Linking Main System Management for Improved Irrigation Management
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LINKING MAIN SYSTEM MANAGEMENT FOR IMPROVED IRRIGATION MANAGEMENT Report of the APO Seminar on Linking Main System Management for Improved Irrigation Management held in Sri Lanka, 3-8 June 2002 (02-AG-GE-SEM-08) This report was edited by Dr. C. M. Wijayaratna, Institutional Development Specialist/Agricultural Economist, Auckland, New Zealand. The opinions expressed in this publication do not reflect the official view of the Asian Productivity Organization. For reproduction of the contents in part or in full, the APO’s prior permission is required. ©Asian Productivity Organization, 2004 CONTENTS Foreword Part I Summary of Findings ....................................................... 1 Part II Resource Papers 1. Issues and Constraints in Linking Main System Management for Improved Irrigation Management……………………………… H. M. Jayathilleke ... 13 2. Measures to Improve Linkage between Main System Management and Farm-level Management…………………………………… M. M. M. Aheeyar ... 17 3. Irrigation Associations and Improved Irrigation Performance… Norman T. Uphoff ... 29 4. Sustainable Irrigation Development………………………………… Ian W. Makin ... 39 5. Role of Public and Private Sectors, NGOs, Water Users’ Associations and Other Stakeholders in Irrigation Management in the 21st Century ………………………………………………………………… C. M. Wijayaratna ... 48 Part III Selected Country Papers 1. Bangladesh………………………………………………………… Roxana Quader ... 69 2. Republic of China…………………………………………………… Ming-Daw Su ... 75 3. India (1)…………………………………………………… Phanish Kumar Sinha ... 81 4. India (2)…………………………………………………………………… Veer Pal ... 94 5. Japan……………………………………………………………… Naoya Fujimoto . 100 6. Republic of Korea………………………………………………… Sang-Ok Chung . 112 7. Malaysia………………………………………………………… Anuar Bin Yahya . 122 8. Pakistan…………………………………………………………… Illahi B. Shaikh . 128 9. Thailand…………………………………………………… Apinon Sonthayanoon . 133 10. Vietnam……………………………………………………………… Tran Viet On . 136 Part IV Appendices 1. List of Participants, Resource Speakers, and Secretariat........................ 145 2. Program of Activities ................................................... 149 SUMMARY OF FINDINGS INTRODUCTION The Seminar on Linking Main System Management for Improved Irrigation Management was held in Colombo from 3 to 8 June 2002 being organized by the Asian Productivity Organization (APO) and hosted by the Government of Sri Lanka. The Ministry of Agriculture and Livestock, Sri Lanka and National Institute of Business Management (NIBM) implemented the program. Fourteen participants from 12 member countries and one observer from the International Water Management Institute and; five resources speakers from USA, New Zealand and Sri Lanka attended the Seminar. The objectives of the Seminar were to: 1) to discuss issues involved in linking main system management with field level management through water users’ associations; and 2) to identify measures that could contribute to improved irrigation management in the APO member countries. The Seminar consisted of the presentation and discussion of resource papers and country papers, as well as field visits to Polonnaruwa. The topics covered by the resource papers were: 1) Issues and Constraints in Linking Main System Management for Improved Irrigation Management; 2) Measures to Improve Linkage between Main System Management and Farm Level Management; 3) Irrigation Associations and Improved Irrigation Performance; 4) Sustainable Irrigation Development; and 5) Role of Public and Private Sectors, NGO’s, Water Users’ Associations and Other Stakeholders in Irrigation Management in the 21st Century. The country papers, on the other hand, focused on the issues and constraints affecting the management of irrigation systems, measures for improving irrigation management performance, particularly in terms of enhancing the linkage between main system management and field level management and future direction of irrigation management in the respective countries. The highlights of the Seminar are presented below. HIGHLIGHTS OF RESOURCE PAPERS Issues and Constraints in Linking Main System Management for Improved Irrigation Management An irrigation system consists of a set of interconnected subsystems linked together both physically and functionally. The linkage is hierarchical and continuous until water is delivered and applied at the farm level by the end-user. Hence, each level of these subsystems is dependent on the other and needs to cater for the next level of operation as best as practicable. Management of irrigation systems involves forecasting irrigation supply likely to be available, estimating irrigation demand, matching supply and demand, scheduling and allocation, harnessing water resources, and distribution