建立灌区农民用水者协会的探讨

建立农民用水者协会（ＷＵＡ），国家将支、分渠系灌溉工程的使用与管理权移交给农民，这符合我国政府关于水利工程分级管理的方针政策，对促进灌区工程体制改革，适应社会主义市场经济新要求，实现灌区自我维护，自我发展，经济自立，均具有较大的实践意义。１９９５年４月，湖北省人民政府办公厅３３号文同意在湖北省世行贷款项目区内开展经济自立灌溉区试点工作，并将漳河水库三干渠三分干灌区首批列入试点，在省世行贷款水利项目办公室和荆门市人民政府领导和支持下，通过一年的试点工作实践，先后组建了１１个农民用水者协会，并开始试运行。作者就组建农民用水者协会过程中涉及的有关问题从理论上进行了初步总结。     

灌区用水者协会的水权探讨

建立灌区用水者协会的水权制度，对明晰用水者协会的产权制度的有着重要的作用。在对水权、区域水权、初试水权论述的基础上，对灌区用水者协会的水权进行了探讨。用水者协会的水权是农业水权中的灌溉水权，是由其所辖灌溉工程决定的、灌区管理单位（或供水公司）移交（或转移）的灌溉水的权利，包括占有权、支配权、使用权和收益权。用水者协会的水权的特征主要表现为水的所有权为国家所有，其占有权、支配权、使用权和收益权为用水者协会集体所有，协会水权经灌溉工程产权移交后产生，并具有初试水权的特性。灌区用水者协会的水权量一般用水量、水权面积表示。     

Evaluating planning and delivery performance of Water User Associations (WUAs) in Osh Province, Kyrgyzstan

The primary objective of an irrigation organization is to provide efficient and effective management of water resources to achieve enhanced agricultural production. Performance assessment studies provide a tool to evaluate and promote this objective. The study examines the existing planning procedures and assesses irrigation performance of four Water User Associations (WUAs) located in Osh Province, Kyrgyzstan. Performance was evaluated using indicators of adequacy, efficiency, dependability and equity. Indicators were calculated for each irrigation season over the period 2003 to 2007. In general, all WUAs were found to be strong in terms of adequacy and efficiency standards. However, performance with respect to dependability and equity was poor. The results suggest that more effort is needed to improve temporal uniformity and equity in water distribution. In order to achieve this, estimations of irrigation requirements by WUA managers needs to be improved and mechanisms developed to request water in quantities, which are needed to maintain equity across the WUA outlets and among water users. The study concludes that the establishment of WUAs in Kyrgyzstan has helped to address the problem of water distribution and allocation among a large number of farmers. However, further training of farmers and managers is required to build their capacity to share water and ensure equity among users particularly during periods of less than optimal water supply. The findings of this research suggest that application of a pre-determined set of indicators can be a useful and cost effective tool to measure the performance of WUAs. This is particularly important for Central Asia where the performance of the recently established and state initiated WUAs to replace former collective farms is now a key element in future sustainable water management. The study identified uncertainties in the estimation of WUA water demands based on previous methods and suggests more attention and care required in calculating water requirements.     

Negotiating participatory irrigation management in the Indian Himalayas

Participatory irrigation management (PIM) reforms are implemented in India to facilitate farmers’ participation in irrigation management, through water user groups. Although thousands of user groups have been formed, a closer examination reveals inefficient water use, social power capture by rural elites in the name of participation, inadequate support from government institutions and government's inability to alleviate poverty. Currently, there is inadequate understanding of the linkage between socio-cultural, institutional and ecological factors affecting the outcome of the PIM reforms in India. Drawing from a case study village in the Shiwalik region of the Indian Himalayas, the paper identifies the role of diverse actors to exploit historic and ecological factors to derail the PIM reforms to frame water management problems. Using a combination of research methods and with application of a Bayesian network, the paper explores the inter-linkages between socio-cultural, institutional and ecological factors in derailing the PIM reforms. The paper reveals that PIM policies are never implemented, but integrated through the negotiation with other diverse policies and socio-cultural settings in (re)shaping water resources management. The analysis demonstrates that water is managed by multifaceted governance arrangements. In this governance arrangement state-centric or market-oriented or community-centered institutional arrangements are not superior to each other, rather they incrementally and cumulatively superimpose to (re)shape water resources management. In this process, integration represents a complex blend of statutory and socially embedded actors bringing with them diverse rules to negotiate, along with contextual factors. The findings call for laying out broad principles/ideologies in the policy statements of the statutory public actors that allow other actors to integrate, adapt and make policy processes dynamic. To facilitate this processes, the paper calls for statutory public actors to regulate water distribution, build capacity of actors and offer diverse forums for actors share and debate on the available information to take informed water-related decisions for a sustainable future.     

