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Rural Development Committ 8 2 4 MELL UNIVERSITY •-•:• ( y? ; .j RURAL DEVELOPMENT COMMITT Special Series on Resource Management SEASON AND STRATEGY: The Changing Organization of the Rural Water Sector In Botswana Emery Roe Louise Fortmann RM No. 1 2253 MONOGRAPH SERIES BIBLIOGRAPHY SERIES it I Making Green Revolution: The Politics of Agricultural if I Participation at the Local Level: A Working Bibliography John Development in China Benedict Stavis, $6.00, 287 pp. Cohen, Gladys Culagovski, Norman Uphoff and Diane Wolf, $4.50, 125 pp. #2 Rural Development Participation: Concepts and Measures for Project Design, Implementation and Evaluation John Cohen and Norman Uphoff, $7.00, 317 pp. SPECIAL SERIES ON RURAL LOCAL GOVERNMENT #3 Feasibility and Application of Rural Development Participation: A State-of-the-Art Paper Norman Uphoff, John Cohen and #'s 1 - 18 are available in three volumes. Volumes I & II are Arthur Goldsmith, $7.00, 338 pp. currently available, refer to page 4 under RDC Books for contents of volumes I & II. #4 The Political Economy of Participation in Local Development Programs: Short-Term Impasse and Long-Term Change in South #19 Local Organization for Rural Development: Analysis of Asian Asia and the United States from the 1950s to the 1970s Harry Experience Norman Uphoff and Milton Esman, $5.00, 117 pp. W. Blair, $6.00, 196 pp. #5 Women's Informal Associations and the Organizational Capacity for Development Kathryn March and Rachelle Taqqu, $6.00, RDC BOOKS 148 pp. Power, Politics and Progress: Social Change in Rural Peru by William #6 Peasant Participation in Costa Rica's Agrarian Reform: A View Foote Whyte and Giorgio Alberti $4.00, 307 pp., hardcover (published from Below Mitchell A. Seligson, $6.00, 150 pp. by Elsevier Scientific Publishing Company, Inc,. New York, 1976) Organizational Strategies for Small Farm Development in Jamaica edited by Harvey Blustain and Elsie LaFranc $8.00, 200 pp., LANDLESSNESS AND NEAR-LANDLESSNE5S SERIES (published with Institute for Social and Economic Research, University of the West Indies, Mona) #1 Landlessness and Near-Landlessness in Developing Countries Milton 3. Esman, $4.00, 71 pp. Rural Development and Local Organization in Asia, Volume I: Introduction and South Asia edited by Norman Uphoff $15.00, 360 pp., #2 Landless Peasants and Rural Poverty in Selected Asian hardcover (published by Macmillan, New Delhi, 1982). This book Coiaitries David Rosenberg and Jean Rosenberg, $4.00, 108 pp. includes the updated Indian, Pakistan and Bangladesh case studies from the Special Series on Rural Local Government, as well as a new #3 Landless Peasants and Rural Poverty in Indonesia and the Sri Lanka case study by Norman Üphoff and R.D. Wanigaratne. Can Philippines David Rosenberg and Jean Rosenberg, $4.00, be ordered directly from Macmillan, New Delhi. 133 pp. Rural Development and Local Organization in Asia. Volume II: East #4 Landlessness and Rural Poverty in Latin America: Conditions, Asia edited by Norman T. Uphoff $13.00, 360 pp., hardcover Trends and Policies Affecting Income and Employment Cheryl (published by Macmillan, New Delhi, 1982). This book includes Lassen, $4.30, 1S7 pp. updated Chinese, Taiwan, South Korean and Japanese case studies from the Special Series on Rural Local Government. Can be ordered #5 Distribution of Land, Employment and Income in Rural Egypt directly from Macmillan, New Delhi. Iliya Harik with Susan Randolph, $4.50, 166 pp. #6 Reaching the Assetless Poor: Projects and Strategies for Their ** Publications listed as "forthcoming" may be ordered along with Self-Reliant Development Cheryl Lassen, $4.00, 68 pp. currently available publications. Please do not include prepayment for a "forthcoming" publication. You will be billed for it when the publication becomes available, SPECIAL SERIES ON AGRICULTURE RESEARCH AND EXTENSION it I Participatory Approaches to Agricultural Research and Development: A State-of-the-Art Paper by William F. Whyte, $5.00, 111 pp. 1981 #3 ICTA in Guatemala: The Evolution of a New Model for Agricultural Research and Development Lynn Gostyla and William F. Whyte, $4.00, 48 pp. #4 Peasant Innovation and Diffusion of Agricultural Technology in China Mary Sheridan, $4.50, 83 pp. SEASON AND STRATEGY: THE CHANGING ORGANIZATION OF THE RURAL WATER SECTOR IN BOTSWANA Emery Roe Louise Fortmann •;-;• ,-.0 j:^ e:ù. í-ii'/.l -'i 2 = •: Use Rural Development Committee Center for International Studies Cornell University Copyright, Cornell University Center for International Studies Rural Development Committee 1982 Published by the Rural Development Committee, Center for International Studies, 170 Uris Hall, Cornell University, Ithaca, New York 14853. September, 1982. $6.00 Dedicated to the memory of BOTSANG MOSIENYANE First Woman Head of the Botswana Animal Production Research Unit TABLE OF CONTENTS Acknowledgments vii List of Tables and Figures xi Glossary of Terms .. xiv INTRODUCTION 1 Initial Definitions and Descriptions 1 Present-Day Institutions