in an equitable, efficient, reliable and dependable manner. In addition, the irrigation system needs to be maintained in a reasonably operable condition and all activities need to be monitored and evaluated. In this process, each level of an irrigation system necessarily becomes a management and decision center. However, if the final objectives of irrigation are to be achieved, it is essential that these links are extended up to on-farm level and issues and constraints involved are continuously identified to get a best fit in a complex situation. The main objective of farmers, in the context of countries like Sri Lanka, is to produce minimum level of food for subsistence and then to get the family income increased while the objectives of a farmers’ organization or Water Users’ Association (WUA) managing a subsystem could be equity in water distribution and minimizing conflicts between the communities they serve. On the hand, the objectives of the agency managing the main system would be appropriate water use and efficiency, while the state will have higher level national objectives such as food security, poverty alleviation and so on. The main objectives of other agencies involved such as agricultural agencies could be maximizing agricultural production of a particular crop or crops in the area or in the country. Irrigation systems are therefore expected to fulfill a wide range of objectives, but they are not always necessarily in harmony with the individual farmer’s objectives. - 1 - Sometimes large systems have to carry water over a long distance in earthen canals with a large number of farmers to be served creating a problem of communication. Variation in demand could be unpredictable, for example, due to a sudden rainfall. Return flows and seepage and percolation too cannot be predicted to a level of accuracy desirable at micro level. Moreover, large-scale irrigation schemes are built with a large number of head and flow control structures, and these are sometimes cumbersome to operate and need a large number of trained staff. Instances of tampering with these structures by farmers are not rare. This situation is further aggravated in systems like Mahaweli, which consists of an interlinked network of feeder canals and reservoirs. The operational complexity resulting from shared infrastructure is another factor that governs decisions at farm level. Irrigation management is constrained by the changes in land use and watershed characteristics, increase in population in traditional irrigation areas and resulting land fragmentation, as well as increased intra-sectoral (in sectors such as agriculture) and inter-sectoral demands. The demand for domestic water is on the increase in general all over the country with the increasing incomes and associated general improvement of quality of life. Environmental and ecological issues too are on the increase in most of the river basins with the increased economic activities affecting irrigation systems. Examples are unregulated sand mining in riverbed, unplanned brickmaking on the riverbanks, silting up of reservoirs, and unregulated well construction. Thus, efficiency improvement in irrigated agriculture both at main system and at on-farm level has become an urgent necessity of the day. Effective management of both the main systems and on-farm systems needs accurate and reliable data in time. Further, data and information sharing mechanisms at different levels are also a key issue. New digital technologies such as Global Positioning System (GPS) and Geographical Information Systems (GIS) are needed to be adopted as early as possible as such technologies are now gradually becoming affordable. As mentioned earlier, the irrigation system needs to be maintained at certain level of operability to meet on-farm requirements. The Operation and Maintenance (O&M) budgets made available by the governments are decreasing over the years in real terms while costs are on the increase. Finding ways and means to bridge the gap is vital for the very sustainability of irrigated agricultural systems. Cost-effective mechanization of maintenance activities is one of the strategies now being tried by the Irrigation Department of Sri Lanka. Cost sharing is being tried in different ways, but affordability of farmers needs to be taken into account. Mechanisms for communication and coordination between main system management and on-farm operations were almost non-existent in the past. However, the Participatory Irrigation Management (PIM) practices implemented in Sri Lanka starting from 1978 have paved a way out of these dilemmas. Institutions such as farmer organizations and project management committees allow integration of different disciplines, agencies and participation of different stakeholders in the management. These also allow flow of information