Assessing the performance of participatory irrigation management over time: A case study from Turkey

In many countries today, irrigation systems have been transferred to the water user associations (WUAs). Accordingly, it is believed that the performance of the irrigation systems is dependent on the performance of the WUAs.In this study, the performance of participatory irrigation management (PIM) over time is assessed with regard to the Kestel WUA serving a wide area of Turkey's Aegean coast. Data relating to the WUA is obtained from both the State Hydraulic Works and WUAs’ own records. In addition, two surveys have been carried out with the members of the WUA with an 8-year interval between them. Data have been analyzed within the framework of selected irrigation performance criteria and indicators. The non-parametric Mann-Whitney U test was used to compare the perceptions of the farmers on the WUA at different survey periods. A Logit model was estimated to evaluate the relationship between the irrigation problems and the level of satisfaction from the WUA.The performance of the WUA with the indicators of utility, productivity, sustainability and financial efficiency was found to be positive; while the performance of adequacy was identified as poor. The farmers were generally satisfied of the WUA's operation, with their level of satisfaction improving over time. On the other hand, the farmers were not fully convinced that they had input with the system management. The initial design of the channel system and its maintenance were identified to be the key factors affecting user satisfaction.Overall, the Kestel WUA may be considered a successful example, thus supporting a promising future for PIM. Yet improved control and farmer education is needed for a superior performance of all indicators; and further enhanced farmer participation in management should be achieved in order to raise the level of farmer satisfaction.     

Irrigation reform in Kyrgyzstan and Tajikistan

This paper is to challenge the widespread perception of irrigation management as a purely technical system based on rational decision-making and implementation. It builds on a case study of Tajikistan and Kyrgyzstan, two transitional developing countries in Central Asia. Both countries are characterized by a highly unsustainable water use. An institutional reform of irrigation management is conducted to make it sustainable (through efficiency), market-oriented (through cost-recovery, less state interference), and democratic (through decentralization, user participation). Main tools are the establishment of Water User Associations (WUAs) and the introduction of irrigation service fees (ISF). However, the mainly donor-driven reforms did not meet their objectives so far. The research is based on expert interviews and a case study of one WUA in each country. The study builds on a neo-institutionalist approach by analyzing the role institutions (defined as formal as well as informal rules) play in shaping actors perceptions, choices and strategies. The paper argues that obstacles to reform are rooted in two main aspects: (1) The institutional environment in agriculture and in local governance does not provide the necessary incentives and conditions for the reform to become effective. Hence newly established formal rules are not perceived as legitimate and are undermined by informal ones. (2) WUAs as new organizations are – in a process of “institutional bricolage” – incorporated in existing societal and political institutions.     

Water allocation and management in an emerging spate irrigation system in Makanya catchment, Tanzania

