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THE FUTURE OF LARGE RICE-BASED IRRIGATION SYSTEMS
IN SOUTHEAST ASIA
PROCESS AND OUTCOMES OF A REGIONAL WORKSHOP IN HO CHI MINH CITY
OCTOBER 2005
Thierry Facon
Topics
• The future of large rice-based irrigation systems in Southeast Asia
• A new FAO methodology to improve irrigation management: MASSCOTE
THE FUTURE OF LARGE RICE-BASED IRRIGATION SYSTEMS
IN SOUTHEAST ASIA
PROCESS AND OUTCOMES OF A REGIONAL WORKSHOP
IN HO CHI MINH CITY, OCTOBER 2005
Conveners and sponsors
FAO Regional
Office for Asia and the Pacific
Evaluation Study of Paddy Irrigation under Monsoon Regime (ESPIM) Project
Financed by the Government of
Japan
Viet Nam Institute for
Water Resources
Research,
Ministry of Agriculture and Rural Development,
Viet Nam
Why this workshop• Regional Consultation - Modernization of irrigation schemes: past
experiences and future options , Bangkok 1996• Since 1999, modernization a major focus of FAO in Asia and
especially SEA • Many interventions based on past and present models and new
models have been tried• Change: trends have accelerated and consolidated and new
challenges have emerged• New perspectives: multiples roles, poverty alleviation, water for
food and the environment…• Changing context in the water sector• Renewed interest from governments and donors in agricultural
water management• Often lack of vision in irrigation professionals• 1st Southeast Asia Water Forum: regional cooperation on the
future of large irrigation systems
Time to refresh our perspectives and define new road maps
Objective of the workshop
To identify strategies, opportunities and interventions for the sustainable management of large rice-based irrigation systems in Southeast Asia over the coming decades
To promote collaboration in the region among countries, stakeholders from different sectors, and national, regional and international organizations.
three critical questions that will determine the character that large
rice-based irrigation systems evolve over the next 20-25 years
• How will agriculture, rice production and water resources management evolve in SE Asia?
• What changes are required in irrigation service provision by the large rice-based irrigation systems and what new roles will they play?
• How will on-going and expected reforms and investment programmes measure up against the projected needs of the region?
• national irrigation agencies and institutions, river basin and water resources management agencies and national water apex bodies, agriculture ministries and environmental agencies
• academic and nongovernmental organizations from countries in the region
• regional bodies and institutions such as MRC, AIT• IOs: FAO, IWMI, IRRI• World Bank, ADB• Centers of excellence and respected individual experts• Comprehensive Assessment of Water Management for Agriculture• environmental INGOs: IUCN, Wetlands International
50 Participants
Evaluation of 50 recommendations from 6 events
• FAO 1996 Bangkok Expert Consultation on Modernization of Irrigation Schemes,
• Fifth International ITIS Network Meeting, India 1998
• World Water Vision 2000
• INPIM/FAO IMT Email Conference(2001)
• First and Second Southeast Asia Water Forums (2002 and 2005)
The most both implemented and effective recommendations:
• Initial performance assessment and improved diagnosis (particular reference to the Rapid Appraisal Procedure and to benchmarking)
• Provision of leadership in funding, action, and expertise in the development of improved design manuals
• Better communication between farmers and irrigation management organizations
The most effective recommendations • Initial performance assessment and
improved diagnosis• Technology must be embedded into
management • The (early stage) implication of WUAs is
critical to success• To facilitate more rapid acceptance of
modernization, better sales arguments regarding benefits must be developed
• Expansion of resources (funding, expertise, ideas) for training, exchanges, workshops and study tours
Technical criteria Main characteristics (and examples)
1
Reservoir-backed, gravity fed irrigation systems
Water is stored in large reservoirs, distributed via a canal networks to the fields mainly by gravity (Zhanghe system, Dau Tieng, UPRIIS)
2Off-river diversion irrigation systems
Water level in the rivers is raised by dam so that water can be distributed via a canal networks to the fields (SCRIS, Philippines)
3Off-river pump irrigation systems
Water is pumped into a canal networks, to be distributed to the fields (Northern part of Vietnam)
4
Integrated water management systems in the deltas
Low lying deltas, Consisting of a series of multifunctional canal networks (water supply, drainage, transport..) and water management structure (salinity control) and an mosaic small irrigation systems (tidal or pump)
5Conjunctive groundwater-surface water system
Both gravity fed surface irrigation + groundwater pumping
Additional criteria
Urban-rural irrigation systems
Near or including cities or industrialized centers, steep competition for water and labor (Cu Chi, Zhanghe, Mangat)
National and Sub-
national stageEconomic and AgricultureSituation Strategy and policy
Focus is outside agriculture
Postagricultureadvanced
• highly diversified agriculture• Resources competition• high environmental concern• diets shifting• need to conserve certain level of
food production capacity
• Reduction/decommissioning of rice irrigation areas
• Specialization• improve water productivity• protect environment and water
quality• gvt investment for modernization
Agricultural export main focus
Intermediate/transition
• on the way to diversification• quick demographic transition• further improvement of food
security• need to stabilize rice production• rice exporting for FC earning+C6• rely on rice production
• Stabilization and modest development of rice irrigation areas
• development of small systems• increase the financial self-
sufficiency• further water resources development
Agriculture main focus
Low developed /early economy
• urgent need for food security• possess comparative
advantage• Little alternatives
• further rice irrigation expansion• strong government financial support• external assistance• Livelihoods
Common drivers
Food Security : National-Regional-Household.