and Officials Involved in the Rural Water Sector of Eastern Botswana 13 Summary 30 THE HOUSEHOLD WATER USE SYSTEM 33 The Relationship Between Water Point Type and the Household Resource Commitment to Water Point Use 33 Seasonality and the Household Water Use System 38 The Household's Fallback. Strategy for Ensuring a Reliable Water Supply 38 Patterns of Household Water Use 50 The Effect of Specific Factors on Household Use of and Access to Water Points 59 Some Lessons 66 Summary 74 PARTICIPATION IN THE MANAGEMENT OF WATER: A CASE STUDY OF DAM GROUPS 81 The Road to Participation in Dam Management 81 The 1974 Dam and Haffir Building Policy 83 What Dam Groups Do 84 Why People Do What They Do 92 Alternatives 96 Groups, Management and Participation: Some Lessons 96 Summary 101 IV. GOVERNMENT PERCEPTIONS OF RESOURCE MANAGEMENT IN COMMUNAL AREAS: A CASE STUDY OF THE MINISTRY OF AGRICULTURE 103 Bureaucratic Explanations for the Lack of Management at Government Dams 104 Differing Perceptions 106 Reasons for Official Perceptions: Five Institutional Biases 116 Summary 121 V. RANGE AND WATER MANAGEMENT AT THE DISTRICT LEVEL: A CASE STUDY OF LAND BOARDS 123 Land Boards in Rural Water Management 124 Background Information on the Eight Kilometer Rule for Spacing of Livestock Watering Points 125 Application by Land Boards of the Eight Kilometer Spacing Rule 129 Why Land Boards Find it Difficult to Apply the Eight Kilometer Rule Uniformly: Technical and Organizational Problems 135 Why Land Boards Find it Difficult to Apply the Eight Kilometer Rule Uniformly: Institutional Decision-Making Dynamics 142 Land Boards and the Problem of Community Control of Land and Water Resources 148 VI. THE RURAL WATER SECTOR IN PERSPECTIVE 167 The Overall Importance of Seasonality 167 The Spatial Hierarchy in Local-Level Rural Water Use and Management 168 The Organizational Base of the Rural Water Sector 176 EPILOGUE 191 APPENDIX 1 Ecological and Seasonal Factors in Botswana Agriculture: A Review of the Literature 195 APPENDIX 2 Definitions of Water Point Physical Types 227 APPENDIX 3 Survey Methods 229 APPENDIX 4 Application Form for Construction of Haffir and Dam 235 APPENDIX 5 Possible Government Programs for Improved Local-Level Management of Communal Range and Water Resources 237 BIBLIOGRAPHY 255 VI ACKNOWLEDGMENTS First and foremost, Norman Uphoff of Cornell University must be thanked. Editor, and at all times colleague and synthesizer, he has shepherded this monograph through three major revisions for which we and the readers are in his considerable debt. As each of the following pages indicates, either by citation or in between the lines, we owe Charles Bailey, the third full-time member of the Water Points Survey team, a debt of gratitude as well. Charles' high standards of professionalism and humor were evident at every stage of the Survey and his insights helped to shape our thinking in Chapters II and HI. Much of the readability of Chapters HI and IV is due to Brian Egner's firm hand and the insights of Jeff Rom m, Department of Forestry, University of California at Berkeley. Chapter V has benefited from the challenges made to its earlier versions by John Comaroff, Pauline Peters, Susan Wynne, and Joan Atherton. We credit Janet Sternberg-Costa and Susan Garey with giving us the wholly mistaken impression that a word processor finds it easy both to read our scribbled notes as well as to type, re-type, and re-re-type our drafts. To Barbara Williams Smith was left the onerous task of managing the production of the monograph in a finished form at Cornell. Much of this monograph is based on two periods of fieldwork in Botswana: the Ministry of Agriculture's Water Points Survey (October, 1979-July, 1980), the results of which were published in Fortmann and Roe (1981) and the Ministry of Local Government and Lands' survey of land board policies for allocating water points in lands areas (February-May, 1981), the recommendations of which were published in Roe and Fortmann (1981). Stephen Sandford published an earlier version of Chapter HI in the Overseas Development Institute's Pastoral Network Paper series (No. 12b; July, 1981). This research was funded in part by the Government of Botswana and by U.S. Agency for International Development contract (AID/DSAN-C-0060) with the Center for International Studies, Cornell University. The views expressed in this monograph do not necessarily reflect those of USAID, Cornell's Rural Development Committee, or the Government of Botswana. It is fast becoming a commonplace in acknowledgements to thank "those whose names are too numerous to mention." Our list of names is numerous too, but these persons all deserve mention for their assistance in the Botswana research. A special thanks must be given to L. Cohen and J. Pielemeier, Director and Assistant Director of USAID/Botswana, for their consistent support of our fieldwork. They are the polar opposites of whatever negative stereotypes one may have about USAID bureaucrats.
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