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Organization and Management for Efficient Irrigation Water-Use

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Organization and Management for Efficient Irrigation Water-Use ORGANIZATION AND MANAGEMENT FOR EFFICIENT IRRIGATION WATER-USE: An Empirical Study in the Sudan Doctoral Dissertation submitted for the degree of Doctor Agricultural Sciences of the Faculty of Agricultural Sciences Georg-August-University Göttingen (Germany) by Yasir Khalil born in Alexandria (Egypt) Göttingen, March 1998 D7 1st examiner: Prof. Dr. Dr. Winfried Manig 2rd examiner: Prof. Dr. Dr. Dr. Frithjof Kuhnen Day of the Promotion: May, 14th 1998 ABSTRACT Yasir Khalil: Organization and Management for Efficient Irrigation Water-Use – An Empirical Study in the Sudan Sudan, the largest country in Africa, symbolizes the problems challenging the continent. The most threatening one is food security for an increasing population. Considering the drought conditions that built up in the area – culminating in the mid 1980s – irrigation became a cornerstone to boost food supplies. This sub-sector has historically played a substantial role in the production of food and cash crops in Sudan. However, there is now growing evidence that the opportunities for the further lateral expansion of irrigation schemes will be faced by the limitations of the availability of foreign currency and the availability of water resources. The former is dependent on the performance of the Sudanese economy and the later is, in addition, interdependent with the plans of other countries. Though the first limitation has reached a critical level, it is recognized that water rather than other resources will be the main determinant of irrigation development. Thereby, if Sudanese agriculture is to develop, there is a need to improve the utilization of available water through improving its management and the organizational contexts in which this is practiced. Within this area of interest, the major task of the study has been to map the factors that hinder this goal. The study is divided into two parts. The first deals with the theoretical framework of key concepts and relevant issues. It discusses, however, the different aspects that have an influence on the performance of irrigation systems and emphasizes, in particular, those of technology and the environment. In addition, the meaning and conditions of institutional change are also discussed in detail. The second part of the study, the analytical section, comprises the methodology and the results of field work which has been conducted under two irrigation bureaucracies – the New Halfa Scheme in the eastern part of Sudan, and the Gendettu Scheme in the north. The results of the study stressed the need for a comprehensive development approach which considers all natural resources. Furthermore, within the special reference to the environment of the schemes, it has been found that the political conditions are of particular importance. This result highlights the question as to what extent participation is applicable in bureaucratic irrigation schemes in countries that have similar conditions. The study also comes to the conclusion that irrigation water efficiency has a socio-economic dimension and therefore has to be linked with productivity and profitability. In this connection, modernizing the relevant technologies and sustaining the integration with support institutions are of relevant importance. Consequently, a central conclusion of this study is that the efficiency of water utilization also requires, at the same time, the efficient utilization of other resources and inputs supplied by support institutions. In addition, the absence of tenants’ participation and the dominance of the schemes administrations goals, as representatives of the state, have resulted in a contradictory efficiency; the efficiency of water users vis-à-vis the efficiency of the state. Concerning communication, a yawning gap has been registered between the different actors of the schemes. This focus has tended to direct attention to the role of farmers’ organizations in the articulation between water users and scheme management. The conclusion that could be drawn from this analysis is that farmers’ organizations need to play this role independently. Finally the study stresses that, to achieve the goals for charging for irrigation water, these need to be accompanied by institutional changes. 