Poverty alleviation/regional development.
Increasing concern for environmental protection and ecosystem management.
Issues of energy and other chemical inputs
Climate change (coastal impact- risk for rainfed agriculture).
Nation specific
Development stage that set the exporting/importing strategy.
National Budget Support/Constraints – O&M cost reduction (may be a constraint)
Institutional reforms: Regional Autonomy – decentralization
Agriculture and water management policy
Migration rural/agri-urban population balance.
Other Drivers for Change
Equity of distribution including gender concerns
Multiple purpose nature of service from reservoirs
Markets diversification and integration (need for crop diversity)
Pressure on Water resource: Scarcity, Water quality and competing uses of water
Reclaiming land.
Management related objectives/drivers
Cost-effectiveness of O&M and management
More responsive, transparent and participative management
More flexible water delivery systems
Accounting for multiple uses of water
Water on Demand (removing technical constraints )
Technology: availability of low cost pumps
Accompanying supports (enabling conditions)/drivers:
Strategies of the World Bank and Asian Development Bank for management/rehabilitation projects Capacity building in water infrastructure management and service oriented management, in modernization development.
National and Sub- national stage
Type 1: Reservoir gravity
Type 2: Off-river gravity
Type 3: Off-river pump
Type 4: Conjunctive
Type 5: Integrated management deltas
0 - + + -
Pos
t- ag
ricu
ltu
re
Optimizing multiple use economically justified; limited number of sites available for new systems
Reduce. Merge or neglect due to low reliability Convert to type 3 or 4 Convert to different crops/land use
Increasing energy costs Crop diversification Rice phases out economically justified; limited number of sites available for new systems
Highly flexible Farmers decide Market rules (export possibilities) (manymers use pumps)
urnanizationOptimizing multiple use (environment, drainage isuues, per-urban agriculture, urbanization) ; more crop diversification
not economically justified by agriuclutre alone but may expand;
0 0/- + Expand short term then decline due to urbanization, sea level rise, salinity?
Agr
icu
ltu
ral
Exp
ort
Anticipate on multiple uses
Improve, modernize (endless) Inherent limitations of supply
Likely reduction due to energy costs (for paddy)
Highly flexible Farmers decide Market rules (export possibilities) (several farmers use pumps)
Optimize multiple use Expensive drainage (environment, drainage isuues, per-urban agriculture, urbanization)
0 + + + Expand short term then decline due to urbanization, sea level rise, salinity?
Agr
icu
ltur
e fo
cus
Too expensive for rice but plan for future or multi-purpose structure
low costs Comparative advantage (compared with oither options)
Affordable investment Subsidized O&M
Highly flexible Farmers decide Market rules (export possibilities) (some rich farmers use pumps)
Developing paddy systems Not yet urbanization
CONCLUSIONS FROM WORKSHOP FINDINGS
AND RECOMMENDATIONS• modernization to increase flexibility, in river
basin management context, delivering service needed by farmers, taking into account multiple functions, is more required than ever.
• greater awareness, knowledge, effective tools exist, but very little successful modernization has taken place in Southeast Asia and we still have many classical projects.
• Unless management adapts, the discrepancy between stated and actual management will widen: chaos will increase, etc.
