IIMI

PARTICIPATORY IRRIGATION MANAGEMENT

(N

NIGERIA

Prachanda Pradhan and Salihu Abdulmumin editors

INTERNATIONAL IRRIGATION MANAGEMENT INSTITUTE,

11MI-Nigeria, Kano,Nigeria _~ - 1

. 'IEFERENtE NATIONAL WATER RESOURCES INSTITUTE,

ONLY

IIMI Kaduna, Nigeria. 631.7.8

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iPRA ! .

lit9lt7

PARTICIPATORY IRRIGATION MANAGEMENT IN NIGERIA

Proceedings of the National Sert'inar on " Participatory Irrigation Management in Nigeria organised11 jointly by the National Water Resources Institute and International Irrigation Management Institute from 9 No. vember 1010 November, 1993 in Kaduna.

INTERNATIONAL IRRIGATION MANAGEMENT INSTITUTE

IIMI-Nigeria, Kano, Nigeria.

NATIONAL WATER RESOURCES INSTITUTE -Plea: Kaduna, Nigeria

1993

-R

I1MIINWRI SEMINAR PAPER, 1994

~RlA

organised 'Ofn 9 No-

R ilM i 63ij-,/! '.~ ~14::

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Table of Contents PREfACE •.•....•....••.•................••.. , ...•.....•..•..........•........... "

ACKNOWLEDGEMENT •..••..•...•••....•...•...•.....•...•...•....•.•..•....••..••.•.

RECO~ENDATIONS Of THE SEMINAA .....................•...........•..•............•. v

OVERVIEW Of THE SEMINAA • . . • . • • • . . . • • • . . • . • • • . . . . . • . . . . • • . . . . • . . . • . . . . . . . . . • • . . . .. VI

PRRTICIPATORY IRRIGATION MANAGEMENT IN THE CONTEXT OF NIGERIA. • •.................•..... 1

POLICY ASPECTS ON PARTICIPATORY IRRIGRTION MANAGEMENT • . . . • . . . . . . . . . . . . . • • . . . . . . . . . .• 13

HJRBDA-IIMI COLLABORATIVE ACTION RESEARCH IN KANO RIVER IRRIGATION PROJECT (KRIP) •.••••.•.........•••.•.•..••..••••.••.•••..•..•••.••••.......•....•.....•. 18 'Figure 1

THE ROLE OF CO-OPERATIVES IN NIGERIA . . • . • . . • • • . . . . • • . . . . • . • . • . . . . . . . . . • . . . . . . . • . . . .. 28 Figure

THE ROLE Of FARMERS. LOCAL AND COMMUNITY INSTITUTIONS IN PARTICIPATORY Figure.

IRRIGATION DEVELOPMENT.••••.•.•...••....•.•...•.•....•••....... , .•.••....•••..•. , 32. Figure

ROLE OF NON-GOVERNMENTRL ORGANIZATION (NGOs) IN PRRTICIPRTORY DEVELOPMENT .........• 3S FigurE

ORGRNISATION Of FADAMA FRRMERS FOR IRRIGATION DEVELOPMENT. . . . . . . . . • . . . . . . . . . . . . . . .• 37 Figure

FORMATION OF WATER USERS ASSOCIATION. . . . . . . . . . . . • . . . . . . . . . . . . . . . . . . . . . . . . . . . • . . . .. 41 Flgur

LAND OWNERSHIP RELATION AND PARTICIPATORY IRRIGATION MANAGEMENT IN FlglJ' NORTHERN NIGERIA .......... '•......•............................................. , 51

Flgl.IORGANISATIONAL REFORMS FOR PARTICIPATORY IRRIGATION MANAGEMENT IN HJRBDA ............. 57

Fig'PROBLEMS AND PROSPECTS IN PARTICIPATORY IRRIGATION MANAGEMENT IN NIGERIA....•...•.. ',' .• 64

WURNO IRRIGRTION PROJECT OF SOKOTO: A CASE STUDY Of PARTICIPATORY IRRIGATION

MANAGEMENT ...... " •.....•..••................................................•. 67

ISSUES IN PARTICIPATORY IRRIGATION MANAGEMENT: A CASE STUDIES Of TUNGAN KAWO

AND TADA SHONGA IRRIGATION SYSTEMS FROM NIGER 111VER BASIN DEVELOPMENT

AUTHORITY. . . . . . . . . . . . • • . . . • . . . . . . . . • . . • . • . . . . . . . . . . . . . . . . . . • . . . . . . . . . . . . . . . . . . .. 7i:1.

WATEA USERS' ASSOCIATIONS - A CASE STUDY Of THE NGURU PROGRESSIVE FARMERS'

ASSOCIATION. • . . . . . . • • . . . . . • . • . . . . . . . . . • • . • . . • . • . • . . . . . • . . . . . . . . . . . . . . . . . . • . . . . .. 77

SOME CO~ENTS. QUESTIONS AND ANSWERS. . . . . . . . . . . . . . . . . . . • . . . . . . . . . . . . . . . . . . . . . . .. 83

SEMINAR ON PARTICIPATORY IRRIGATION MANAGEMENT IN NIGERIA HELD AT NWRI,

KADUNA 9-1 OTH. NOVEMBER. 1993.......••....•••....•.•............................. , 86

OPENING ADDRESS .....................•.....•.................................... 87

VOTE Of THANKS. . . . . . • . . . . . . . . . . . . . . . . . • . . . . . . . . . • . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 88

LIST OF PARTICIPANTS . . . . . . . . . . . . . . . . . . . . . . . . • . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 89

IIMIINWRJ SEMINAR PAPER, 1994 ii

List of Tables and Figures

.... '" Iv Table 3.1. Activities In Irrigation Management (UPHOFF 1991) ................................ 13

•••••• V

Table.3. 1. The general characteristics of 3 pilat sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 20

...... vi

Table 8.1 Distributary Canal Cleaning by WUA . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 42

... " vii

Table 8.2. Modules in the NIA Training Model. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 46

... '. 1

Table 8.3: Farmer to Farmer Training Sessions in KRIP During 1992 and 1993 ..................... 47 .... 13

.. " 18 Figure 1.1. Integrated approach to understand WUA: . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 9

'" 28 Figure 3.1: Location of thrree pilot projects within KRP1. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 19

Figure. 3.2: Situation after land Realocation. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 19

··.32 Figure 3.3: Distributary Canal Cleaning ................................................. 22

.•. 3S Figure 3.4: Filed Channel Cleaning. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 22

'. 37 Figure 8.1 Typical Units of a Public Irrigation Svstem (following KRIP Lav-Out) ................... 41

" 41 Figure 8.2. Responsibilitv Spread within a tvpical Agencv Managed Svstem ...................... 41

Figure 12.1 - Wurno Irrigation Project Lavout. ................................. , ........ " 67

. S1

Figure 12.1: Project Lavout . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 67

. S7

Figure. 14.1 Map of the Area of Farmland Protected bV the Dvke ........ , .................... 80

·64

67 Appendix.1.. ...................................................................... 59

Appendix.!!. ........... , ....... , .... ,., ............. ,' ......................... , .. 59

Appendix.lII.......................... , ............................................ 60

7~

Appendix.IV........ '.........•..................................................... 61

77

13

s

iii lIMIINWRl SEA41NAR PAPER, 1994

http:Appendix.IV

PREFACE

It is recognised in many parts of the World that farmer's participation plays an important role in achieving better management of irrigation systems irrespective of size and management type. A meaningful farmer participation is possible through the formation of functional Water Users Associations (WUA) to promote joint management (Participatorv Irrigation Management) of public sector irrigation systems. One of the ways of institutionalising joint management of irrigation systems is to establish a formal mechanism between the farmers and the agency in an organised and institutionalised manner in the form of WUAs to discuss, negotiate and decide on different aspects of irrigation management within the irrigation project.

The privatisation and commercialisation policy adopted by the government of Nigeria in 1986 aims at handing over public sector enterprises to private sector management. This has necessitated change in the mode of management of irrigation systems from full agency management to joint management. In the lat,ter, both agency personnel and farmers become partners and share the responsibilities of management and resources mobiHsation. Hence, the users are given increased responsibilities for operation and maintenance at certain levels within large scale irrigation systems. Of recent the National Fadama Development Programme, has also embarked on a programme of participatory irrigation management through the formation of Fadama Users Association (FUAs).

Thus, with the increasing need for the formation of WUAs and FUAs it becomes necessary for the agencies involved to get together and exchange ideas on participatory irrigation management. This is the major objective of this seminar.

Contributors were invited to present relevant papers. The papers, case studies, discussions and recommendations from the discussions and recommendations form the content of this proceeding/book

The views expressed are largely those of the authors and not the editors.

D".. S. Abdt-\IW\t-\W\in D".. P".achanda P".adhan Director. NWRI, Kaduna. Project Leader,

IIMI-Nigeria Programme, Kana.

