-
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
G214
iPRA ! .
lit9lt7
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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::
PI
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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
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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
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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
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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
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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
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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
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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
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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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an
pl jc jc IT
a: a
" c I
-
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,
1I.IfISIIR1 S},",WNAR PAPER, 1994
http:infol1l1i.l1
-
~
:r).
to
'i to Itrol
s of and per-the
'OCI
lecition, ilcre are
:e at , on else Re)nal ney ibuJall1
relear cen ;ure
ngype tor,
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
. benefi ,of pal pende :and bin trll progI It wa I(RD the r
dilat
agel side talie the lik( far
Bi
F
IlMIINWRI SEMINAR PAPER, 1994 16
-
ion. One I possible
:eater ex)e made sh it may ue of the to avoid
ort.
al to the .s of parteraction be effecj partici'hey are nigation
activities the iJTigers to or
xtension )ry irrig{ould be ity and tives inasis of a )Cess of
ltenance nd agrie facilinUl1ure nature.
ment of r establhl that
enact,$ once lOmenvs that 'i likely
A
transuction ~in inbeha
IS the :diary, most
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