• new layers of complexity have been added to our understanding of irrigation and need to be managed.
• Technology needs to be embedded in management
• Design manuals need to be revised
• Management needs to be professionalized (managers and WUAs).
• Focus on operational management.
• present institutional reform models need to be evaluated and overhauled to respond to new demands and characteristics of farmers.
• Early involvement of users (WUAs) is critical• Capacity building of managers, intermediate
service providers consulting firms, and various components of civil society will need to be substantially boosted.
• Tools such as benchmarking and rapid appraisal procedure for investment and management
• main focus: improvement of performance of existing assets.
• new systems may be still developed: predominantly agrarian economies, types of systems with comparative advantages
• their planning and appraisal process should be reformed to adhere to improved water governance, comparing other options to achieve the same objectives.
• Evolution scenarii, objectives and strategies will vary greatly according to the types and socio-economic environment of the systems.
• Non-rice drivers will play a very important role in their evolution.
Financing and multiple roles
• Modernization should aim to secure reliable, equitable and predictable water supply and be responsive to individual needs of farmers where possible. Trust farmers to respond to such a water supply, e.g., through conjunctive water use.
• Water-delivery systems need to be flexible (technically,
institutionally) to deliver water to multiple uses (agriculture, environment, city, industry, energy generation), from entire river basins down to (within) large irrigation systems.
• Financing (capital and O&M) needs to progressively move from subsidies to market-based incentives, and public-private cost-sharing mechanisms, as economies evolve (Early -> Transition -> Post-agriculture).
• "Early economies" should anticipate for, "transition economies" should plan for, and "post-agriculture economies" should harmonize (social, cultural, institutional, and policy) water management for different ecosystem services within irrigation area and catchment.
Financing and multiple roles
Management and Institutions
• Invest in professionalization of irrigation management through the establishment of continuous in-service training focused on operational management:
– Training of today’s graduates who are tomorrow’s managers
– Training at all professional levels within irrigation systems across all relevant disciplines.
– Overseas secondment of irrigation managers within the region and in higher-income countries.
– Practical trainings for farmer organisations/WUAs/Federations.
• operationalise and mandate a suite of assessment and performance measures to continually upgrade and compare the effectiveness of service provision and the management of negative externalities, such as environmental impacts:– RAP– Benchmarking– Introduction of service related performance for irrigation service
provider staff.– Public accountability – balance sheets– Improve and sustain monitoring, data collection and processing
and management for improved service provision.
Management and Institutions
• Existing PIM approaches should be diagnosed, and successful approaches and their contexts identified and replicated.
• A key focus of initiatives to implement participatory management and management transfer should be on:– Minimizing the transaction costs relative to actual benefits of
participation– Incentivizing participation and compliance of the irrigation
service providers:• Self-financing arrangements
– Functional WUAs and federations, with clear rights, responsibilities and programs of action in management and local investment.
– To be effective, the service delivery of WUAs and Federations must be improved and support is required to realize this.
Management and Institutions
• Revise national design standards and operation manuals to take advantage of new knowledge in the irrigation sector and state-of-the-art technologies.
• Replicable pilot projects to demonstrate modern technologies; learn from practical experience for a relative small cost.
• Consider use of new donor lending instruments – e.g., adjustable program loan (APL) (longer time periods are needed to design and implement modernization programs; typical 5 year loans are too short).
Design and Operation
Design and Operation
• develop excellent "Water Control Engineering" programs in universities and engineering schools.
• establishment of national/regional Centers of Excellence for irrigation modernization.
• Regional training programs on Modernization and RAP for different levels of the organization: senior managers, operations staff, designers & engineers.
• RAPs before any new investment for a diagnosis of the system, developing proper water management strategies, and benchmarking.
New large-scale irrigation projects
• Comprehensive options and feasibility assessment. by a wide-ranging analysis which is ecologically, physically, politically, socially and culturally “logical” to guide analysis and debate when examining the feasibility of a project, before progressing into the formal “impact assessment” process.
• From the initial stage of development, it is important to visualise the trajectory of how changes might occur.
• Projects should be planned, built and operated within a governance regime that embodies social justice ethics, is transparent, and participatory. Participation in irrigation governance should be open to representatives of affected communities and interest groups.
• The water rights and responsibilities of all stakeholders should be openly negotiated and established, with equity and sustainability being primary considerations.
• Management arrangements for a new project should include, from the beginning, credible representatives of different stakeholder groups.