IIMIINWRI SEMINAR PAPER, 199-1 iv

ACKNOWLEDGEMENT

The Editors wish to sincerely thank the International Irrigation Management Institute (IIMI) for providing the bulk of the financing for the seminar and the publication of this proceedings.

The department of Irrigation and Drainage of the FMWR contributed financially and the NUJRI provided the logistics support and premises for holding the seminar.

We are grateful to the Minister of the Federal Ministry of Water Resources, Alhaji Isah Mohammed for sending the Director of PRS, Engr. Dr. F. I. Soribe to deliver hi-s keynote address. The Ag. Director of Irrigation and Drainage, Engr. I. K. Musa delivered a paper.

We are grateful to all the contributors who responded to our invitation to present papers. We thank in advance all those who will use the recommendations in this book to advance the objective of effective participatory management of irrigation in Nigeria.

v IlMIINWRI SEJllflNAR PAPER, 1994

Recommendations of the seminar

The seminar deliberated on many issues of importance as regards participatory irrigation

management in Nigeria. After thorough and exhaustive discussion of the papers, the participants tabled the following recommendations that could help achieve the goal of participatory irrigation management in Nigeria:

1. Government should intensify effort to entrench participatory irrigation development. Henceforth the government should involve the local communities/farmers right from the study and design stage up to the construction of all future irrigation projects in order to enhance participation of the farmers in the operation and maintenance of the system.

2. An inventory of efforts made towards achieving active participation of beneficiaries in development programmes, (in particular irrigation development) should be undertaken by the Department of Irrigation and Drainage. Such inventory should aim at identifying methods which have been successfully used to mobilise people to participate in development programmes.

3. The FMWRRD should in future establish a WUA unit to monitor the establishment of PIM in the RBDA's, FUA's in the ADP's and FMIS where possible.

4. Government should have an irrigation policy in place within the next six months. Legal and Institutional support for the WUA's should be considered urgently.

5. A forum is required for the co-ordination of the activities of NGO's in the country and for greater interaction between these groups on the one hand, and the government, academic and research Institutions, on the other.

6. Effective training on WUA formation and administration should be given to the Agency staff on what is involved in the context of Participatory Irrigation Management. There is a need for the development of:

i. suitable local training modules on WUA development programme.

Ii. Universally applicable standards for monitoring and evaluation of WUA.

IIMIINWRI SEMINAR PAPER, 1994 vi

OVERVIEW OF THE SEMINAR

A seminar on Participatorv Irrigation Manage

ment was jointlv organized bV the International Irrigation Management Institute and National Water Resources Institute (IIMI) and presenting the state of art on participatorv irrigation management in the public sector irrigation svstems in Nigeria. Fifteen papers were discussed in the seminar. These papers dealt with the various aspects of the participatorv irrigation management. The role of the government was discussed for the promotion of the participatorv irrigation management. This involves the legal provision, institutional arrangement and land propertv relationship with the cultivators. Attempts were made to identifv the role of the non-governmental agencies for the promotion of participatorv irrigation management. These aspects are considered as beyond the government because government alone can not take the responsibilitv of providing services to the needs of the citizens. Citizens have to organize themselves in order to improve the delivery of the services. The participatory irrigation management is also towards that direction.

The discussion was initiated bV the presentation of the paper prepared jointly bV Prachanda. Salisu Abdvlmumin and Salihu Ben-Musa. The paper highlights the changing context of the public sector irrigation scene brought by the change in the economic policy in Nigeria through the structural adjustment program. The paper underlines the need for consistent and deliberate policV on (a) Water rights issue, (b) legal and institutional basis for participation, (c) property relationship (relation of the cultivators to the land), (d) deliberate government for the partiCipatory irrigation management and (e) management of the system at cost basis - no more subsidy by the government for the operation and maintenance of the system.

Paper on PoliCll Aspects of Participatorv Irrigation Management by I. K. Musa discusses different Qspects of the conditions required for the promotion of the participatory irrigation management. The paper clearly advocates the need for definite government policV for the promotion of participatory irrigation management.

Yahaya Kazaure talks about the interrelationships of institutional and physical aspects for the promotion of participatorv irrigation management from the experiences of HBRDA - IIMI collaborative action research in Kano River Irrigation Project.

The HJRBDA - IIMI collaborative action research identifies the need to consider institutional aspects mode of management, 0 & M procedures and resource mobilization factors for the promotion of the participatory irrigation management. The paper shows that participatory irrigation management is possible through the information of water association. In order to make WUA effective changes are to be made at the farmers level as well as the agencv level. The benefits of participatory irrigation management has been in the physical improvement of the sVstem, improvement in the hydraulic performance, higher percentage of water charge collection and contribution In the increase of crop coverage.

Papers by Mr. Gidado, Mr. Olatunji and Mr. Gimba highlighted the role of the Cooperatives, local (ammunitv and local institutions and nongovernmental agenCies for the promotion of the participatory Irrigation management. The paper by Mr. Olatunji dearly Identifies the strengths and weakness of participation in irrigation development should take place right from the inception of the project. Mr. Gimba presents the view that the establishment of self-governing, self-regulations and self-supporting organizations through the assistance of the NGOs will go a,long waV for the realization of participatory irrigation management. It was proved in many places that NGOs as alternative institutions have helped in promotion of developmental activities of benefit to the people.

The paper by Mr. Bhatti describes the experience of the formation of Users Association in National Fadama Development Program. However, a number of questions were realised on this paper. It is not clear whether the Fadama Users Association is the Water Users Association or some other type of association. Fadama Users Association is a good example in learning lessons from the experiences of the organization of farmers groups.

Mr. Omotowoju presents the process and procedures of the format of water users association. He draws examples from the experiences of Southeast Asia as well as from the practicar experiences of Kano River Irrigation System. He argues that the appropriately formed WUA can be an effective means for the description of participatory irrigation management. He describes the factors to be taken into consideration for the formation of water users association, the role of the facilities.

vii IIA4INFVRI SEAflNAR PAPER, 1994

He also highlights the need of monitoring and evaluation of these activities.

Professor Olofin has been quite successful in presenting the complicated land ownership question in northern Nigeria in his paper "land Ownership relation and participatory irrigation management in Northern Nigeria." He presents the land status in Northem Nigeria in an historical perspective with. the evolution of the land Acts over a period of time. He talks to two types of approaches taken by the large scale irrigation development program. Return to owner approach was token by KRIP and Bakolori Irrigation Systems. land was given bock to the original owner after development of the land. The other approach was to turn them to tenants. this was the approach token in South Chad Irrigation Project (SCIP) and the Timor River Irrigation Project (TAIP). He coneludes that land ownership makes the farmers more careful about the land and willing to toke care of the infrastructure for improvement of their land.

It is dearly recognized that organization reforms for participatory irrigation management is important. The paper by Mr. Kura clearly spells out the changes that have taken place in the organizational changes. Changes, manpower development. training arrangement. In the meantime, the relation between the formers and the agency should be established on the basis of mutual contractual arrangement.

Are Kolawole et.al presents the problems and prospects of participatory irrigation management. They presented the following reasons as the hindrances for the promotion of participatory irrigation management. They are: (0) lack of institutional framework for farmers participation. (b) imposed Irrigation systems based' on the agro-technical criteria. (c) absence of knowledge of socia-technical and cultural parameters. (d) high technology involvement In irrigation design and operation. and (e) demotivatlon of the formers to participate due to low payoff of the Nigerian Irrigation systems. In the conclusion of the paper. they sow some ray of hope for the promotion of participatory irrigation management through policy and institutional changes.

Wurno Irrigation Project is on interesting case study which highlights the importance to give consideration on landownershJp question. pre-projects orientation to the formers as well as the official and need the combining physical and institutional development activities together. Important lessons COlI be learnt from Wurna Project Case Study prepared by Rabiu Abubakar Babura.

Mr. I. K. Musa .at 01 presented issues in participatory irrigation management- through two caSe studies. One case study presents the example of authority initiated Water Users Association In order to regulate the irrigation behaviour of the farmers. The other case study points out the lock of interaction with the beneficiary farmers at the early stage of the preparation. Such situation created the problem of mis-match between the econ· omic benefit and sociai norms of the people. Socia-institUtional information would have been very useful at the Initial stage of the planning of the project.

A case study of the Nguru Progressive Farmers by Mr. Aminu Kano reports the dynamics of the collettive efforts of the group of the farmers in securing loan. designing the dyke and supervising the construction work. The role of the leader who had agriculture extension experiences has helped mobilize the farmers to form Water Users Association.

Hence. the seminar has been successful in highlighting the important elements of participatory irrigation management ranging From policy support to legal and institutional arrangement. it is also brought out clearly that the irrigation to be taken simultaneously in orienting the irrigation bureaucracy for participatory irrigation management along with the formation of functional Water Users Association. The ingredients of participatory irrigation management are judged from the perspective of land tenure relationship with that of the basis of the formation of water U$ers association.