Although spate irrigation systems are risk-prone, they can be an important component for livelihood security in semi-arid areas. Spate uses water (flood water), which upstream users often do not require, as rainfall during these periods is more than sufficient. The use of this flood water for spate irrigation is therefore a good opportunity to convert water with a low opportunity cost to high value water. As more rivers are closing, due to socio-economic and climate changes, spate irrigation may become increasingly relevant in semi-arid areas. Spate irrigation systems pose institutional and technical challenges: collective action is challenged by complex upstream-downstream interactions between users within the system, and the high labour demands for regular reconstruction of temporary diversion weirs and intake structures. This paper describes a spate irrigation system in Makanya village, Tanzania that emerged in response to increased upstream water use. We use three of the four dimensions (hydrological, hydraulic and sociological) of spate irrigation proposed by Van Steenbergen (1997) to assess the Makanya spate irrigation system. The Makanya spate irrigation system has an organisational structure that is similar to the canal irrigation (furrow) committees located upstream, and effectively deals with the institutional demands of managing water in spate irrigation systems. Water allocation is reminiscent to the water sharing arrangements existing in the full irrigation system, which previously was in place at the site and in the high- and midlands of the Makanya catchment and therefore set this system apart from the traditional spate irrigation practice elsewhere. Technically, a major challenge is the reconstruction of the head works after each flood. Another aspect is the changes in the river bed. Flash floods carry sediments that deposit on the fields, raising the elevation of the irrigated land every year and making it increasingly difficult for the river water to enter the plots. Improving system efficiency through modernisation of the diversion and distribution structures in this case is not feasible due to the huge amounts of sediments delivered to the system each year. Instead investments in conjunctive use of groundwater could be the solution because it involves a relatively small intervention, minimises the physical disturbance of the system, and therefore is likely to respect the existing locally developed water management arrangements.     

基于平衡计分卡的农田水利设施管护绩效指标的设定与评价——以农民用水户协会为分析对象

管护机制逐渐成为影响农田水利设施持续应用的重要内容,不断提升设施管护绩效对推进农业现代化具有重要意义。凭借便捷性和时效性的特点,农民用水户协会在水利设施管护中的作用不断凸显,但其会员服务能力、管护组织能力还有待提高。以平衡计分卡为架构标准,从管护效能、会员服务、内部管理、学习与发展4个方面对农民用水户协会参与农田水利设施管护的绩效进行评价,有利于提升用水户协会的设施管护能力,促进协会自身的战略发展,以期对农村基础设施建设有所裨益。     

Introduction of Irrigation Service Fee (ISF) in Indonesia: Institutional development in action for resources management

The inability to properly maintain irrigation systems over time forced the Government of Indonesia (GOI) to seek cost recovery from water users through introduction of an irrigation service fee. The plan is to introduce this fee in all of the technical irrigation systems of Indonesia, covering about 4 million hectares, over a 12 year period. Design and Introduction of this service fee in 4 pilot areas of the 4 major rice producing provinces (West, Central and East Java, and South Sulawesi) during 1989–1991 has shown that users are willing to pay. Results of first ISF collection from over 11,000 farmers in Central and East Java in pilot systems was an encouraging 95%. However that acceptance to pay by users depends on their structured and systematic involvement in defining systems needs. They need to understand a differentiation in payment if service levels are different. They appreciate use of collected funds in the system where collected. They understand the organization of water users associations but this requires their active role in fee determination and collection. They understand the establishment of federations of these associations. ISF requires also active involvement of Local Government officials as facilitators and intermediaries between service receivers (the water users) and service providers (personnel of the Public Works irrigation department) in the introduction period. This article describes the experience of the first 21 months of the ISF project, the concept developed, the principles used as basis for ISF, the introduction at the field level, issues related to acceptance by users and by the institutions involved, and the first results.Abbreviations/Acronyms DGWRD Directorate General of Water Resources Development (Ministry of Public Works) - EOM Efficient Operation and Maintenance - Gabungan group of WUAs - IPAIR Indonesian abbreviation for ISF - ISF Irrigation Service Fee - Juru gate keeper - PBB land tax on irrigated lands - PPL agricultural field extension agent - P3A Indonesian abbreviation for Water Users Associations - PU Indonesian abbreviation for Public Works - SM Special Maintenance - WUA Water Users Associations     

