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Water Governance in the Kyrgyz Agricultural Sector: on Its Way to Integrated Water Resource Management?

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Water Governance in the Kyrgyz Agricultural Sector: on Its Way to Integrated Water Resource Management? Water Governance in the Kyrgyz Agricultural Sector German Development Institute (DIE) The German Development Institute is a multidisciplinary research, consultancy, and training institute for Germany’s bilateral development cooperation as well as for multilateral development cooperation. On the basis of independent research, it acts as consultant to public institutions in Germany and abroad on current issues of cooperation between developed and developing countries. In a 9-month training course, the German Development Institute prepares German and European university graduates for careers in the field of development policy. Elke Herrfahrdt, economist, German Development Institute (DIE) E-Mail: [email protected] Martin Kipping, political scientist, Federal Ministry of Economic Cooperation and Development (BMZ) E-Mail: [email protected] Tanja Pickardt, geographer, German Technical Cooperation (GTZ) E-Mail: [email protected] Mathias Polak, political scientist, freelance consultant E-Mail: [email protected] Caroline Rohrer, social anthropologist, Epos Health Consultants E-Mail: [email protected] Carl Felix Wolff, geographer, German Federal Agency for Nature Conservation (BfN) E-Mail: [email protected] Studies Deutsches Institut für Entwicklungspolitik 14 Water governance in the Kyrgyz agricultural sector: on its way to Integrated Water Resource Management? Elke Herrfahrdt Martin Kipping Tanja Pickardt Mathias Polak Caroline Rohrer Carl Felix Wolff Bonn 2006 Studies / Deutsches Institut für Entwicklungspolitik ISSN 1860-0468 Water governance in the Kyrgyz agricultural sector : on its way to Integrated Water Resource Management? / Elke Herrfahrdt …. – Bonn : Dt. Inst. für Entwicklungspolitik, 2006 – (Studies / Deutsches Institut für Entwicklungspolitik ; 14) ISBN 3-889-306-4 © Deutsches Institut für Entwicklungspolitik gGmbH Tulpenfeld 4, 53113 Bonn ℡ +49 (0)228 94927-0 +49 (0)228 94927-130 E-Mail: [email protected] http://www.die-gdi.de Contents Abbreviations Preface Summary 1 Introduction 13 Part A: Research design 19 1 Conceptual framework: normative and analytical concepts 21 1.1 Normative model: Integrated Water Resources Management (IWRM) 21 1.1.1 The eco-system approach: ecological integration 24 1.1.2 Maximizing societal benefits: sectoral integration 27 1.1.3 Managerial principles: regulatory integration 30 1.2 Analytical framework: institutional economics 33 1.2.1 Explaining water governance 35 1.2.2 Explaining change in water governance 38 2 Water governance in Kyrgyzstan 43 2.1 The Soviet legacy 44 2.2 Institutional environment 47 2.2.1 Water legislation 49 2.2.2 Legislation on WUAs 50 2.3 Institutional arrangement 50 2.3.1 Governmental water management organizations 51 2.3.2 Local organizations involved in water governance 57 Part B: Analysis of Kyrgyz water governance 61 3 Ecological integration 63 3.1 Hydrological boundaries 63 3.1.1 Management structure and hydrological boundaries 66 3.1.2 Groundwater – surface water interaction 73 3.2 Integration of water quantity and water quality 74 3.2.1 Management of water quality 76 3.2.2 Legal provisions on the protection of water quality 78 3.2.3 Monitoring of water quality 79 3.3 Water-land interaction 81 3.3.1 Waterlogging and salinization 82 3.3.2 Soil erosion 88 4 Sectoral integration 91 4.1 …of ecological externalities 91 4.1.1 Legal responses to environmental problems 91 4.1.2 Nature conservation in practice 93 4.2 …of economic externalities 96 4.2.1 Inclusive water allocation 97 4.2.2 Financial sustainability 101 4.3 …of social externalities 116 4.3.1 Poverty 116 4.3.2 Health 121 4.3.3 Gender 123 4.3.4 Conflict management 126 5 Regulatory integration 131 5.1 Decentralization and participation 131 5.1.1 Division of labor according to the principle of subsidiarity 132 5.1.2 Bottom-up approaches to water management 144 5.2 Information and communication 152 5.2.1 Information on individual water use 152 5.2.2 Information on needs of all users affected by management decisions 154 5.2.3 Reliability of water quotas to be delivered by authorities 156 5.3 Demand management 158 5.3.1 Volumetric water fees 158 5.3.2 Recognition of different crop water needs 160 5.3.3 Public initiatives to reduce water losses 162 6 Conclusion 164 6.1 Varying degrees of progress on different components of IWRM 165 6.2 Reasons for varying degrees of progress 167 6.2.1 Objective reasons for change 167 6.2.2 Political articulation and actual reform program 167 6.2.3 Institutional change 170 6.2.4 Behavioral change and mind change 172 6.3 Main recommendations 175 6.4 Resume and outlook 179 Bibliography 181 Glossary 189 Appendix 191 Boxes Box 1: The engineering approach to water management 22 Box 2: Kyrgyz water resources and their use 42 Box 3: The Kyrgyz agricultural sector 43 Box 4: Traditional water management in Central Asia 46 Box 5: The Kyrgyz land reform 47 Box 6: The administrative structure of the Kyrgyz Republic 51 Box 7: The potential