Rochester Institute of Technology RIT Scholar Works Theses 2004 Institutional development of Water Users Associations in Kyrgyzstan Aida Alymbaeva Follow this and additional works at: https://scholarworks.rit.edu/theses Recommended Citation Alymbaeva, Aida, "Institutional development of Water Users Associations in Kyrgyzstan" (2004). Thesis. Rochester Institute of Technology. Accessed from This Thesis is brought to you for free and open access by RIT Scholar Works. It has been accepted for inclusion in Theses by an authorized administrator of RIT Scholar Works. For more information, please contact [email protected]. Institutional Development of Water Users Associations in Kyrgyzstan Masters in Public Policy Thesis Submitted in Fulfillment of the Graduation Requirements for the College of Liberal Artsillepartment of Public Policy at the Rochester Institute of Technology (RIT) Rochester, New York February 2004 Submitted by: A. Alymbaeva Aida Alymbaeva Accepted by: James Winebrake Associate Professor James Winebrake (Signature) (Date) Public Policy Department, RIT Daene McKinney Professor Daene McKinney (Signature) (Date) Civil Engineering Department University of Texas at Austin William C. Larsen Professor Bill Larsen (Signature) (Date) Civil Engineering Department, RIT 1 Thesis/Dissertation Author Permission Statement Title o~or dissertati,on: 'J Mt::i' t ~ () nM !J-f.4/e --I D~ P!- Wuer U{I::.rs .Jj J:IOtJ. fIfi (ht__ S=- v In- Name of author: fi T~ JJ:t fj/ltfi tlR-J/tL Degree: JU/.i /11- ~ C {/ {)1if!jl- Program: J!iUl-tic '0 -td c '-L College: Li.!tfrtld ~J I understand that I must submit a print copy of my thesis or dissertation to the RIT Archives, per current RIT guidelines for the completion of my degree. I hereby grant to the Rochester Institute of Technology and its agents the non-exclusive license to archive and make accessible my thesis or dissertation in whole or in part in all forms of media in perpetuity _I retain all other ownership rights to the copyright of the thesis or dissertation. I also retain the right to use in future works (such as articles or books) all or part of this thesis or dissertation. Print Reproduction Permission Granted: I, .J).L~ ,}}L~tL , hereby grant permission to the Rochester Institute Technology to reprodlJ{e my print thesis or dissertation in whole or in part. Any reproduction will not be for commercial use or profit. d Signature of Author: A i a A IY mba eva Date: -ftz -I,/;2jN)LJ Print Reproduction Permission Denied: I, , hereby deny permission to the RIT Library of the Rochester Institute of Technology to reproduce my print thesis or dissertation in whole or in part. Signature of Author: _________________ Date: _____ Abstract Irrigation is of great importance for the agriculturally-predominant country of Kyrgyzstan, and the adequate operation and maintenance (O&M) of irrigation systems is required to support agricultural productivity in the country. A process of irrigation management transfer from the government to farm-based Water Users Associations (WUAs) has been pursued in the country for about a decade, but the results of institutionalization of WUAs are mixed. This thesis aims to explore the factors enabling the development of WUAs to manage O&M of irrigation infrastructure and ensure equitable and reliable water distribution to farmers. The research results show that WUAs are still too institutionally and financially fragile to secure the long-term physical sustainability of on-farm irrigation structures and reliable water distribution. The absence ofthe rule of law, financial and management incapability of WUAs, ignorance of water users about WUAs and their mandate, inactive participation of farmers and their lack of commitment to contribute to organizational initiatives, among other factors, are concluded to be core elements jeopardizing the development of WUAs. Based on this analysis, recommendations for sustainable development of these farm-based water management organizations are provided. Acknowledgements I wish to thank the Edmund S. Muskie/Freedom Support Act Graduate Fellowship Program and College of Liberal Arts of Rochester Institute of Technology for provision of funds to undertake this research. I am particularly grateful to Associate Professor James Winebrake of Rochester Institute of Technology for his advice and support in this research. My appreciation also goes to the staff of On-Farm Irrigation Management Project of the World Bank in Kyrgyzstan for assistance in the arrangement of my field trip. TABLE OF CONTENTS CHAPTER 1 : INTRODUCTION 7 1.1 background 7 1.2 Irrigated land and water resources 10 1.3 Conclusion 13 CHAPTER 2: IRRIGATION MANAGEMENT 14 2.1 Irrigation management during the Soviet times 14 2.2 Post Soviet irrigation management 16 2.3 Institutionalization of WUAs and development of legal framework for WUAs 20 2.4 Conclusion 29 CHAPTER 3: RESEARCH METHODOLOGY 31 3.1 Research Question 31 3.2 Research Approach 34 3.3 Data Collection 37 3.4 Conclusion 38 CHAPTER 4: RESEARCH RESULTS 40 4.1 Structure of the Data Analysis 40 4.2 Legal Performance 40 4.3 Financial Performance 52 4.4 Operational Performance 65 4.5 Organizational Performance 74 4.6 Inter-Institutional Performance 89 4.7 Overall Conclusion 95 CHAPTER 5: RECOMMENDATIONS 99 5.1 Presentation of Recommendations 99 5.2 Recommendations to Improve Legal Performance 99 5.3 Recommendations to Improve Financial Performance 107 5 .4 Recommendations to Improve Operational Performance 115 5 . 