Three case studies reconfirm the necessity of participatory irrigation management for increased agricultural production. judicious use of water and resource mobilization for operation and maintenance of irrigation systems.

IlMJlNWRl SEMINAR PAPER, 1994 viii

PARTICIPATORY IRRIGATION MANAGEMENT

IN THE CONTEXT OF NIGERIA.

Prachanda Pradhan,

Project Leader, II:MJ - 9{jgeria Programrre, '](gno.

S. Abdulmumin,

'Director, 9X:ationa{'Water 'l(esources Institute, 'l(aduna.

Salihu Ben· Musa.

:Jv&naging 'Director, %ulejia Jarna'are 'l(jver 'Basin 'DevefilplTEnt 5lutfzority.

INTRODUCTION: It is recognised thatfarmers participation play an important role in increasing production and performance

improvement of the irrigation systems. The withdrawal ofsubsidy for O&M ofalready completed irrigation projects makes it important an active role of the farmers in irrigation management. One of the ways ofinstitutionalising participatory irrigation management in public sector irrigation systems is to establish aformal mechanism for interaction between the farmers and agency in an organised and institutional manner in the form of Water Users AssociCltion (WUA) to discuss, negotiate and participate in decision-making with the agency on different issues ofirrigation management.

As elsewhere in different parts ofthe world for participatOlY irrigation management, Nigeria also embarked on the participatory irrigation management in public sector irrigation systems from mid 1980's. As of 199 I, the total irrigated area under public sector irrigation was only 70, 000 ha. There are public sector irrigation developments by the State Ministry of Agriculture as well. However, the area under public sector irrigation is expected to increase conSiderably in the subsequent years. The low perfonnance oflarge scale irrigation systems is reflected in the shortfall between the achievement and target set out in. the National Development Plan (Adams, 199I).

Consequent to the severe drought that prevailed during the period of 1972-74, 11 River Basin Development Authorities (RBDAs) were established with responsibilities for developing infrastructure for irrigation, increasing agricultural production arid undertaking rural development activities in the systems within the authority of RBDA. The performance of these irrigation systems was marred due to shortfalls in achieving their area targets, operating only 50 percent efficiency, wastage of water, lack of maintenance of the systems and shortage of spare parts for the maintenance ofthe machinery. It is reported that the main reason for the poor overall performance of the system is lack offunds. Although RBDAs were initially formed with multiple junctions, at present, they are only responsible for water related activities and are no longer involved ill direct agricultural production.

With the implementation of this program, the cost

NEW POLICY THRUST IN NIGERIA: of services provided by the RBDAs is no longer sub

sidized but had to be borne by the beneficiaries themThe commercialization and privatization policy selves. Hence, the policy of commercialization and adopted by the government in 1987, as a package of privatization has brought about institutional reOl'ganiStructural Adjustment Program (SAP), has made the sation in the legal system of in-igation management, River Basin Development Authorities (RBDAs) to be in the roll! of users organisation in water charge colpmtially commercialised. The RBDAs, II in all are lection, and in sharing of responsibility jointly by theparastatal agencies of the Minisu), of Agriculture, agency and the -farmers for the operation and mainWater Resources and Rural Development. They are tenance of the system. The new policy suggested that the implementing arms of the. ministl)' for the water government will provide funds for the new construcresources development and utilization within the geotion of the infrastiuctul'c \,vhik the completed ilTiggraphjcal area of R.I3DA.. ation systems have to mobilise resources internally to

I IIMIINWRI SEMINAR PAPER, 1994

meet the recurrent costs of operation and maintenance of the system.

The privatization and commercialization policy adopted by the government of Nigeria in 1987 aims at handing over public sector enterprises to private sector management. The River Basin Development Authorities are also public sector enterprises. However, they have been only partially commercialised. Hence, the mode of management of irrigation systems has changed from agency management to joint-management. In the latter, both agency personnel and farmers become partners and share the responsibility of management and resource mobilisation. The new policy also calls for the transfer of increased responsibilities for operation and maintenance of in-igation systems to users,

DIFFERENT MANAGEMENT MODES: The process of participatory irrigation manage

ment needs to be understood from the features of different management modes, lITigation management systems fall broadly into three categories. Those in which principal management responsibility' is exercised by the government or non-governmental agencies with the farmers playing a subsidiary role are the agency-managed systems Those in which most management activities are carried out and decisions are made by the farmers themselves with the government agencies providing periodic support are called farmer-managed system, Recently a third category of lITigation management is emerging because of the commercialization and privatization policy of the government in many palts of the world, This category of irrigation management is called pm1icipatory ilTigation management where both agency and fmmers share the responsibility to fulfil different irrigation tasks.

lnigation management tasks ,are broadly grouped into (a) water use activities (b) control structure activities and (c) organisational activities. Water use activities relate to the application of water for agriculture purpose. The imp0l1ant water use activities are (i) acquisition (ii) allocation (iii) disllibution and (iv) drainage. The control structure activities are considered to be (i) design (ii) construction (iii) operation and (iv) maintenance. The other imp0l1ant area of ilTlgation management tasks are the organisational activities which include (i) dt:cision-makmg (ii) resource mobilisation (iii) communication and (iv) conflict resolution (Uphoff 1986)

Many of the large - scale ilTigation systems are moving into joint- management where the farmers'

IlMIINWRI SEMINAR PAPER. 1994 2

organisation is expected to share the responsibility on the irrigation management activities, In the jointmanagement of the irrigation systems, organised group of farmers have important role to play. The organised group of farnlers have to be promoted in the form of Water Users Association within public sector irrigation system. However, it is imp0l1ant to understand the different types of Water Users Association. It is attempted to explain the nature of different types of Water Users Association through the role of fanners to be played in different management modes of irrigation system.

Agency-managed System:

The role of the agency is enOlmous in agency managed irrigation system. The agency takes charge of delivery of water, supply of falm machines for land preparation, supply of inputs like seed and fertilizer, prescription of specific crop to be grown, harvesting, pricing and marketing of the produce as well. Hence, the agency controls from the water supply to the crops to be grown up to th)': marketing of the produce, Many of the ilTigalion systems in Nigeria before the introduction of Structural Adjustment Program (SAP) fall withm the category of agencymanaged systems (Andrae and Beckman, 1985:109115).

Often times, agency owns the land The cultivators are allocated land either on seasonal basis or on annual basis, Hence, water and agriculture related activities are pelfOlmed by the agency staff without much consultation with the [ulmers. Major decisions I1re made by the staff of the agency. The role of the farmers in such mode of management would be minimal. There is not much room for interaction between agency and farmers to make decisions regarding irrigation,

The role of the fanner is very negligible. Under such circumstances, the conllict between the agency and fUlmers is frequently rep0l1ed, Non-compliance by the farmers become the order of the day. Such events are reported in Bakolori and South Chad hrigation systems. (MOIis and Thom.1990:259-268. and Kolawole.1990:96-98). The source of fund for such system is the govelmnenl. Hence, the officials are not responsible and accountable to users. ,

Farmer (user)-managed System

The role of the users as organised group becomes very imp0l1anl. Major deciSIOn regarding ilTigation management would be taken by the in'igation organisation composed of fUlTIlerS representatives elected by

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them for definite tenure. This organisation would have the characteristics of (a) direct involvement of irrigators. (b) effective monitoring and sanctioning and (c) holding officials accountable.( Tang and Os· trom 1993: 12).

r The farmers are involved in day to day activities

of irrigation management like water acquisition, water allocation, distribution, maintenance and opel'· ation, decision·making, resource mobilisation andf conflict resolution. All these important activities are carried by the irrigators organisation. Such organisa. tion can be seen both in small as well as large irrigation systems, as large as 15000 ha. in Nepal (Pradhan.1989).

The role of the agency in such system is only to perform regulatory activities like preserving water rights among the systems and provide assistance as and when it will be necessary.

Participatory Management Mode:

Gradual transfer of authority to the farmers water users organisation by the agency in order to promote participatory irrigation management gave birth to join-management of inigation systems. Within the joint management, one has to see who influences more in irrigation activities. Two types of water users associations can be identified; I) dependent on agency 2) separate legal entity

In the first category, the common irrigation activities are identified. These common activities are often dictated by the agency. The farmers have very little role to play. The degree of farmer participation also would be low in such circumstance. The example of such system is from Pakistan where water users associations are fOimed only for limited purpose. The iiTigation bureaucracy is quite influential (Bandaragoda and Firdousi.1992: 16-17). The water users associations are established only up to watercourse leveL These associations were motivated to come together during the time of rehabilitation of watercourses. Once this task is completed, there has not been other binding factors to keep the group together. Hence, the irrigation agency played influential role despite t~e le~al provision of WUA.