of Kyrgyz WUAs for promoting IWRM principles 56 Box 8: International water management 67 Box 9: Case study: consequences of disregarding hydrological boundaries 69 Box 10: Inappropriate use of fertilizer 75 Box 11: Selected donor-financed projects 104 Box 12: Causes and consequences of rural poverty in Kyrgyzstan 117 Box 13: Dispute management organizations and their relevance 127 Box 14: Case study: suboptimal solution to water theft from the Nurgaziev canal 129 Figures Figure 1: The IWRM Pyramid 25 Figure 2: Water governance 34 Figure 3: Subjective model of institutional change 40 Figure 4: Institutional arrangement of Kyrgyz water governance 53 Figure 5: Stakeholders involved in local water management 55 Figure 6: Organizational structure of WUAs, as set out in the 2002 Law on WUAs 58 Figure 7: Hydrographical map of Kyrgyzstan 64 Figure 8: Vicious circle in Kyrgyz irrigation services 112 Figure 9: Subjective model of change, adapted to the Kyrgyz irrigation sector 168 Figure 10: Map of the Kyrgyz Republic with selected research areas 194 Tables Table 1: Major river basins in the Kyrgyz Republic 65 Table 2: World Bank estimates of indirect transfers associated with water use for irrigation 107 Table 3: Interviews conducted, by stakeholder groups 192 Abbreviations ALRF Agricultural Land Redistribution Fund ADB Asian Development Bank CAMP Central Asian Mountain Partnership CASE Center for Social and Economic Research DWM Department of Water Management DWU Drinking Water Union GA General assembly (of WUAs) GDP Gross domestic product GWP Global Water Partnership FAO Food and Agriculture Organization of the United Nations GDP Gross domestic product ICWC Interstate Coordination Water Commission of Central Asia ISF Irrigation service fee IWMI International Water Management Institute IWRM Integrated Water Resources Management MAWMPI Ministry of Agriculture, Water Management and Processing Industry MEES Ministry of Ecology and Emergency Situations NGO Non-governmental organization O&M Operation and maintenance RSWR Renewable surface water resources SDC Swiss Development Cooperation TES Technical Extension Service UNECE United Nations Economic Commission for Europe UOS Upravleniye oroshaemyh system USAID United States Agency for International Development WSU WUA Support Unit WUA Water User Association Preface The present study on ‘Water governance in the Kyrgyz agricultural sector’ was conducted within the framework of the postgraduate training course at the German Development Institute (DIE) from November 2004 to Mai 2005. The team consisted of five postgraduate students with various academic backgrounds. Notwithstanding the political events around the 24th March and the over- throw of President Akaev and his government, the field research was for the most part completed as planned. Nevertheless, the workshop originally planned to present the main findings to important stakeholders in Bishkek had to be cancelled. The study benefited hugely from the support and contributions of various persons and organizations. First and foremost, the authors would like to emphasize the contribution of our counterpart, the Center for Social and Economic Research in Kyrgyzstan (CASE), in the preparation and realiza- tion of the research. Especially, we would like to stress the commitment of one CASE team member, Aziz Atamanov, who provided valuable organ- izational support, thematic input, and advice. We would particularly like to thank our translators Meerim Matkulova and Rinat Kurmankulov. They not only contributed their excellent language skills and organizational talent but also provided valuable insights into Kyrgyz culture and thinking. We received much assistance from various other organizations. Among them are the Faculty for Hydro-Melioration and Soil Amelioration at the Kyrgyz Agrarian University, and here especially Nataliya Ivanova and Bakyt Askaraliev, and the non governmental organization (NGO) RDC- Elet, especially Jyldyz Turdugulova and Bermet Ubaidillaeva. We are very grateful for their help in establishing contacts, setting up interviews as well as for their provision of thematic input. We are also grateful for feedback and advice of various kinds from colleagues at the DIE, especially Susanne Neubert, but also Jörn Grävingholt, Matthias Krause, and Imme Scholz. And last but not least, we would like to thank all our interview partners in Kyrgyzstan and Uzbekistan. We would like to thank them for their interest and their patience as well as for the time and insights they shared with us. Most of the findings of this project result from the valuable information they contributed. Чоң рахмат! Bonn, December 2005 Water governance in the Kyrgyz agricultural sector Summary In many regions of the world, water problems are on the rise. To prevent conflicts, water allocation and use, and in particular the role of agriculture as a major water user, have become important topics in the development discourse in recent years. With the momentum of several water confer- ences in the 1990s and in accordance with the paradigm of sustainable development a new model of water management, Integrated Water Re- sources Management (IWRM), has been developed.
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