宁夏WUA项目区实施“量水到户”的可行性分析

推广节水灌溉先进技术是农民用水协会(WUA)的一项主要职责,而供水到户,计量到户不仅是灌溉用水管理的客观要求,也是调动农民用水户节水积极性的有效技术手段。通过对宁夏WUA项目区的实地调研和近两年监测资料的整理与分析,就普遍关注的农民用水协会实施"量水到户"问题进行了探讨。针对项目区量测水现状以及存在的问题,提出了在农民用水协会内部推行"量水到组"并逐步实现"量水到户"目标的途径以及农业综合开发扶持农民用水协会持续发展的工作重点。     

On-farm labour allocation and irrigation water use: case studies among smallholder systems in arid regions

On-farm measurements and observations of water flow, water costs and irrigation labour inputs at the individual parcel level were made in case studies of smallholder irrigation systems in sub-Saharan Africa and south-eastern Arabia. The systems, in which the water source supplied either single or multiple users, were analysed to address the fundamental issues of labour allocation for on-farm water management as this has important consequences for the success of such systems. Results show that the costs associated with accessing water influenced labour input, because when they were low the farmers tended to increase the irrigation rate and reduce the amount of time they spent distributing the water within their parcels. Conversely when water costs were high, lower flow rates and more time spent in water distribution were observed, and this resulted in more uniform irrigation and higher irrigation efficiency. Also, opportunities and demands for farmers to use their labour for activities other than irrigation can lead them to modify operational or physical aspects of the system so that they can reduce the time they spend distributing water within the parcels, particularly when the water is relatively cheap. Awareness and better understanding of how farmers may allocate their labour for water management will lead to more effective planning, design and management of smallholder irrigation systems.     

Combining hydrological modeling and GIS approaches to determine the spatial distribution of groundwater recharge in an arid irrigation scheme

Accurate quantification of the rate of groundwater (GW) recharge, a pre-requisite for the sustainable management of GW resources, needs to capture complex processes, such as the upward flow of water under shallow GW conditions, which are often disregarded when estimating recharge at a larger scale. This paper provides (1) a method to determine GW recharge at the field level, (2) a consequent procedure for up-scaling these findings from field to irrigation scheme level and (3) an assessment of the impacts of improved irrigation efficiency on the rate of GW recharge. The study is based on field data from the 2007 growing season in a Water Users Association (WUA Shomakhulum) in Khorezm district of Uzbekistan, Central Asia, an arid region that is characterized by a predominance of cotton, wheat and rice under irrigation. Previous qualitative studies in the region reported irrigation water supplies far above the crop water requirements, which cause GW recharge. A field water balance model was adapted to the local irrigation scheme; recharge was considered to be a fraction of the irrigation water losses, determined as the difference between net and gross irrigation requirements. Capillary rise contribution from shallow GW levels was determined with the HYDRUS-1D model. Six hydrological response units (HRUs) were created based on GW levels and soil texture using GIS and remote sensing techniques. Recharge calculated at the field level was up-scaled first to these HRUs and then to the whole WUA. To quantify the impact of improved irrigation efficiency on recharge rates, four improved irrigation efficiency scenarios were developed. The area under cotton had the second highest recharge (895 mm) in the peak irrigation period, after rice with 2,514 mm. But with a low area share of rice in the WUA of <1 %, rice impacted the total recharge only marginally. Due to the higher recharge rates of cotton, which is grown on about 40 % of the cropped area, HRUs with a higher share of cotton showed higher recharge (9.6 mm day^?1 during August) than those with a lower share of cotton (4.4 mm day^?1). The high recharge rates in the cotton fields were caused by its water requirements and the special treatment given to this crop by water management planners due to its strategic importance in the country. The scenario simulations showed that seasonal recharge under improved irrigation efficiency could potentially be reduced from 4 mm day^?1 (business-as-usual scenario) to 1.4 mm day^?1 (scenario with maximum achievable efficiency). The combination of field-level modeling/monitoring and GIS approaches improved recharge estimates because spatial variability was accounted for, which can assist water managers to assess the impact of improved irrigation efficiencies on groundwater recharge. This impact assessment enables managers to identify options for a recharge policy, which is an important component of integrated management of surface and groundwater resources.     