The other category' of joint management IS· with more responsibility and authority to the faimers organised group. The farmers ro.le become vel)' impOllant. The organised group of farmers undellake the day to day activities re1atingtQ water allocation and distribution. At the same time, the organised group of fanners will be organised in the federated system and prulicipate even in the system management of the ir

rigation system like the management and maintenance of reservoir, main canal and major distributory canals. Decisions will be made jointiS on the maintenance schedule, water release schedule, cropping pattern etc. The water users association under such joint-management will try to be self-regulating, selfsupporting and self-governing.

The agency will be playing regulatory role. The agency would have only minimal role. All day to day activities are undellaken by the water users association.

The examples for such management can be drawn from Philippine's water users associations and Colombia River Basin Project of Western United States of America. The Philippines has clear policy regarding the authority of local inigation associations.\Each irrigation system of less than 1000 ha. has one in-igation association. The association owns the system and takes the responsibility of operation and maintenance of the entire system. The association is registered. It is a legal entity with defined water right ( Bagadion and KOllen: 1991: 101-2). Colombia River Basin Project lies in the central pOltion of Washington State of the United States of America. The project consists of Grand Goulee Dam and FOR Lake behind it. This is operated by US Bureau of Reclamation. The conveyance and delivery system comprise feeder canal, balancing reservoir and main canal of 2 I miles long. It has 88 miles long West canal serving Quincy District and 87 miles long canal serving East In-igalion District Three iITigation districts, Quincy,East and South District, were created in 1939. These three districts serve ilTigation water to about 227,000 ha. of agriculture land. Districts have been the impOilant irligation institution for managing inigation systems in the Western United States of America. Water rights are attached to districts through the certification by state government.

Landowners within the district constitute to be the water users. District is governed by the Board which is elected by the landholders of the district. District takes care of the planmng, operation and maintenance of inigation systems, mobilisation of i-esources to cover the annual cost of opel'ation and maintenanc~. Distriet also applies sanctions against the members who do not confirm with the di'strict rules or fail' to pay water charges. The management of the system is tatenqant by th~engineer and other staff "appointed by the board (Svendsen an? VeimilIioQ. I?92).

. In the pailicipatOl), irrigatio.n nianage.ment, :ilie . process of implementation of irrig~tionrelated activities would be through dehbeI:ate interaction with

3 JIMJINWRJ SEMINAR PAPER. 1994

the user fanners. It would be through the institutionalised process of interaction between the agency staff and organised group of farmers in ordeI; to 'VTive at joint decision. The more opportunity is given fOJ: joint decision by the agency and fanners, the more effectiveness of the participatory mana,gement can be ensured.

CHANGES REQUIRED FOR PARTICIPATORY IRRIGATION MANAGEMENT

It is now considered necessary to change the style of management of public irrigation systems in Nigeria from agency management to joint-management In joint management, agency officials and farmers participate in the management of the irrigation systell}, share the responsibility of management and resource mobilisation. Both agency personnel and the farmers become partners. They will be considered equals, not superior and subordinates. Hence, such management requires the change of the role of the farmers, agency and type of activities to be undertaken by these actors.

The agency has to understand that the fanners have the capacity to contribute in the bettennent of the system. Henc\! change in the p€rception of the agency people is very important.

A system is to be institutionalised whereby the farmers are brought in the process of irrigation management decision-making. The recognition of the farmer's experience in the decision process of irrigation management is a big step toward joint management of irrigation systems.

In order to bring change from the agency management to joint- management, changes in the following elements have to take place.

l. Change in the relationship between the fanner and agency

11. Change in the perception of both parties

HI. Understanding the needs of users

IV. Frequent consultation, not corifrontation

v. Discussion and decisions on the basis of information

VI. Interaction with the farmers group as a unit.

I. Change .. , ....... Nlatlonshlp between t .... farmas and agency.

The 'large scale irrigation systems. are, by and large, constructed by the govenunent. During the fea

llMllNWRISEMINAR PAPER. /994 4

sibility and constlUction, the falmers who are the users aJ;e,,?ften ignored. After the completion of infrastl1\~ture. constlUction, the system is managed the ag66£y.,officials with no or little participation the farmel'S in water acquisition, allocation, distribu· tion and:maintenance of the system. The cost of the 0 & M is also borne by the agency. It has been found in the experiences of many countries that the sustaina· bility of the system without appropriate participation of the farmers has been difficult. The decrease in production is also noticed, Deterioration of the infrastructures occurred fast. The sense of ownership is lost.

Many governments have recently changed the policy of 0 & M subsidy. Subsidy support by the govemm7nt for 0 & M is withdrawn or is in the process of gradual withdrawal The beneficiaries are made to share the cost of 0 & M of the system. The changes mentioned earlier have necessitated to bring change in the relationship' between the farmers and agency personnel. The agency personnel have to depend on the contribution of resources of the beneficiaries of the system. It is no longer one way traffic. The fanners are no longer the subordinates of the agency bUI they are equal prutners in the management of the system. Hence, the trust between the agency personnel.afld falmers is to be built. The activities of these two agencies are to be complementary.

ii. Change in the perception of both parties.

The feeling of super-subordinate between the agency. personnel and fanners is [0 be changed. The agency personnel should change the attitude of conceiving the falmers as obstinate, ignorant, uncooperative and traditionaL The agency personnel should take the fanners as the important resource for system management. The farmers also have to change their attitude toward the agency personnel and no longer regard them as exploiters, COITlipt, uncooperative and stubbom. The fanners should take the advantage of the technical knowledge of the agency personnel in better management of'the ilTigation system and increase the agriculture production in the farm.

The perception that farmers make undue demand all the time is to be changed from the minds of the agency personnel. In the same way, the fanners also should change the perception that the agency personnel make many promises but they do not meet any of them. In order to bring change in this situation, there is need of frequent . meetings between the fanners group and agencies personneL Such meeting should

be institutionalised and regular. Such meetings will help change the behaviour of both parties. When both parties become partners and become responsive to each other, the old perception changes.

iii. Understanding the need of users.

The agency is established to provide support and assistance to the users of the system. It is necessary to understand the need of the users in relation to water availability, system operation and maintenance and scheduling of water charge collection etc. If the need of the farmers is not given attention, the farmers are not going to be co-operative. In an environment where farmers become uncooperative, the management of the irrigation system become very difficult. The performance of the sy stem will be very low. One of the important tasks of the agency personnel is to be responsive to the irrigation related need of the farmers. The responsiveness of the agency personnel of all level is necessary. The image of the agency personnel will be influenced by the behaviour of the field level staff.

iv. Frequent consultation, not confrontation.

There should be institutionalised basis to consult with each other on the issues of irrigation management. Mutual consultation is one of the basis of joint management of the irrigation system. Such consultation can be institutionalised in the form of annual meeting, half-yearly meeting where the agency people present the statement of achievements and failure. In the same way, the farmers groups also present their participation, contribution and difficulties. Hence, the activities of both agency personnel and farmers group will be shared by both parties. These activities are to be transparent to both parties.

In the absence of institutionalised regular consultation, the contact either with farmers or with agency personnel will be in the form of confrontation. Each patty will blame other party for non-fulfilment of the obligations. Hence, such environment will breed hatred, distrust and incorporation. In the interest of joint management, confrontation is to be avoided and mechanism for consultation is to be institutionalised.

v.Dlscusslon and dedslon on the basis of Information.

There is need to have better information collection fot'! rational decision making. Both farmers and agency personnel have to work together for updating information collection. Information is to be shared

between the farmers and the agency personnel. Information collection can very well be joint effort of agency personnel and farmers group. The command area is large that agency personnel alone will not be able to collect information cO'Veling the whole area. However, the farmers group can velY well help in collection of good infOimation of their area. The job of the agency personnel will be to process the information and prepare the data bank which can be used for planning and decision making in the system. The water charge collection data can velY well be collected by the farmers group but cross comparison of the rate of collection of different blocks or zones can be done by the agency personnel Crop coverage information can be collected by the falmers but the planning on the basis of the infOlmation is to be done by the agency. Hence, the infolmation collection can be a joint activity between the agencies and farmers group so would be the discussion and decision-making on the basis of the joint activities of the agency and farmers group.

vi. Interaction with the farmers group as a unit.

In order to promote joint management between the farmers and agency, the farmers are to be organised into groups or in Water Users Association. The agency is an organised bureaucracy with defined rules and roles. The fmmers need to be organised in Qrder to interact with agency. One of the steps to be followed in order to institutionalise joint management is the formation of water users group or Water Users Association. The Water Users' Association should have a legal recognition as well.

The farmers also play important role. The government agencies often face difficulties to guarantee proper management. Hence, falmer's involvement becomes a necessity particularly with regards to maintenance and division of water.

