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Distributors of World Bank Publications (4?m 1:13q WORLDBANK TECHNICAL PAPER NUMBER173 Water Users Associations in World Public Disclosure Authorized Bank-Assisted Irrigation Projects in Pakistan LE COPY0 Kerry J. Byrnes Public Disclosure Authorized ALtOCATON ~~~~~~~~~~ )_ 0151.10.1~0z Public Disclosure Authorized rSiI~~~~~~~~~~~~~~~~~~~~0NG _ L ¢5 >'3~~~~~~~~~~~~~~~~~~~~~C~TTa >~~~~~~~~~~~~~~~~~~~~~~E" 07"O I-j ~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~.1To$MCTR ACTWIT Public Disclosure Authorized RECENT WORLD BANK TECHNICAL PAPERS No. 110 Dixon, Talbot, and Le Moigne, Damsand the Environment:Considerations in WorldBank Projects No. 111 Jeffcoateand Pond, Large WaterMeters: Guidelinesfor Selection, Testing, and Maintenance No. 112 Cook and Grut, Agroforestryin Sub-SaharanAfrica: A Farmer'sPerspective No. 113 Vergara and Babelon, The PetrechemicalIndustry in DevelopingAsia: A Reviewvof the Current Situationand Prospectsfor Developmentin the 1990s No. 114 McGuire and Popkins, HelpingWomen Improve Nutrition in the DevelopingWorld: Beating the Zero Sum Game No. 115 Le Moigne, Plusquellec, and Barghouti, Dam Safetyand the Environment No. 116 Nelson, DrylandManagement: The 'Desertification"Problem No. 117 Barghouti, Timmer, and Siegel,.Rural Diversification:Lessons from East Asia No. 118 Pritchard, Lendingby the WorldBankfor AgriculturalResearch: A Review of the Years1981 through 1987 No. 119 Asia Region Technical Department, FloodControl in Bangladesh:A Planfor Action No. 120 Plusquellec, The GeziraIrrigation Scheme in Sudan:Objectives, Design, and Performance No. 121 Listorti, EnvironmentalHealth Components for WaterSupply, Sanitation,and UrbanProjects No. 122 Dessing, Supportfor Microenterprises:Lessons for Sub-SaharanAfrica No. 123 Barghouti and Le Moigne, Irrigationin Sub-SaharanAfrica: The Developmentof Public and PrivateSystems No. 124 Zymelman, Science,Education, and Developmentin Sub-SaharanAfrica No.125 van de Walle and Foster, FertilityDecline in Africa:Assessment and Prospects No. 126 Davis, MacKnight, IMO Staff, and Others, EnvironmentalConsiderationsfor Port and Harbor Developments No. 127 Doolette and Magrath, editors, WatershedDevelopment in Asia:Strategies and Technologies No. 128 Gastellu-Etchegorry, editor, SarelliteRemote Sensingfor AgriculturalProjects No. 129 Berkoff,Irrigation Management on theIndo-Gangetic Plain No. 130 Agnes Kiss, editor, Living with Wildlife:Wildlife Resource Management with LocalParticipation in Africa No. 131 Nair, The Prospectsfor Agroforestryin the Tropics No. 132 Murphy, Casley, and Curry, Farmers'Estimations as a Sourceof ProductionData: Methodological Guidelinesfor Cerealsin Africa No. 133 Agriculture and Rural Development Department, ACIAR, AIDAB,and ISNAR,Agricultural Biotechnology:The Next "GreenRIevolution"? No.134 de Haan and Bekure, Animal Healthin Sub-SaharanAfrica: Initial Experienceswith Alternative Approaches No. 135 Walshe, Grindle, Nell, and Bachmann, Dairy Developmentin Sub-SaharanAfrica: A Study of Issues and Options No. 136 Green, editor, CoconutProduction: Present Status and PrioritiesforResearch No. 137 Constant and Sheldrick, An Outlookfor FertilizerDemand, Supply, and Trade,1988/89-1993/94 No. 138 Steel and Webster,Small Enterprises under Adjustment in Ghana No. 139 Environment Department, EnvironmentalAssessment Sourcebook, vol. I: Policies,Procedures, and Cross-SectoralIssues No. 140 Environment Department, EnvironmentalAssessment Sourcebook, vol. 1::Sectoral Guidelines No. 141 Riverson,Gaviria, and Thriscutt, RuralRoads in Sub-SaharanAfrica: Lessons from WorldBank Experience (List continues on the inside back cover) WORLDBANK TECHNICAL PAPER NUMBER 173 Water Users Associations in World Bank-Assisted Irrigation Projects in Pakistan Kery J. Byrnes The World Bank Washington, D.C. Copyright O 1992 The lnternational Bank for Reconstruction and Development/THE WORLDBANK 1818 H Street, N.W. Washington, D.C.20433, US-A AU rights reserved Manufactured in the United States of America First printing December 1992 Technical Papers are published to communicate the results of the Bank's work to the development community with the least possible delay. The typescript of this paper therefore has not been prepared in accordance with the procedures appropriate to formal printed texts, and the World Bank accepts no responsibility for errors. The findings, interpretations, and conclusions expressed in this paper are entirely those of the author(s) and should not be attributed in any manner to the World Bank, to its affiliated organizations, or to members of its Board of Executive Directors or the countnes they represent. The World Bank does not guarantee the accuracy of the data included in this publication and accepts no responsibility whatsoever for any consequence of their use. Any