Institutional management regimes for pricing of irrigation water: the French model — lessons for India

In France, the River Basin Committees and Water Agencies are in-charge of managing water resources. However, many surface irrigation networks were initiated and operated by the Regional Companies and farmer syndicates exclusively for agricultural development in the southwest of the country. These are water institutions playing an active role in water management with an objective of cost recovery in order to improve the quality of irrigation services to the users. The implementation of various innovative institutional management approaches by these agencies have yielded a modest degree of success in addressing the crucial problems of the irrigation sector in terms of pricing water, cost recovery, financial viability and overall sustainability of the surface irrigation system. This study attempts to examine the relevance of the institutional management approaches of France to the Indian context. The institutional framework for setting the price of irrigation water is through negotiation between the management and the user representatives. The important lessons drawn based on the experiences of the French model include the granting of financial autonomy to the water institutions in order to recover operational and maintenance costs, participatory approaches of decentralised management, user involvement in the decision-making process, devolution of small-scale irrigation networks to the users for management and the promotion of effective and viable user associations with access to technical information relating to the use of irrigation technologies.     

Performance assessment of irrigation water management of heterogeneous irrigation schemes: 2. A case study

The non-uniformity of soils, weather, fields, cropping pattern and canal systems in most surface irrigation schemes makes irrigation water management complex, but optimum performance is important particularly in irrigation schemes with limited water supply. This paper focuses on the performance of irrigation water management during the area and water allocation with a case study of an irrigation scheme in the semi-arid region of India. Often the irrigation managers or authorities of these heterogeneous irrigation schemes also need to deal with different allocation rules. The allocation plans and the corresponding water delivery schedules during the allocation process were estimated with the help of a simulation–optimisation model for different allocation rules based on cropping distributions (free and fixed), water distributions (free and fixed-area proportionate), irrigation depth (full, fixed depth and variable depth irrigation) and irrigation interval (from 14 to 35 days). The performance measures of productivity (in terms of net benefits and area irrigated), equity (in water distribution), adequacy and excess were assessed for these different allocation plans and schedules. These were further compared with the performance measures of the existing rule (fixed depth irrigation at a fixed interval). The analysis revealed that these performance measures are in some cases complimentary and in other cases conflicting with each other. Therefore, it would be appropriate for the irrigation managers to understand fully the nature of the variation in performance measures for different allocation rules prior to deciding the allocation plans for the irrigation scheme.     

Multiple-Use Management in a Large Irrigation System: Benefits of Distributed Secondary Storage

Large-scale canal irrigation projects are commonly seen as profligate users of water. Their low water productivity has been attributed by many authors to deficiencies in management or to actions by farmers to circumvent management control over water distribution. Inadequate design has sometimes been cited as a contributing factor, but the relationship between design and manageability has received too little attention. In most conventional large-scale irrigation systems imperfect matching between water supply and demand is an inescapable fact of life that leads to operational spillages and low efficiency. Provision of auxiliary storage reservoirs at strategic points within the canal system can buffer this mismatch and improve service delivery and also aid recovery of return flows. Such reservoirs may bring additional benefits in that they provide opportunities for multiple-use management and increased productivity of irrigation water. This paper presents a case study of Mahaweli System H in Sri Lanka, which incorporates a large number of secondary reservoirs within its 25000 ha command area. The paper examines current operational performance and considers scope for and constraints to multiple-use management.     

Canal maintenance: a key to restructuring irrigation management

Farmers becoming involved in canal mainentance is a recent trend in many government-managed irrigation systems. Before being able to assess the pitfalls and perspectives of this trend, it is necessary to examine in detail the issue of canal maintenance itself, an issue which has received relatively little attention. The paper focuses on canal maintenance in an irrigation system in Western Mexico, and finds that canal maintenance differs in several aspects from water distribution. A first difference is that water distribution often results in competition among water users along the same canal, whereas the need for canal maintenance may bring these people together in cooperation, which may help to forestall possible conflicts over water supply. A second important difference is that water distribution is directly productive, whereas canal maintenance involves the reproduction of the canal system, the (often considerable) costs involved being investments. In the case study reviewed, canal maintenance gave rise to certain relationships between different groups of people, and between them and the canal infrastructure, relationships which may not have been uncovered if only water distribution had been studied. It is argued that interventions aimed at handing over management responsibilities to water users would be more effective if such locally specific expressions of cooperation and initiative of the actors involved are taken as a starting point.     