In order to shift the burden from the government to the fmmers, water users. themselves should bear a large pOition of the cost involved in the operation and maintenance of the system. The implementation of policy of privatization and commercialization has reduced the subsidy to be made available to the public . enterprises. This policy has forced to reduce the employment of large number of personnel and transfer ofpublic sector economic activities to private sector. These conditions I)ave made necessary for the greater participation of the falmers in the management of the system,

5

It is also necessary for the local population to get an opportunity to generate their own potential with respect to organisation and new technologies. It is also considered impOltant that people ought to have a considerable degree of autonomy in deciding their own living conditions and production system. Hence, participatory irrigation management needs to attempt to strengthen local capabilities for self-management and self-sustainability. Formation of user's organisation is a move toward strengthening local capabilities for self-management

PARTICIPATORY MANAGEMENT DEVELOPMENT THROUGH WATER USERS ASSOCIATIONS (WUA)

In 1980's and 90's, there was movement of participatory irrigation management in Nigeria. Both the national agencies of Nigeria as well as donor agencies made effort to institutionalise the participatory irrigation management through the water users association. The partial commercialization of the I I River Basin Development Authorities from April 1992 is a deliberate policy by the Nigerian Government to promote participatory irrigation management.

Some of the examples of the exercise of participatory irrigation management in different projects will be highlighted in the following section of this paper. However, there are instances where both intellectuals and practitioners are not comfortable with the proposed changes. There are opinions expressed that the context of the formation of RBDAs is different The RBDAs are to be given the opportunity to play the role authorised by the Decree of 1973 (Musa.1992.and Kolawole.1992). However, efforts are made in different sections of irrigation sector of Nigeria for the promotion of participatory irrigation management.

Participatory approach in RBDAs

One ~f the main responsibilities of RBDAs is to manage the irrigation systems within its jurisdiction. The recent .amendment .of the Decree of RBDA has specified the :water related activity as the main activity of RBDAs. Hence, RBDAs are now more concerned only for bet~er management of water resources including irrigation systems.

Arecent survey of six RBDAs shows that RBDAs are now more concerned about the implementation of participatory management in their in'igalion systems

Five out of six RBDAs repOlted that they have been promoting farmers palticipation, and 3 out 6

have water users associations (WUAs) as well as units to look after such associations. Three RBDAs have yet to set up WUA as well as the organisational support for them. Three RBDAs have given some maintenance responsibility to the WUA while two out of 6 are trying to legitimise the activity of WUA under the authority of RBDA ( Pradhan and Nwa.1993). It shows about 50% RBDAs surveyed have stalted program for participatOl)' ilTigation management It is a great change among these RBDAs which had experience of non-co- operation and frequent connict between the authority and the famiers.

One has to make note that paliicipatory approach to involve the fanners in the management of irrigation systems require careful planning as well as polItical and policy SUppOlt. Following section attempts to present examples of the eff0l1 to introduce palticipatory inigation management in Nigeria.

HADEJIA-JAMA'ARE RIVER BASIN DEVELOPMENT AUTHORITY (HJRBDA)

Kano River Irrigation Project (KRIP):

HJRBDA, for example, introduced the pmticipatory irrigation management in Kano River lITigation Project (KRIP) which is one of the largest operating inigation systems with 15,000 ha command area. The participation of the farmers in the system management becomes possible when farmers are organised into groups through the fOlmation of water users association (WUA). The common binding force for the members in the water users association (WUA)is "Water" so the group is to be organised for the purpose of utilization of "water" in the system (Ben- Musa. 1990).

Three pilot sites were selected in KRIP for the action research on institutional change including WUA acti\lities.. Those three pilot sites are located in the head, middle and tail section of Kano River lITigation system.

The hydrological boundaI)' \vithin distlibutory channel or equivalent is taken as the geographical' area for WUA formation. For KRIP, it is found that hydrological bound3l)' is the appropriate basis to bring the farmers together. In order to have farmers' continue their interaction in WUA, there is need to have a common bihding:factor.' hi 'hydrological boundary, it is water which brings the fariners together. The yilla'ge becomes difficult to be unitf6t water users association. because the members of the .' viliage hardly cojncJ(,le vyith the members of the hy~clo~c~~u~m)'. . .

mll/NWRI SEMlNAR PAPER. 1994

The WUA formation in these three pilot sites is allowed to grow out of farmers interactions within the hydrological boundary area at distributary channel over period of time. KRIP staff remained as the facilitator, not as the designers of WUA for the farmers. Hence, blue print approach for the formation of WUA was not followed.

The exercise in KRIP is to form WUA which will be "self- governing, self-regulating and self-supporting unit" within large scale iOlgation system.

The effectiveness of WUA in three pilot sites can be measured through the results shown in (a) physical improvement program through maintenance of channels, (b) improvement in hydraulic peifOlmance, (c) contribution to collect more water charge through col

s lective effolt and increasing potentiality for water charge collection, (d) helping save falmers time in irrigating the field and (e) contribution to increase the crop coverage in the command area. (Pradhan, 1993).

Hadejia Valley Project (HVP):

Hadejia Valley Project has command area of 6500 ha. in the first phase of the first stage. Pilot water

t users association was formed in Gamsaka, the comn pleted pmt of HVP. It consists of 55 falmers with 25 g ha. of land. It has three field channels. :I.

1-The farmers are organised in WUA from the dry

r~ season of 1992/93. The chairman, secretary and treas

!r urer of the association are elected by the members of the association. The membership in the association is :e based on the landownership within the hydrological n

)r boundary of the command area. The association has taken several important decisions. Farmers enn countered the difficulty of water distribution. This problem was attributed to inappropriate grading of the

:- channel level. This was brought to the notice of the t\ constlUction people. Necessary remedial measures e were taken. The land development was also not apn propriate so it has caused difficulty in water applica

tion in the field. Interaction with the farmers at the initial stage through the water users association has Y helped to remove some of the technical defects in the

It physical construction.

o The members of the association felt the need of 's water scheduling. With the help of the staff of HVP, o water scheduling plan was prepared and implemented tl by the water users association.

s

An other important decision was taken in relation Ir to uncontrolled animal grazing within the. command e area. In order to protect the crops from the animal grazing, regulation was initiated that the unattended

cattle destroying the crop will be aJTested by the WUA. Provision of fine was made if the animal destroys the crops. The fines thus collected will be deposited in the account of WUA. The exercise of WUA in pilot site of Gamsaka clearly indicates that the WUA can take care of micro problems within their environment quite effectively.

ANAMBRA~IMO RIVER BASIN DEVELOPMENT AUTHORITY.

Lower Anambra Irrigation Project (LAIP):

The Lower Anambra Inigation Project (LAIP) with about 6000 ha. command area is located in about 55 km west of Enugu in Anambra State. The entire constlUction and procurement programs were completed by late 1990. The LAIP is being implemented with the management and SUppOlt unit provided by Japanese lntemational Co-operation Agency (JICA). A water users association (WUA) has been formed. Farmers are to be responsible for O&M of tertiary and field channels. Observers of LAIP expressed the· opinion that there is need of intensive effort to strengthen WUA in LAIP Project needs to provide enough SUppOlt to assist the organisation of WUA With the effective role to be played by the WUA, it helps to promote palticipatory inigation management. The project also has to play an important role to strengthen the WUA activities in irrigation managem~nt

Niger River Basin Development Authority (NRBDA):

Similarly, Niger River Basin Development AuthOlity has established several water users associations in its iITigation projects. It is reponed tbat Niger River Basin Development Authority is expected to establish in principle, water users associations and Farmers Unions in all projects within its authority. It is also pointed out that due to the reduction of the scope of activities of the RBDAs and with the removal of the agriculture related functions of RBDA, the fmmers organisations exist mostly in name. They are not active (Ayo. 1992). However, agency can play an impOltant role to. promote pmticipatory iITigation management. In order to make it happen, the agency should adopt participatory irrigation management as one of the objectiyesof the agency.

Fadama Users Association:

Besides the falmer participation through water users associations in public sector inlgation systems

7 IlMIINWRI SEMINAR PAPER, 1994

II

under River Basin Development Authorities, the traditional irrigation systems were also identified for the participatory approach. The notable effort is seen in Agriculture Development Projects through Fadama Users Association (FUA) under World Bank funded Agriculture Development Projects (ADPs). Fadama lands are seasonally tloodable floodplains along major rivers and depression on low ten'ace Different types of irrigation technologies including shadufs were employed for dry season agricultural activities. (Mijindadi. et. aL 1993 )

The main purpose forfonning the Fadama Users Association (FUA) is to collect the small scale inigators together and eonstitute them into defined membership group in order to establish a solidified internal system of irrigation producers for continuing and sustaining the Fadama Development Project. The involvement of F adama users as beneficiaries is essential component to continue the project activities dUling the implementation and beyond.

The main objective of FUA f01mation is to accelerate the expansion of Fadama development and promote the sustainability of small scale ilTigated agriculture production through organised group cooperative activities rather than individual productIOn effort. (Musa Sani Tofa. 1993)

It needs to have 'careful monitoring and evaluation of these e1'f01ts undertaken in ditl'erent organisatIOnal setting. It deserves understanding of the process undertaken to make WUA active and effective. Strengthening WUA is an ongoing activity and needs continuous institutional SUpp0l1.