1 ABSTRACT Yasir Khalil: Organisation und Management zur verbesserten Wassernutzung in der Landwirtschaft des Sudan - eine empirische Studie Der Sudan, das größte Land Afrikas, kann stellvertretend gesehen werden für die Probleme, die den afrikanischen Kontinent bewegen. An erster Stelle ist die Ernährungssicherung für eine steigende Bevölkerungszahl anzusehen. Bei Betrachtung der Dürre-Probleme dieser Region, die ihren Höhepunkt Mitte der 80er Jahre hatten, wird das Thema Bewässerung zunehmend zu einem Pfeiler, wenn es um die Verbesserung der Nahrungsmittelversorgung geht. Dieser Sub-Sektor spielt, historisch gesehen, eine wichtige Rolle für die Produktion von Nahrungsmitteln und landwirtschaftlichen Exportprodukten im Sudan. Jedoch gibt es zunehmende Anzeichen dafür, daß die Ausdehnung der Bewässerungssysteme generell in Konfrontation mit einer beschränkten Verfügbarkeit von Fremdwährung und Wasserressourcen stehen wird. Die erste Beschränkung ist abhängig von der Leistungsfähigkeit der sudanesischen Wirtschaft und die zweite von den Plänen anderer Länder. Da der erste Faktor seinen kritischen Punkt erreicht hat, ist es klar, dass Wasser, und nicht andere Ressourcen, die entscheidende Rolle bei der Entwicklung der Bewässerungssysteme spielen wird. Somit ist es notwendig, wenn die sudanesische Landwirtschaft entwickelt werden soll, das Management der Wassernutzung und die damit verbundenen organisatorischen Rahmenbedingungen zu vervollkommnen. Folglich war es die Hauptaufgabe der Studie, die Faktoren, die dem Ziel einer wirtschaftlichen Wassernutzung hinderlich sind, herauszuarbeiten. Die Studie teilt sich in zwei Abschnitte. Der erste Teil setzt sich mit den theoretischen Rahmenbedingungen relevanter Konzepte und Ansätze auseinander. Es werden die verschiedenen Aspekte, die Einfluß auf die Leistungsfähigkeit von Bewässerungssystemen haben, hervorgehoben. Dabei werden besonders Technologie und Umwelt betont. Zusätzlich werden die Bedeutungen und Bedingungen des Institutionellen Wandels diskutiert. Der zweite Teil der Studie widmet sich der Empirie, d.h. den Methoden und Ergebnissen der Feldforschung. Diese wurde in zwei Bewässerungs-Schemes durchgeführt: New Halfa Scheme in Ostsudan und Gendettu Scheme im Norden des Landes. Die Ergebnisse dieser Studie zeigen auf, daß ein umfassender Entwicklungsansatz alle natürlichen Ressourcen einbeziehen muß. Weiterhin dürfen auch die politischen Verhältnisse im Umfeld der Schemes nicht vernachlässigt werden. Das Ergebnis weist besonders auf die Frage hin, in welchem Ausmaß Partizipation anwendbar ist in den bürokratisch organisierten Bewässerungs-Systemen in Ländern mit ähnlichen Bedingungen. Es konnte festgestellt werden, daß auch die sozio- ökonomische Dimension beachtet werden muß, wenn die Effizienz der Bewässerung betrachtet wird, d.h. Produktivität und Rentabilität müssen in die Kalkulationen miteinbezogen werden. In diesem Zusammenhang ist es von von äußerster Wichtigkeit, der Modernisierung entsprechender Technologien und der Einbeziehung unterstützender Institutionen große Bedeutung zukommen zu lassen. Die zentrale Schlußfolgerung dieser Studie ist also, daß die Effizienz der Wassernutzung auch die gleichzeitige effiziente Nutzung anderer Ressourcen und Inputs, die von zuliefernden Institutionen zur Verfügung gestellt werden, erfordert. Zusätzlich ist anzumerken, daß das Nichtvorhandensein von Pächter-Partizipation und die Vorherrschaft der Interessen der Scheme-Verwaltung, als Repräsentanten des Staates, der Effizienz entgegenwirken, das heißt, daß sich die Effizienz der Wassernutzer und die des Staates diametral gegenüberstehen. Besonders hervorgehoben werden muß die mangelnde Kommunikation zwischen den verschiedenen Beteiligten der Schemes. Dieser Punkt führt die Aufmerksamkeit direkt zur Rolle der Bauernorganisationen als Verbindung zwischen den Wassernutzern und dem Scheme Management. Die Schlussfolgerung, die aus dieser Analyse gezogen werden kann, ist, daß die Bauernorganisationen ihre Aufgaben unabhängig wahrnehmen müssen. Schließlich betont die Studie, daß zur Erreichung der Ziele, die mit der Erhebung von Bewässerungsgebühren verbunden sind, gleichzeitig instutionelle Veränderungen erforderlich sind. 2 ACKNOWLEDGEMENTS I m greatly indebted to Professor Dr. Dr. W. Manig for his presice supervision of this study. I am also indebted to him, as student of irrigation management and organization, because of his rich advises and contribution in the literature of this discipline which enabled me to understand the interdependencies of the study. I am also deeply grateful to Professor Dr. Dr. Dr. F. Kuhnen who gave me the chance to be one of his Ph.D. students, and for his willingness to examine this work. I would like to extend my appreciation to Professor Dr. J. Müller and Professor Dr. H. Meliczek for their academic and human support, specially at a time when continuing this work was almost impossible. I appreciate also the constructive advises given to me in the course of the field study by Professor M. Abd-El-Kadir of Khartoum University. Thanks are also due to innumerable officials of NHAC and NAPC – as well as the farmers and traders of New Halfa and Shendi area. I acknowledge sincerely the friendly assistance of A. Bartelsmeier, R. Ensermu and C.F. Ananda - the symbol of helpfulness and loyalty.
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