• Local capacity development. If a new project is proposed, it is essential to increase efforts to boost the capacity of local stakeholders playing many different roles: local decision makers, public authorities, local consulting firms and engineers, user groups, local civil society organizations and universities Supporting the development of this capacity needs to be factored into any new project.
• Finance. An adequate financial strategy must be put in place. The finance for complete construction must be ensured. Beyond construction, there must be a plausible strategy to ensure the availability of funds to meet full O&M costs, drawn from all project beneficiaries.
• Monitoring impact on ecosystem and livelihoods: year-round effect of a project on the hydrology and wider environment; impact, whether positive or negative, on the livelihood of all affected peoples.
New large-scale irrigation projects
new recommendationsFrom:• generation of both positive and negative externalities
by accident• development of autonomous farmers’ responses by
neglectTo:• explicit management of multiple roles• recognition of farmers’ service and other objectives,
of their contributions to overall efficiency and productivity (e.g. By pumping)
• search for the most practical, economical options on where, how and at which levels (main system, intermediate distribution, farmers, conjunctive use, etc.) to locate improvements for service delivery.
31
From RAP to MASSCOTE
MASSCOT
SERVICE
FACTORS INFLUENCING SERVICE QUALITY
• Actual Level and Quality of Service Delivered- To Fields - From One Level of Canal to Another
SYMPTOMS
CONSTRAINTS
Physical Constraints Institutional Constraints
• Turnout Design • Check Structure Design • Flow Rate Measurement • Communications System • Remote Monitoring • Availability of Spill Sites • Flow Rate Control Structures • Regulating Reservoir Sites • Density of Turnouts
Hardware Design Management• Instructions for Operating Check Structures • Frequency of Communication • Maintenance Schedules • Understanding of the Service Concept • Frequency of Making Flow Changes • Quality and Types of Training Programs • Monitoring and Evaluation by Successive Levels of Management • Existence of Performance Objectives
• Dependability of Water Supply • Adequacy of Water Supply • Availability of Groundwater • Climate • Silt Load in the Water • Geometric Pattern of Fields • Size of Fields • Quality of Seed Varieties • Field Conditions - Land Leveling - Appropriate Irrigation Method for the Soil Type
• Adequacy of Budget • Size of Water User Association • Existence of and Type of Law Enforcement • Purpose and Organizational Structure of WUA • Destination of Budget • Method of Collecting and Assessing Water Fees • Ownership of Water and Facilities • Ability to Fire Inept Employees • Staffing Policies, Salaries • Availability of Farm Credit • Crop prices
• % Collection of Water Fees • Viability of Water User Associations • Condition of Structures and Canals • Water Theft
RESULTS• Cropping Intensity • Average Crop Yields (Ton/Ha) • Yield/Unit of Water Consumed • Downstream Environmental Impacts
Figure 1. Factors affecting output (results) and symptoms from irrigation projects.
App
rais
alM
odernization
33
From RAP to MASSCOT to Modernization of Irrigation
Systems? MASSCOT
Trainings and RAPs in 30 Asian systems confirmed:• The extent of the problem of poor service and performance• Operation issues and vast potential there for targeted improvements in operation, supporting hardware, and resource allocation• The need of additional tools to assist managers in elaborating more detailed plans
Other considerations:• Multiple roles, multiple uses, conjunctive use…• Need for differentiation: heterogeneity of “context-service-physical capacity” is the norm not the exception. Heterogeneity is even further increasing with service oriented management (more diversified)!• Cost-effectiveness
34
MASSCOT
1. From RAP to MASSCOTE
Unit = Homogeneous for Capacity/Sensitivity/vulnerabilityPerturbationNetwork/Water Service Demand for service/operationCost of operation
Practical considerations cost effective compromise between hydraulic/operation constraints and diversified services
But unitary procedures will help dealing with this, together with simpler and more flexible operation
(1) RAP
(2) CAPACITY & SENSITIVITY
(3) PERTURBATIONS
(4) WATER ACCOUNTING
(5) COST of OPERATION
(6) SERVICE TO USERS
(7) MANAGEMENT UNITS
(8) DEMAND for OPERATION
(9) OPERATION IMPROVEMENTS/UNITS
(10) INTEGRATING SOM OPTIONS
PLAN FOR MODERNIZATION MONITORING & EVALUATION
THANK YOU FOR YOUR ATTENTION