DONOR SUPPORT FOR PARTICIPATORY MANAGEMENT.

World Bank:

World Bank has supported the palticipatory man· agement in F adama Development Program through the provision to establish Fadama Users Association.

For the large scale itTigation development speciaily for Kano River In'igation and Lower Anambra lITigation systems, World Bank has proposed the promotion of participatory management through the formation of active and responsible water users association to take the responsibility of operation and maintenance' up to celtain level of the system. These aspects were brought as important factors before funding for the extension and expansion of lhese irrigation systems.

African Development Bank:

It is reported that this bank is interested to fund the second stage of the first phase of Hadejia Pro)Ccl The bank has put the provision of strengthening the participation of the fa!111erS in the implementat ion of first stage of the first phase program of f-Iadejia Valley Project (HVP). Hence, the important role ()f the faimers are duly recognised in the impieillentatioll of these projects. In this context, H VI' has already stalted pilot project for parllt.:ipatorv management at Gamsaka sector of the project

European Community (EC):

The project funded by European community has also encouraged to incorporate partieipatory management of ilTigation systems Ihrough the fonnation of water users association. Wumo Irrigation Projed, Sokoto, funded by EC incorporated the water users associations in the project. The projeet went oue slep ahead making the land available to the eultivators for seven years instead of one year as was practised in the past. The change in the land relationship was introduced with the objective that the members will have long term interest 10 mall1tain the system if the land is allocated for longer period of time. (Ward, 1993)

WUA has played an impoitant role as a means to ensure the parlicipation of the beneficiary rmmers in the management oj' the iiTigalion system

BROADER VIEW ON WUA:

It is neces:;ary to undersumd the eonte:-:tual framework to make the WUA etTcelive in Nigeria. The integrated approach on WUA might he ahle to e:-:plain the role and requirement:; for the effectiveness of WUA in Nigeria

In order to understand the conte:-:tual frame of WUA, it is proposed to look at the role of WUA from the experience of KRIP and HJRBDA. There are several factors influencing on the functioning of WUA. Before the fOlmation of WUA, one has to make.the objective quite clear. It should not be taken only as the appendage of the agency .. lt should be provided not only duties but also rights as well ( Ambler. 1992) The dynamics of the operation of WUA is to be understood ttioroughly.

KRIP agreed to fOlm the WUA at the distIibutory level In order to have this happen, KRIP provided suppOtt of statT and resources. Units.to look after WUA is to be fOlmed al the project level and above in

llMllNWRI SEMINAR PAPJi'R, 1994 8

http:Units.to

order to provide both institutional and policy support to WUA. Staff with appropriate approach towards farmer participation are to be deployed.

SOCIAL +POLITICAL +CULTURAL CONTEXT/DONOR AGENCY

LEGIOSLAIVE/LAW

MINISTRY OF WATER RESOURCES

HJRBDA

KRIP

EJ

INTEGRATED APPROACH TO UNDERSTAND WUA.

Fig. 1.1: Integrated approach to understand

WUA:

It requires continuous re- orientation to the staff in charge of WUA on objectives of participatory ilTigation management, role of farmers and good skill to deal with the organised group of farmers. HJRBDA adopted the policy of paI1icipatory ilTigation management. The Board authorised the WUA to collect water charges on behalf ofKRIP.

The Executive Director of Services of HJRBDA is assigned the responsibility to supervise the WUA activity. Separate unit at HJRBDA is made responsible to provide back up suppol1 to WUA activities. Separate unit for WUA is creatcd at project level. Effort is made to provide legal recognition to WUA.

Beyond Authority level, explicit policy regarding WUA is expected to be fOlmulated. Papers wlitten by the Directors of Ministry of Water Resources identifying ilTigation research priority in Nigeria did not identify the participatOl)' inigation management as an impOltant issue in better utilization of publie sector irrigation management in Nigeria. (Soribe 1993 and Ibrahim. 1993)

At the govemmental level, ef1'ol1 is to be made to provide SUPp0l1 to Water Users Association The experiences of the Philippines Sri Lanka and Westel11 United States of Amenca show that there are some

common features which need to be present for the promotion of the patticipatol), ilTigation management. Guararttee of water right to WUA, legal and institutional basis of water users association. recognition of association as an enllty, land ownership of the f31mers and membership of the association on the basis of landownership are some of the common features to make WUA functional. The authority should have conviction about the usefulness of the p311icipatOl)' inigation management. Discouraging subsidy by the govemment to lITigation development and management promotes p81ticipatOl)' management. Hence, it is not only the formation of WUA at certain geographical level of the inlgation system but there is need to have deliberate and consistent policy on;

a) Water right issue

b) legal and institutional basisofWUA

c) land ownership as the basis of membership the association

III

d)

e)

promotion of the participatOl), management the policy of the govemment

no subsidy by the gowmment

as

The integrated approach on WUA at govemmental level shows that the policy support on those 1'acturs mentioned abovc is vel)' important. The WUAs

9 IIAII'NWRf 5,'f.AffNAR PAPER, 1994

have been effective in those environmental condition where government support policy regarding water right, legal and institutionaI arrangement, land ownership to the farmers and participatory management as a definite commitment.

The quick survey of different irrigation systems in Nigeria shows that efforts are made for the participatory irrigation management. The role of the farmers is also recognised in the inigation management (pradhan and Nwa, 1993). However, there is no legal provision regarding the water users association in irrigation system. In order to give an important role to the farmers group, legal provision regarding water users associations is to be enacted by the legislature. There is no strong lobby as yet to convince the legislators about the need of the water users association for bet

ter utilization of the irrigation infrastructure developed by the public investment.

The wider environmental influences including the donors, are conducive. There are examples of farmers co-operation in the villages in their economic activities. In Northern Nigeria, the traditional mode of co-operation among the farmers and villagers are demonstrated through "Gandu" ( social production unit), "Gayya" ( work party system) and "Kungiyar Gayya" ( traditional associations) (Hill. J990). There are examples of informal credit cooperatives and community development associations (Dele. 1991) Hence, WUA has conducive wider environmental context. However, deliberate eff0l1 is to be made to promote participatory ilTigation management.

fIAlilNWRI SEMINAR PAPER, 1994 10

de-

the lers ctiof

are ion yar ere md 91) Ital ~ to

Adams, W.M. 1991. Large Scale lnigation in Northern Nigeria: Performance and Ideology, Trans. Ins. Br. Geogr, N.S. 16.287- 300.

Ambler, John S. 1992. The Language of Farmer Water.Users Association: Rethinking Iniglition Organisation Development in India, paper presented at the National Seminar on Farmer Management in Indian lnigation, Hydrabad: Administrative Staff College.

Andrae, Gunilla and Bjorn Beckman. 1985. The Wheat Trap: Bread and Underdevelopment in Nigeria, London: Zed Books Ltd.

Bagadion, Benjamin U. and Frances F Korten. 1991. " Developing lnigators' OrganisatIOns: A learning Process Approach" in Michael M. Cemea (ed.). Putting People First: Sociological Variables in. Rural Development, New York: Oxford University Press.

Bandaragoda. D.J and G.R. Firdousi. 1992. Institutional Factors Affecting Performance in Pakistan : Research and Policy Priorities, Colombo: liM!.

Ben Musa. S. J990." Institutional Capabilities, Constraints in Planning, Development and Management of Irrigation Systems in Kano State" in P.R. MaUI}'a. et.a!' (eds.). :Farmer Participation in Irrigation Development and Management, Zaria: Institute of Agriculture Research.

Dele, Olowu. S. Bamidele Ayo, Bola Akande. 1991. Local Institutions and National Development in Nigelia, lIe-Ife: Obafemi Awolowo University Press.

Hill, Polly. 1990. "Father and Sons in Gandu" in O. Otile and C Okali (eds.) Readings in Nigerian Rural Society and Rural Economy: Ibadan: Heinemann Educational Books (Nigeria) Limited.

Ibrahim. M. H. 1993. Views on Irrigation Research Priorities for Nigeria" in Emem U. Nwa and Prachanda Pradhan (eds.). lnigation Research Priorities for Nigeria. Knao: IIMINigeria Field Office

Kolawole, Are, 1990. "Constraints to Falmer PanicIpation in Large Scale Irrigation Projects in Nigelia" in P.R Maurya. et. al (cds).

REFERENCES

Farmer Participation in Irrigation Development and Management, Zaria: IAR.

Kolawole, Are. 1992. "Commercialization and Future of RBDAs in Nigeria" in A.D. Sanda (ed.). Managing ItTigation Projects in Nigeria. Ibadan: Spectrum Books Limited.

