MALAWI
Handing-over of Irrigation Schemes to Farmers
Project number: TCP/MLW/6611
Starting Date: June 1996
completion Date: October 1997
Government ministry responsible
for project execution: Ministry of Irrigation and Water Development
FAO Contribution: US$ 232,250
The local population in the scheme areas had been growing rice for a long time. With the promise of increased yields and double cropping, some farmers grouped together and asked for schemes to be developed in their areas. Where this voluntary request was not forthcoming, but where it was assessed that there was a good potential for rice growing it was decided to develop schemes in these areas. The areas identified were surveyed and declared "public land", to allow a wide range of farmers to participate, mindful of the problem of land tenure if the land remained under individual ownership. These schemes were constructed in the late 1960' and early 1970's, under supervision of the Irrigation Branch with the objectives:
a) to utilize empty or undeveloped land in potential irrigable areas;
b) to serve as demonstration of high intensity cash cropping to the surrounding village farmers;
c) to form a nucleus for rural development;
d) to intensify production of rice by irrigation, with the aim of enhancing rice exports.
Originally the schemes used the following land tenure and plot allocation system:
- most settlement schemes were declared "public land" under the Land Act;
- settlers initially had a five-year licence to occupy their plots, with stringent conditions laid down. Attempts were later made to replace the licence with a lease contract (which did not specify a period but which was operational as long as the stringent conditions were followed).
- allocation committees were set-up for each scheme. These were responsible for farmer selection and plot allocation to farmers and ensuring that the farmers followed the conditions according to their licences. Under these allocation committees, farmers committees were also formed to assist in the management of the schemes. Currently farmers are participating in four committees:
(i) the management committee (headed by the government scheme manager)
(ii) an irrigation committee
(iii) a crops committee, and
(iv) a credit committee
However, it must be noted that over the past 20 years the level of farmers involvement in operating and maintaining the schemes has been limited and consequently their experience in scheme and water management is low. This was due to the top-down approach used in the development, operation and maintenance of these
schemes which government initiated, designed and constructed as well as moved and settled farmers. In general, the administration of the schemes has not fitted very well with the social and cultural fabric of the areas where farmers did not have security of tenure.
Since it is government's intention to increase rice production as an export as well as a food security crop (bearing in mind that presently over 50 000 smallholder farming communities are dependant on rice cultivation) government policy therefore places now emphasis on economically self-sustainable and self-reliant irrigation schemes bearing in mind that the past policy to run the schemes by government staff has turned out to be too costly and inefficient. The principle of self-sustainability demands that communal irrigation be part of a rural development process rather than the mechanistic implementation of irrigation works. This means that it should be a dynamic and continuing process in which the farming community is gradually introduced to proper irrigation principles through training and demonstration. Self-reliance means that farmers should have the ability to operate, maintain, and manage their schemes as a community enterprises with as little outside intervention as possible.
It is, therefore, government's intention to hand over the schemes to farmers in order to pursue new initiatives in irrigation development. It is envisaged to physically rehabilitate all the schemes to bring them back in a good operational condition. To this end, Government has committed MK 7.5 million to be utilized for this purpose.
A Working Group was formed comprising members from the Ministry of Agriculture and Livestock Development, the Ministry of Forestry and natural Resources, the Ministry of Women and Children Affairs and Community Services, the Ministry of Finance, the Department of Economic Planning and Development, and the Department of Lands and Valuation. The aim of the Working Group was to assess these schemes and come up with recommendations on the handover process. The involvement of the above ministries ensured that all aspects were considered. In particular, the problems regarding land tenure were solved in so far that all 16 schemes will remain on public land otherwise the farmers organizations would have no authorities if the schemes were transferred back to the traditional leaders.
However, if farmers are to run their own schemes, they must have a much stronger management organization at each scheme as it is presently the case. Each farmer must belong to this organization, and it will be this organization to which the scheme would be handed over. In this way there will be private ownership of the scheme land, and also farmer ownership of the scheme. The recommendations for such a new management structure will also apply to all the self-help irrigation schemes. Training of farmers and government support staff in scheme and water management will be another essential issue to the addressed in order to ensure the sustainability of the enterprise. The Government is therefore requesting FAO/TCP assistance to establish viable and well trained farmer organizations for the operation and management of the schemes.
To assist the government of Malawi in developing an appropriate mechanism for devolving to farmers the management of small-scale irrigation schemes.
· An assessment study on the feasibility and requirements for the formation of farmers associations and the transfer of management responsibility of small-scale irrigation schemes to farmers;
· A strategy for the formation of farmers associations and the phased handing over of the schemes;
· A constitution with bye-laws for farmers organization to be applicable for all future small-scale irrigation development;
· A methodology to provide effective support to farmers in irrigated agriculture;
· A training programme for farmers and key staff in the departments of irrigation, agricultural production and extension including prepared training material.
The project is designed for a duration of 18 months. The following activities
will be undertaken
1. Reconnaissance Phase
In close cooperation with the Department of Irrigation (DI) and other agencies involved in irrigated agriculture an international farmer organization issues specialist will:
· Prepare a detailed workplan and verify the TOR for the national consultants in legal aspects and agro-economy.
· Identify and initiate recruitment of the national consultants.
· Undertake a reconnaissance visit on the 16 irrigation schemes and review the present management structures, in particular the social structures on the schemes and draw lessons from this review indicating the potentials and problems with regard to irrigation management transfer to farmers.
· Consult with a representative cross-section of the beneficiaries and as a result of this consultation provide specification of the management structures and skills needed by producers to enable them to take responsibility to as great an extent as possible for sustainable carrying out the various activities.