maps that accompany the text have been prepared solely for the convenience of readers; the designations and presentation of material in them do not imply the expression of any opinion whatsoever on the part of the World Bank, its affiliates, or its Board or member countries concerning the legal status of any country, territory, city, or area or of the authorities thereof or concerning the delimitation of its boundaries or its national affiliation. The material in this publication is copyrighted. Requests for permission to reproduce portions of it should be sent to the Office of the Publisher at the address shown in the copyright notice above. The World Bank encourages dissemination of its work and will normally give permission promptly and, when the reproduction is for noncommercial purposes, without asking a fee. Permission to copy portions for classroom use is granted through the Copyright Clearance Center, 27 Congress Street, Salem, Massachusetts 01970,US.A. The complete backlist of publications from the World Bank is shown in the annual Indexof Publications,which contains an alphabetical title list (with full ordering information) and indexes of subjects, authors, and countries and regions. The latest edition is available free of charge from the Distribution Unit, Office of the Publisher, Department F, The World Bank, 1818 H Street, N.W.,Washington, D.C.20433, U.S.A, or from Publications, The World Bank, 66, avenue d'Iena, 75116Paris, France. LSSN:0253-7494 Kerry J. Byrnes is Agricultural Research, Extension, and Education Advisor at Chemonics International in Washington, D.C.to the U.S.Agency for International Development Latin American and Caribbean Agriculture and Rural Development Technical Services (LACTECH) Project. Cover: Bottom right photo shows Water Users Association (WUA)members meeting to discuss water problems. Top left photo shows one of the positive results of WUAefforts-an improved brick and cement-lined watercourse carrying water more efficiently to farmer fields. The map (bottom left) illustrates the watercourse in relation to the larger irrigation system. The cube (top right) represents the complex of management decisions that farmers, through their WUA,make in regard to water control structures, water use, and organization for problem solving. Credits: The cover's montage was conceived by the author and executed by the World Bank's art staff. The two photos are courtesy of the Pakistan On-Farm Water Management Progranmme.The schematic map of a Pakistani irrigation system is from Merrey (1986b),while the water management cube is from Uphoff, et al. (1985). Library of Congress Cataloging-in-Publication Data Byrnes, Kerry J., 1945- Water users associations in World Bank-assisted irrigation projects in Pakistan / Kerry J. Byrnes. p. cm. - (World Bank technical paper, ISSN 0253-7494; no. 173) Includes bibliographical references (p ). ISBN0-8213-2111-0 1. Irrigation-Economic aspects-Pakistan. I. Title. IL Series. HD1741.P13B95 1992 333.91'3'095491-dc2O 92-15644 CIP - iii - FOREWORD The field study carried out by sociologistKerry J. Byrnes on Pakistan's water users' associations (WUA) examinesone of the most interesting social experimentsin World Bank financed irrigation projects. The essence of this experiment is a significant enhancementof the organizational capacity of the local social actors in state owned irrigation systems. This capacitybecomes a strategic resource for developmentand environmentalmanagement. Informal associationsof users at the watercourse level first appeared in Pakistan about 18-20 years ago. Often they were loosely rooted in pre-existing,non-water related, kinship systems or neighborhoodnetworks. Formal WUAs, as organizedstructures with defined functions and recognized legal status, were first established in 1981. Since then more than 14,000 WUAs have been formally constituted. To cover all of Pakistan's irrigated land, watercourseby watercourse, some 100,000WUAs would be needed. Althoughthere is still a long way to go, the creation of these 14,000 organizations - notwithstandingtheir weaknesses, teethingproblems, or various failures and setbacks - is already an extraordinaryaccomplishment. It is a leap forward in asserting users' roles and participationin water management,in purposivelycreating a new social fabric intended to endure, and in mobilizinghuman and material resources for immediateactivities of mutual benefit. The developmentof these new social patterns is vividlyreconstructed and insightfullyexamined by the authorof this study, which informsboth the practitioners who might be interested in replicatingthis developmentand the researchers interested in understandingchange. Controversyand failures have surroundedmany richly financedirrigationprograms which invested only in the physical canal
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