Mijindadi, N.B. Q. Umar and M.N. Tyem.1993. "ADP Experiences with Fadama Development: Achievements, Problems and Prospects" in Emem U. Nwa and Prachanda Pradhan (eds.) liTigation Research Pliorities for Nigeria, Kano: IIMI-Nigeria.

MOJis, Jon R. and Den'ick J Thorn, 1990. ItTigation Development in Africa: Lessons of Experience, Boulder: Westview Press

Musa. LK. 1992. "Changing Policy Horizon for Irrigation in Nigeria" in A.O. Sanda (ed.). Managing Irrigation Projects in NigeIia. Ibadan: Spectrum Books Limited.

Ostrom, Elinor, 1992. Crafting Institutions for Selfgoverning Irrigation Systems. San Francisco: Institute for ContemporaJ}' Studies.

Pradhan, Prachanda. 1989. Pattems of Inigation Organisation in Nepal: A comparative study of 21 Farmer-managed In-igation systems, Colombo: IIMI.

Pradhan, Prachanda. 1993. ParticipatOl}' lITigation Management through Water Users Association: An Exercise in Kano River liTigation System, Nigelia, Kano. IIMI-Nigeria Field office.

Pradhan, Prachanda and Emem U. Nwa. 1993. "Preliminal}' Indications of Research Needs for Improved lITigation Management of River Basin Development Authority Projects in Nigelia" in Emem U. Nwa and Prachanda Pradhan. (eds.). Inigation Research Pliorities for Nigeria, Kano: lIMI-Nigeria Field office.

Pradhan, Prachanda. 1992. In-igntion Sector RefOlms in Nigeria.lIMI Review. Vol. 6. No. I.

SOIibe. F. I. 1993. "Views on lITigation Research Priorities for Nigelia" in Emen U. Nwa and Prachanda Pradhan (eds.). Inigation Research Priorities for Nigeria. Kano; IIMINigelia Field office.

11 IIMliNWRI SEMINAR PAPE.1

Svendsen, Mark and Douglas Vennillion. 1992. Perfonnance of Management Transfer in the ColoIl\~ian Basin Project. Paper presented in IPR 1992. Colombo: IIM!.

Tang, S. Y. and Elinor Ostrom, 1993. The Governance and Management of Irrigation Systems: An Institutional Perspective. ODI IMN Paper No.23, June 1993.

Tofa Musa San!, 1993. Fadama users Association under the Fadama Development Project in

Kano Agriculture and Rural Development Authority (KNARDA), Kano: IIMI-Nigeria Field office (mimeo).

Uphoff, NOlman. 1986. Improving Irrigation Management with Fmmer Pm1icipation. Boulder. Westview Press

Ward, Rod, 1993. Wumo Ili'igation Project WUA Adviser Inception Rep0l1, Sobto: Sokoto Environmental Protection Program.

lIMIINWRI SEA1INA}? PAPER. 1994 12

POLICY ASPECTS ON PARTICIPATORY

IRRIGATION MANAGEMENT

Engr. I. K. MUSA.

JIg. 'j)irector of ImiJatioll allti' :Draillage

'FeJera['}I,{inistT1J oj 'Water '/(esources allii 'l(JJra[ :De:ve[opll1ellt

INTRODUCTION: During the last three decades, especially following the advent ofthe oil boolll. Federal Government ofNige

ria and a couple ofState Governments embarked upon the development oflarge scale irrigation and other water use projects. It is now recognised that government alone cannot do it all. The responsibility oflllanagemen{ must be shared between the public irrigation agencies and the beneficiaries, Orgallised ilsers grollps aclive participation in management has been recognised as a desirable means to overcome Iheftl/ancial d~[ficllities faced by the projects.

Irrigation projects have been major agents ofchange ofthe pattern and ql/alily oflife, Irrigation development is essentially for the people, it must be related to the people and wade responsive 10 lvhat people consider to be their immediate and long-term needs. For the optimisation ofbenefits frolll irrigation projecls. the participation of water users is therefore essential. Participatory management promotes collective responsihility at decision making and inculcates III the water users a sense ofbelonging, ownership of, and comlllitment to the project.

Many irrigation projects in Nigeria have nol generated the stream ofbenejits envisaged by the planners. although they have good physical irrigation infrastmcture. This is because irrigatioll is a humanaclivity as wel/, Unless the people who are to benefit from these irrigation projects understand lhe method of /lsillg water effectivelyand interested in doing so, the pel/orlllance ofthe irrigation systems would colllilllle 10 he disappointing. It is necessar); to have active participation ofbeneficiary farmers in irrigation lI/aNagemenl for Ihe reasons given above. .

This paper proposes to describe the concept and scope of public involvelllent program, II also attl!lIIpls to describe the procedures and techniques that can be effictive for participatory irrigation managl!lIIellt. A variety oftypes ofwater users association shall be reviewed and the stalus ofparticipatolY irrigation lIIanagement practices in Nigeria will be highlighted, Attempts would be made to examine possible strategies for develoPlllent of active water users associations within the context of Nigeria environmellt, These faclors will provide policy framework for participatory irrigation management in Nigeria,

iii) CONFLICT RESOLUTION - reduction of II. CONCEPT AND SCOPE OF contlicts between upstream and downstream

famlers and between farmers and govcmmentPARTICIPATORY IRRIGATION agency otTicials;

MANAGEMENT iv) RESOURCE MOBILISATION - increased

contributions of labour materials and funds durPm1icipatory ilTigation management requires the ing the planning, construction, operation andactive interaction of the authority that operates the irmaintenance stages',

rigation project, the farmers and govemment reprev) IMPROVED SYSTEM PERFORMANCES·

sentatives in the funherance of the following (de increased efficiency in the soil and water reSilva, 199Ib): sources managemeill 1'01' the attainment of susi) PRODUCTIVITY - increases in vield, tained, intenSIfied production levels. area

cultivated and cropping intensity" ~ Four scop~s of participatory management have ii) IMPROVED WATER DISTRIBUTION - been suggested (Kramer 19(9) namely·,

greater reliability and predictabi lity of water deI) invol\'em~nt in policy.;, liwries and greater equity of dIstribution par

ticularlv between up:,;lream and downstream Ii) resource contrihution to project development,are

IV) job experience and employment.

Participation thtishas a wide interpretation; from asking falmers some questions to their contribution of unpaid labour to even complete management of scheme. There must be a cel1ain level of co-operatIOn if water from one source is to be distributed among several farmers. Naturally, all farmers are inter-dependent on one another. The ilTigation system operates successfully only if each farmer believes and copyrights in such a way as to assist the management process.

Irrigation agency can not deal with each farmer on an individual basis on a large ilTigation project. Fmmers are therefore encouraged to join and participate in the Irrigation Water Users Association (WUA). The Association is expected to represent the desires and needs of all the fcumers The tasks of the Waier Users Association in inigation system management differs from country to country and even within a country from region to region. The degree of farmers participation is often influenced by the size of the schemes, sensitivity of land tenure, socio- political maturity of the society, and the nature and role of iiTigated agriculture in the area.

Of the three activities of iITigation management (see table Ll for details) those activities focused on water are naturally the most direct fOlms of hTigation management. Generally, in a simple falmer owned village irrigation scheme, activities related to acquisition of water are usually done almost entirely by the faffi!.ers. In contrast, on fOlmallarge system, farmers' involvement in acquisition is generally very limited. Similarly, the situation is the same with allocation of water. In regard to distribution of water, falmers should be able to do this by themselves, but this may present some difficulties in the larger systems due to possible competmg demands:for labour or social contlicts.

Fanners paJ1icipation in the planning and design of an inigation scheme is desirable and feasible, especially for the smaller schemes, offering valuable ideas and practical suggestions. For the tertiary system of large liTigation schemes, it is essential when rehabilitation and organised manner, especially \vhen rehabilitation and modemisation programme are planned 01' implemented. Increa~ingly fa1l11erS are being in\ol\t:d in the construdlOll works on rehabilitation of tertiary canals. Again, water users largely dominate the operatIOn and maintenance activities.

TABLE 3.1. ACTIVITIES IN IRRIGATION

MANAGEMENT (UPHOFF 1991)

A. Activities focused on WATER

I. A.cquisition of water (surface or ground water).

2. Allocation of water

3. Distribution

4. Drainage.

B. Activities focused on STRUCTURES to control Water

I. Planning and Design

2. Constlllction

3. Operation and Maintenance

C. Activities focused 011 ORGANISATION to control structures and through them to control water.

I. Resource-making

2. Resource Mobilisation

3. Communication

4. Connict Resolution

Except for the headwork:,; and main canals of large system:; where a high degree of t-echnology and financial resources mny be required, most of the operation and maintenance activities can easily be the function of properly constituted water userS association.