Managing salinity and waterlogging in the Indus Basin of Pakistan

Waterlogging and salinization are major impediment to the sustainability of irrigated lands and livelihoods of the farmers, especially the smallholders, in the affected areas of the Indus Basin. These problems are the result of a multitude of factors, including seepage from unlined earthen canals system, inadequate provision of surface and subsurface drainage, poor water management practices, insufficient water supplies and use of poor quality groundwater for irrigation. About 6.3 million ha are affected by different levels and types of salinity, out of which nearly half are under irrigated agriculture. Since the early 1960s, several efforts have been made to improve the management of salt-affected and waterlogged soils. These include lowering groundwater levels through deep tubewells, leaching of salts by excess irrigation, application of chemical amendments (e.g. gypsum, acids, organic matter), and the use of biological and physical methods. However, in spite of huge investments, the results have in general been disappointing and the problems of waterlogging and salinity persist.This paper reviews sources, causes and extent of salinity and waterlogging problems in the Indus Basin. Measures taken to overcome these problems over the last four decades are also discussed. The results reveal that the installed drainage systems were initially successful in lowering groundwater table and reducing salinity in affected areas. However, poor operation and maintenance of these systems and provision of inadequate facilities for the disposal of saline drainage effluent resulted in limited overall success. The paper suggests that to ensure the sustainability of irrigated agriculture in the Indus Basin, technical and financial support is needed and enhanced institutional arrangements including coordination among different federal and provincial government agencies to resolve inter-provincial water allocation and water related issues is required.     

A database program for enhancing irrigation district management in the Ebro Valley (Spain)

In the last decade irrigation districts in the Ebro Valley of Spain have started to use database applications to enhance their management operations. Such applications often put more emphasis on administrative issues than on water management issues. A new irrigation district management software called “Ador” is presented in this paper. This database application has been designed to overcome limitations identified in an analysis of the software used in the study area. Ador can be used in irrigation districts independently of the type of irrigation system (surface, sprinkler or trickle) and the type of irrigation distribution network (open channel or pressurised). It can even be used in irrigation districts combining different types of irrigation systems and different types of irrigation distribution networks. The software can be used with minimum district information. The goals are to manage detailed information about district water management and to promote better on-farm irrigation practices. Ador is currently used to enhance management of 62 irrigation districts accounting for some 173,000 hectares in the Ebro Valley.     

灌区配水调度模型及其应用

为使灌区的用水管理由经验定性决策向科学定量决策过渡，研制了位山灌区配水调度模型。本模型以干渠测流站为基础，按照“流量包段、责任到所”及“计量供水到县（市区）”的原则，将灌区分设东、西渠系统，干渠分为若干段，段内分片。模型设计紧密联系位山灌区的配水现状，分析研究存在的问题，将常规调水技术抽象概化成不同的配水方式。该配水调度模型从1991年开始使用至今。     

我国农业灌溉水费管理的初步研究

指出我国灌区普遍存在工程老化、效益递减、灌区管理单位经费短缺、发展困难等现象。灌区的主要经费来源是灌溉水费，而水费计收标准低、收缴困难、中间环节多、难以到位。灌溉水费管理中存在的这些问题，使得灌区工程的维修、改造与更新不能得到保证。分要认为：灌溉水费管理改革，应围绕提高水费收缴率和使用效率、保证专款专用而展开，不仅要采用科学的、符合商品经济规律的水费计收标准，而且在水费收交的过程中应减少中间环节，杜绝截留、挪用。此外，实施国家对农业水费的补贴政策，加大政府对农田水利基本建设的投入力度，建立与完善灌溉水费管理的法规规章与制度，也是加强水费管理的必要措施。