5 Recommendations to Improve Organizational Performance 121 5.6 Recommendations to Improve Inter-Institutional Performance 128 CHAPTER 6: CONCLUSIONS 131 6.1 Conclusions 131 6.2 Key Issues for Future Research 137 REFERENCES: 139 LIST OF FIGURES 142 LIST OF TABLES 143 Annex 1. Survey Form -Managers of WUAs 144 Annex 2. Survey Form - Members of WUAs 152 TERMINOLOGY AND ACRONYMS TERMINOLOGY Kolkhoz Cooperative Farm Operated during the Soviet Times Minvodkhoz Ministry ofWater Resources during the Soviet Union Oblvodkhoz Province Water Management Unit Raivodkhoz District Water Management Unit Representative Assembly Governing Board of Water User Associations (WUAs) Rouble Currency ofthe Soviet Union Som Currency of Kyrgyzstan Sovkhoz State Farm Operated during the Soviet Times Village Council Village Government Authority WUA Support Unit Government Agency designed to Support WUAs ACRONYMS ADB Asian Development Report CDF Comprehensive Development Framework CIS Commonwealth of Independent States GDP Gross Domestic Product I&D Irrigation and Drainage EVIT Irrigation Management Transfer MAWR Ministry ofAgriculture, Water Resources and Agro- Processing in Kyrgyzstan NPRS National Poverty Reduction Strategy O&M Operation and Maintenance or Operate and Maintain WB The World Bank WUA Water User Association CHAPTER 1: INTRODUCTION 1.1 Background Kyrgyzstan is a landlocked country located in Central Asia. Kyrgyzstan became an independent country in 1991 following the collapse of the Soviet Union. Since that time, the country has embarked on massive socio-economic and political reforms to place the country onto a democracy and market-oriented economy. The results ofthese reforms have been mixed. Figure 1.1: Map of Kyrgyzstan '"<<.>-'' Pakistan Source: www.askasia.org/image/maps/kyrgyzl . htm The slow growth of industrial and service sectors, and the lack of diversified natural resources in the country, except water and poorly developed non-ferrous metal reserves, make the national economy heavily reliant on agriculture. In fact, agriculture has been the core economic sector of Kyrgyzstan since its break-up from the Soviet Union. The agricultural sector has consistently accounted for around 40% of GDP; generating 36.8% of GDP in 2000, 37.3% in 2001 and 38.6% in 2002 (WB, 2003). The interrelation between the national economy and agriculture is presented in Figure 1 .2 depicting the GDP growth trend and the output rate in agriculture from 1995 to 2003. Figure 1.2: Agriculture and GDP Growth Trends, 1995-2003 20 15 10 *> 01 ** C3 05 5 JS +* o - 0 \m 1996 1997 1998 1999 2000 2001 2002 2003 -5 J -10 Year -? GDP Growth (%, in constant prices) -* Agriculture growth Source: Asian Development Bank, www.adb.org/Documents/Books/Key_Indicators/2003/pdf/KGZ.pdf Agriculture also remains one of the key export sectors, contributing 20.45% of all exports from 1995 to 2002. Furthermore, agriculture employs almost half of the population in the country, particularly in rural areas where two-thirds of the population resides; the country has a population of five million people. The employment rate in the agricultural sector rose from 32.7% in 1985 to 53.2% in 2001, as shown in Table 1.1, because other sectors of the national economy did not create alternative jobs. However, the income from farming remains very low. Approximately 48% of the total population live below the national poverty line, and the GDP per capita for 2002 was one of the lowest among the Commonwealth of Independent States (CIS), declining from USD1,550 in 1991 to USD290 in 2002 (in real dollars). Table 1. 1: Employment Rate in Agricultural Sector, 1985-2001 Year 1985 1990 1995 1998 1999 2000 2001 Employed in Agriculture (out of total population) 32.7% 32.7% 46.9% 49.1% 52.4% 53.1% 53.2% Source: Kyrgyz Statistics Department, www.stat-gvc.bishkek.su/Rus/Database/tabl2.xls The development of agriculture is a government priority, as it is expected to drive the country toward economic recovery and future growth. Kyrgyzstan is planning to expand its agricultural production to reduce imports and increase foreign exchange. In this light, the National Comprehensive Development Framework Strategy for 2002-2010, a long-term development program, outlines that development of agriculture and agribusiness should make the national growth process progressive and broad-based (CDF, 2001). However, the agricultural sector has been experiencing a number of challenges. The transition from central planning to privatization of collective and state farms as well as processing enterprises has resulted in the dislocation of elements of agricultural production, processing, and marketing systems.