In ilrigation management, the activities of decision making, resource mobilisation, communication, and contlict resolution are the traditional areas where organised eff0l1s of fanners are most felt. These are spheres where fanner representatIve CHn participate ill higher levels within a system. Deeision making 011 Issues that affect filliners will he a futile exercise Without the active pm1iCIpalion or beneficiaries. Resource mobilisation is the most vital organisational activity in inigation management Although money and materials may be limited, yel fanners' contlibution to labour and their in1'olln3tion potentials remain the most e:\tensivdy mohilised resources. Higher resource mobilisation can be promoted through clear and acceptable diviSIOn of responsibilities belween fanners and irngation agenc) . Ihis would a\:;(" ensure that no task is left unallended

In addition, participatory management of ilTigation schemes occurs on an infol1l1i.l1 basis. This type of participation is difficult to idenl1fy and monitor,

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but it is no less real and it is sometimes even more effective. Water distribution in some Nigelian societies follows certain unwritten customary nonns,' while communication in most rural.societies is based on interpersonal relations. and contacts. Similarly, contlict resolutions are mostly done throllgh interpersonal conciliation rather than COUltS.

Sustainability of participatory irrigation management can only be attained when there is congruence between beneficiaries and irrigation agency's goals.

III. IRRIGATION MANAGEMENT IN

NIGERIA

Of the estimated 900,000 hectares presently under ilTigation 90%' are falmer-owned and operated. Most public sector funded lITigation projects have been developed by the eleven River Basin Development Authorities (RBDAs). Some state governments are also involved in public sector ilTigation development but their size and contribution have been minimal.

Overall, the public sector agency has dominated the development of large scale il1"igation systems in Nigeria. The multiplication of public institutIOns involved in irrigation management at various levels of government-Federal, State and Local have led to overlapping of functions, and the inefficient allocation of resources. there is now a pressing need for ra

\ tionalisation of roles offalmer palticipation.

In the past, Inigation Agencies promoted paternalistic approach in relation to falmers. They have been given the management strategies without farmers' involvement or palticipation. Unfortunately, they face organisational, operational, financial and policy constraints. They adversely atlected their capability to even implement their managemept strategies.

Falmer participation in management of large scale ilTigation has been nominal. Falmers have no role or rights over the headworks and the main canals. They involve technological, institutional and legal frameworks surrounding these projects. Fmmers are therefore not motivated to maintain. On the other hand, falmers have had· significant' role to play in the operation and maintenance of tertifll}' canals.

Again, there has been policy reversals in respect of RBDAs' roles in irrigation. One of such changes is with respect to scope or RBDAs' involvement in agricultural production. These have negatively affected the services rendered by RBDA to farmers and consequently the level of farmers' participation in Irrigation management of their respective projects.

In 1987, the RBDAs were divested of their erstwhile agricultural production functions. This led to significant reduction in the scope of activities on their iITigation projects. The emphasis has changed to water resources developm·ent. It is important to note this apparently relegated the f81mer to a position of secondary significance because of the emphasis on development of physical infrastlUctures to the neglect of service functions to fanners,

Similarly, the levying water charges was introduced. F81mers were never been fully involved in the decision to fix the water charges, It is repol1ed that payment Of the water charges is avoided by passive resistance. No spontaneous Water Users Association (WUA's) has arisen. Some R13DAs have promoted WUA through the collaboration with Intel11ational Irrigation Management InslItutt: (llM!).

Other difficulty for the promotion of fanner participation in lnigation mana'gement can be identified in the exercise of resettlement programme for the fanners which resulted int~, . hostile relationship between Inigation Agency and fanners, the performance of large scale inigation systems under the commercialization policy has greatly been constrained by lack of beneficiaI}' pal1icipation, and 'inadequate resource mobilisation for effective operation and maintainance of the systems.

There are several changes that contributed to modify the way and means' by which irrigation infrastlUctures are developed, modemised, rehabilitated, maintained and managed, The decisions on in'igation investment and maintenance have long been rested with government. The recent developments indicate that government will no longer take the total responsibility of operation and maintenance. Previously, el11ph~s;s was put on ilTigation infrastructure development. However, little resource and attention were paid to operation and maintenance. The inigation systems which were built at such considerable cost, have deteriorated and gradually lost all or pmts of their service capacity. Consequently, pressure is being exerted by intemational funding agencies to improve and regularise maintenance, It is now necessary to introduce institutional re1'Ol111s to achieve t11

ment Institute. in 1992, the preliminary results of beneficiaries participation in operation and maintenance of facilities at tertiary level have been encouraging. Reports have it that maintenance of channels of WUA has reduced water wastage and the quantity of water delivered to tail enders has increased while the frequency of illegal off takes has reduced and payments of irrigation water charges have improved.

Federal Government therefore plans to further strengthen the WUAs through financial support to enable the IIMI's programme to cover the entire KRIP and subsequently to extend I!Mrs role. to cover Lower Anambra Irrigation Project as well.

IV. DEVELOPMENT OF WATER USERS

ASSOCIA1'IONS

Looking at the situation indifferent countIies, it is possible to identify the likely way forward in the development of water users association in Nigeria. They will take root here very soon. The development of active water users associations are intluenced by the so

. ciety. The contribution and success can be seen as the result of interactions between six main themes;

The learning process- The process will not base on blueprint approach. The means available (existing farmers organisation, capital and materials); Socio-political and cultural development;

Irrigation Agency Support;,

Technology transfer;

- Legal support",

Progtamme fordevelopment of WUA should not follow the conventibnal methods of designing detailed programmes in advance and then going/o the field' to implement as per' design, The approach should be flexible, enabling adjustment arid mOdifications to be made as the programme progresses . The falmers accept the usefulness of WUA . Some basic planning would be needed. It is, in fact, necessary to have increm!!ntal development. It is the basis for the growth of healthy WUA.'

It is ;llso nece~sary to explore existing fmmer organisation both formal. or infolmal. The WUA should be built upon and modified on the basis of the information of the traditional socio-institutionaldeve!opment in the society. These organisations tend to have procedures for decision-making, commlmication, consensus building, conflict resolution and resources mobilisation. However, there is need to have an appropriate assessment of the capacity of the WUA in

resource mobilisation and capital formation. One should not be over ambitious in imposing all possible responsibilities to WUA.

Water Users Associations have, to the greater extent, to be politically neutral. Attempt is to be made to keep party politics out of WUAs. Although it may be necessary to keep the local politicians aware of the objectives and activities of WUA in order to avoid misunderstanding and to mobilise their support.

The support of irrigation agency is vital to the successful functioning of WUA , The process of participatory irrigation t:1anagement requires interaction between the agency and farmers. It cannot be effective without the active support, initiative, and participation of irrigation agency personneL They are responsible for the management of the irrigation through participatory process. With these activities into consideration, it is the responsibility of the irrigation agency to initiate action and assist falmers to organise themselves in a systematic manner.

The aspects of technology transfer and extension services are essential for effective pal1icipatory irrigation management. An appropriate system would be one where the emphasis is on group activity and where extension agents and farmer representatives interact and exchange infOimation. this is the basis of a participatory management style. In the process of technology transfer be it operatidnalor maintenance methods, the fidd officers of theiITigation and agricultural agencies would initially have to be the facilitator. WUAs are to be given proper care and nurture them over period of time before they become mature,

One other impoltant aspect of the development of WUA relates to legal enactments to supp0l1 or establish water user association. There is no'doubt that legal enactments may benecessm-y but· such enactment should be enabling act to SUpp0I1 WUAs once they are fOimed and after they have gained momentum. Reversing the sequence in creating laws that have to subsequently eam public SUppOt1 is less likely to produce useful results.

V. PARTICIPATORY MANAGEMENT: A PROCESS INVOLVING SOCIETY

Inigation agencies in Nigeria would have to transfer and develop new competencies. The introduction of participatory management of ilTigation system involves radical transformation in the attitude and behavjour of inigation agency officials as well as the farmers, It is for this reason that .an intelmediat-y, serving as a catalyst as in the case of lIMI is most

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IlMIINWRI SEMINAR PAPER, 1994 16

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beneficial in the transformation process. The success of participatory management would largely be dependent on the extent to which the irrigation agency and by extension the officials are genuinely interested in transferring authority to farmers. The pilot WUA programme on KRIP has been remarkably successfuL It was felt at the time of experimentation of WUA in KRIP that the farmers will be less motivated to take the responsibilities of O&M when the system is in a dilapidated condition.

Toward sustained participatory management, the agency could assist and motivate the new WUAs considerably by ensuring that contracts for civil rehabilitation works are awarded te them. This would ease the burden impose on farmers by such other acti vities like sharing costs of O&M. Representation of farmers should cut across their spectl11m and should

seek to enlist support and collaboration of women and youth, the head-enders and tail-enders, in the irrigation management activities. Again sustainability of WUAs can be influenced by the extent to which there is fmancial accountability towards the membership.

Irrigation agency must seek to institutionalise elements of co- operation and bargain in their management style. The end result of which shall be long term effectiveness. Both fmmers and agency officials stand to gain influence by openly recognising that ideas are not the preserve of one group nor does it flow fIom only on