mukherji et al, 2010 Water for a food-secure world
  • 7. Selection of case studies – Cases post 1994 period – Only public owned irrigation schemes Water for a food-secure world
  • 8. Some Results (from Mukherji et al, 2010) Water for a food-secure world
  • 9. Finding patterns in success: Success by type of scheme PIM in Lift and pump schemes are marginally more successful than canal systems Water for a food-secure world
  • 10. Success by size of system Small schemes perform marginally better Schemes serving lesser number of farmers succeed marginally more Water for a food-secure world
  • 11. Success by complexity PIM is marginally more successful in Simple schemes more Water for a food-secure world
  • 12. Success by crops grown PIM in Non- paddy systems succeed significantly more than paddy systems Water for a food-secure world
  • 13. Rehabilitated systems fare better than non-rehabilitated ones Water for a food-secure world
  • 14. Cases where full O&M is transferred perform better Water for a food-secure world
  • 15. Higher Failure of PIM in Schemes Implemented by Government Agencies Water for a food-secure world
  • 16. Distribution of success/failure as per CSS Region Success Failure S Asia 18 20 E Asia 7 2 SE Asia 12 24 C Asia 4 14 Water for a food-secure world
  • 17. Overall Assessment • The recent results are largely consistent with earlier research findings – mixed performance • Service provision has largely improved and arrested the anarchy of the pre 1990s era • Despite uncertainties IMT continues to be a major component of institutional reform programs worldwide. • Some loss in the momentum of the early 1990s Water for a food-secure world
  • 18. Why has PIM/IMT has largely a limited Impact? 1. Conceptual Problem? 2. Implementation Failure? Water for a food-secure world
  • 19. Conceptual Problem? 1. Central concept of PIM is collective action by farmers 1. Collective action by user/beneficiary groups have 2. succeeded in many areas of NRM: Community forestry, fisheries, watershed management, milk producers, small tank irrigation systems 3 Lin Ostrom was awarded the Nobel Prize for Economics primarily for her work on collective action in NRM 4 “tragedy of the commons” has been avoided and communally managed irrigation systems have stood the test of time (Ostrom et al) Water for a food-secure world
  • 20. Key Questions ?  If Collective Action has largely succeeded in many areas of NRM, why has there been limited success in large scale government management irrigation schemes? Implementation Failures? − Reforms only at the lowest level − Irrigation agency intact  Partial Reforms, Partial Success! Neglect of Main system Management? – David Mosse: Rule of Water Water for a food-secure world
  • 21. Throw the Baby and the Bathwater? Water for a food-secure world
  • 22. Four key lessons about WUAs: Lesson 1: Enabling environment + support = Capable WUA (Ex: Mexico, Indonesia & Paliganj, Bihar) Lesson 2: WUA w/o empowerment = common, but not productive or sustainable WUA w/ empowerment = rare, but productive & sustainable (Mexico, places in Andhra Pradesh & Indonesia) Lesson 3: Rehabilitation/Construction = incentive to form WUA, but is risky (Many Asian cases vs Madagascar, USA ) Lesson 4: PIM should be integrated with broader reforms in irrigation, agriculture & environment (Ex: Mexico) Water for a food-secure world
  • 23. The Way Forward • Need to focus on evolving a strategy that addresses the entire complex of constraints that farmers in irrigation schemes are facing. • The first step must be to enhance the income creation potential of smallholder irrigated farming: – strengthening market access, – promoting high-value crops – improving extension and technical support to smallholder irrigators. Water for a food-secure world
  • 24. • Irrigation schemes should be run as enterprises (public or private) • Replace administrative systems with service delivery arrangements Water for a food-secure world
  • 25. OPTIONS  Reform and Strengthen Public Irrigation Agencies – difficult but not impossible • Persist with PIM and provide effective support systems to WUAs • PIM Support Units In Andhra Pradesh Water for a food-secure world
  • 26. • Look for Institutions beyond State, Parastatals or Farmer Organizations  Contractual arrangements between private irrigation service providers and irrigators (WUAs) ⁻ China, Kyrgyzstan ⁻ Contract between agency and private providers for main systems management.  Political Acceptability of private sector engagement ? - Bangladesh water policy states that the management of large scale irrigation systems will handed over to private sector Water for a food-secure world
  • 27. • Sri Lanka – Farmer companies:  Companies undertake input supply, credit and marketing commitments • Lessons other institutions in the Agricultural Sector: – Farmer Cooperatives – Dairy coops in India Water for a food-secure world
  • 28. Andhra Pradesh: Mobile Phone based Information System for Efficient Water Management Mobile phone technology used to develop two applications:. 1. First one is Reservoir Storage Monitoring System (RSMS) 2. Canal Network Flow Monitoring System (CNFMS). Water for a food-secure world
  • 29. Mobile Phone Based Information System for Main Canal Management – Andhra Pradesh Water for a food-secure world
  • 30. Water for a food-secure world
  • 31. Water for a food-secure world
  • 32.  Mobile technology enabled actual assessment of water flows in each distributary on a daily basis which helps to identify the water flows against the planned and actual design discharge.  Timely information dissemination helped farmer organizations to undertake timely flood management measures.  Low Cost (Rs 0.20/SMS)  This enhanced transparency and accountability between irrigation officials and FOs and resulted in judicious use of water. Water for a food-secure world
  • 33. Thank you Water for a food-secure world