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| Title |  |
Participatory Irrigation Management: Benefits
and Second Generation Problems. Lessons from an International Workshop held at Centro Internacional de Agricultura Tropical (CIAT), Cali, Colombia 9-15 February, 1997 (28 pages) |
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| Author | Mark Svendsen, Jose Trava and Sam H. Johnson III | |||
| Organisation | Economic Development Institute, now part of the World Bank Institute and the International Irrigation Management Institute. | |||
| Year | 1997 | |||
| Summary/ Introduction |
Experience is now
available from a number of developing countries which
have recently implemented Participatory Irrigation
Management (PIM) programs and there is additional
evidence from developed countries which transferred
irrigation management functions to locally-based
organizations many years ago. In the case of the
developing countries, while the overall benefits of PIM
have been positive, in some cases second generation
problems have manifested themselves and, consequently,
have tended to reduce the magnitude of the potential
benefits. In the process of introducing PIM programs, political will at the highest level is a critical background condition for a rapid and sustained transfer program. A second important element is that the irrigation infrastructure be in fair condition so that it could deliver irrigation water as required. A suitable legal framework is also necessary for the sustainable functioning of the transferred systems. Lack of clear water rights has led to second generation problems including conflicts with municipal and industrial users as well as other irrigation organizations. PIM is designed to shift the financial burden for irrigation service from the agency to the users. This aspect has to be made very clear when the process of transfer is introduced. Failure to address the financial side of system management is a primary cause of second generation problems. In general, the countries that have a clear policy on irrigation service fee rates and collection practices have sustainable water user associations. The type and nature of the associations are very dependent on the structure of the broader economy as well as the type of irrigation and the tradition of management prevailing in the country. Where economies are more developed and diversified and irrigation systems are large, associations have tended to evolve successfully. These associations are generally large and can hire their own staff and own specialized irrigation equipment. In contrast, in countries where economies are less developed, agriculture is more subsistence oriented, and irrigation systems are small, the associations tend to be small and more problematic in terms of management. These changes in management structures and processes have had important impacts both positive and negative on four important target groups: farmers, the irrigation association, the irrigation agency, and the government. For example, while increased service fees have reduced the financial burden on the government and increase the sustainability of the IAs, they have added to the costs of production for the users. On the other hand, from the perspective of the farmers, transfer has resulted in a sense of ownership, reduction in conflict and improved maintenance. Transfer has reduced the O&M staff of the irrigation agencies, and consequently the overall number of civil servants working in the irrigated agriculture sector. However, in a number of cases, this has also reduced governments’ control over cropping patterns and over water resources more generally. This reduced government control has generally led to greater farmer satisfaction, more transparency in decision making, and greater overall economic efficiency. Changes in management responsibility have led to second generation problems in most countries, some of which are already affecting the involved parties while others loom as potential future problems. Insecurity of water rights was identified as the most serious second generation problem affecting transferred systems. The primary solution is to establish a secure legal right that has both quantitative and qualitative dimensions. Federations of associations can provide assistance and legal representation. Financial shortfalls comprise another second generation problem. The principle source of revenue for the association is the irrigation service fee. A two-part fee consisting of a fixed connection charge and a volumetric charge can provide greater financial stability. Increasing the productivity of irrigated agriculture is also an important element in improving the financial health of associations. Outside assistance may be useful in analyzing and improving management systems set up to assess and collect service fees. Rehabilitation poses a number of second generation problems. In the absence of a clear and consistent policy on rehabilitation, maintenance is often deferred. There is a valid argument for developing a cost sharing formula where the government pays a share and the users pay the remaining share. If possible, the IAs should have a sinking fund for accumulating funds to cover their share of future rehabilitation costs. When this is insufficient, it is important to have an outside source of affordable credit. Other needed supporting services include assistance with maintenance assessment practices and technical design and construction services. Effective financial and administrative management of the associations requires specialized staff training and increased transparency. Support services such as external audits, and standardized accounting packages can also contribute to better management of the associations. Irrigation agencies also suffer from a number of second generation problems. Dislocation of staff, loss of technical capability, and the need to define a new role for the agency are all problems found in countries that are instituting PIM programs. In particular, the problem of what to do with excess staff is a difficulty faced by almost all agencies. Solutions include attrition, retirement incentives, creation of specialized consulting units, retraining and assistance with job placement, and transfer to other units. Along with the problem of staff displacement, agencies also face the problem of the loss of specialized skills. These may be replaced by outside private consultants but may also require the agency to provide specialized training for existing staff. Second generation problems of farmers are related to the need to increase agricultural productivity, including the need to shift to higher value crops. Services such as credit, agricultural extension, market access, technical inputs and post-harvest assistance are all needed. In some cases these services will come from the government but increasingly from the private sector as well. Federations of IAs can also play an important role in the provision of such services. A shift from public agency control to local participatory management is unlikely to happen without some second generation problems. Rapid institutional change will almost always require corrective measures to address unexpected problems. Countries with flexible policies and procedures will be able to address these problems, as they arise. This report has summarized a number of solutions countries have employed to address second generation problems associated with the shift to participatory irrigation management. |
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