· Identify any gender issues in the context of farmer organization and self-management related to small-scale irrigation development.
· Draw-up recommendations on either new legislation and/or required amendments covering the formation, legal status, internal structure and functioning of the farmers association.
· Undertake an agro-economical analysis with regard to assessing the financial and economical viability of the schemes.
· Conduct a workshop for farmers aiming to:
(i) introduce and discuss recommendations and results from above studies;
(ii) modify if required the recommendations and agree with farmers on the recommendations;
· Initiate restructuring and formation of farmers association.
2. Training phase
In close collaboration with Di and other agencies involved in irrigated agriculture, an international irrigation extension and training consultant will:
- identify the future role of DI and the extension service with regard to support and promote irrigated agriculture;
- identify training needs both for farmers and support staff and subsequently draw-up a training and related work programme, time frame and budget to allow the formation of suitable irrigation-related producer organizations both through the direct training of farmers and the training of trainers;
- identify 3 pilot demonstration schemes;
- identify any organizations and individuals in Malawi whose experience and expertise might make it suitable for them to be contracted to carry out the training programme referred to in the item above;
- identify the venue for the staff training;
- prepare relevant training material.
First Staff Training
The international consultant in irrigation extension and training will assist in organizing and conducting a 10-day training course for irrigation technicians, agriculturalist and extension workers. The specific objectives of the training are:
i) to familiarize trainees with technical concepts in irrigation engineering and irrigated agriculture;
ii) to learn the diagnostic approach in irrigation;
iii) to familiarize the trainees with the concept of scheme management, transfer of responsibilities and the formation and role of Farmers' Associations;
iv) to introduce approach and methodologies of participatory farmers training in irrigation;
vi) to provide detailed instructions on the implementation of a pilot farmers training course.
The training will include class training, practical exercises, field work and field visits in selected schemes near the training location.
Trainees will include irrigation technicians, agricultural specialists and the extension workers. As technical knowledge and background will be different for each staff category, a separate curriculum and training course will be developed. For reasons of coordination and efficiency the courses will however run parallel and in part jointly.
First Pilot Farmer Training
The farmer training in 3 selected pilot schemes over a period of 5 weeks will be jointly carried out by the officers from DI and the extension service which had been trained during the 1. Staff Training Course supported by national consultants.
The first farmers training will take place before the next cropping season and will follow the Participatory Rural Appraisal approach in where in five weekly sessions the various problems related to the operation and maintenance of the irrigation system will be analyzed. An irrigation improvement plan will be formulated which will include an improvement and repair of the irrigation system and the establishment/strengthening of a water users group to operate and maintain the system.
Second Staff Training
The results of the first farmer training will be evaluated in a workshop in which the trainers report on the results and constraints of the first farmer training which thereafter will be critically evaluated.
The programme of the second farmer training will be presented and discussed
Second Farmer Training
The second farmer training will cover approximately a full irrigation season during which the trainers will conduct a series of well prepared sessions (5 in total) scheduled to take place at critical stages in the growing season.
In the first part of the training (at the start of the growing season) an Agricultural Development Plan will be established which will include:
identification of the main constraints in irrigated agriculture; preparation of a joint cultural plan for the irrigation season in which improved cultural practices are agreed upon;
evaluation and assessment of suitable irrigation practices; assessment of specific measures for the supply of agricultural inputs such as fertilizers and improved varieties as well as marketing of agricultural products;
conduction of a special demonstration and trial programme.
Special attention will be given to the functioning of WUA's, in particular with regard to their full responsibility in operation and maintenance of the schemes. The implementation of the Agricultural Plan will be closely monitored over the growing season by the field extension workers with occasional visits of the irrigation and agricultural technicians.
Third Staff Training
A detailed report on the results of the second farmer training and the implementation programme will be presented and evaluated in a third staff training workshop. Common problems and successful approaches will be evaluated and the methodology and approach consolidated. Recommendation will be made for a follow-up programme.
3. Follow-up Phase
National Workshop
In order to present the results of the approach and methodologies introduced in the pilot schemes during the staff and farmer training programmes and to discuss the recommendations regarding new management structures on the schemes, a national workshop will be held in Lilongwe for senior staff of the Ministry of Irrigation and Water Development and representatives from all agencies involved in irrigated agriculture.
In particular the workshop will prepare recommendations on:
- a strategy for the phased transfer of irrigation management to farmers consolidated in Farmers organization.
- the adoption of the draft legal constitution and bye-laws with regard to the formation of Farmers Associations,
- future role and tasks of ID in supporting the management, rehabilitation and development of irrigation schemes;
- role and tasks of the extension service in supporting and promoting irrigated agriculture.
· Based on the recommendations of the national workshop, an action plan will be prepared concerning:
- formal registration of established farmers organization and official handing over of the schemes; -
- extension of the staff and farmer training programme on a national scale;
- follow-up on initiated farmer group activities;
- preparation of project proposals and investment proposals to further develop irrigated agriculture and to establish an appropriate support structure on a national level.
. Preparation of the final report
INPUTS
PERSONNEL
International Staff
1 Int. Consultant in Farmer organization issues (2 visits) 2.5 w/m
1 Int. Consultant in Irrigation Extension and Training (3 visits) 4 w/m
2 Support mission from FAO Headquarters and Subregional office 3 weeks
National Consultants
Agro-economy 1 w/m
Legal 1.5 w/m
National resource persons for support to training programme 3 w/m
Support Staff
secretarial assistance (temporarily), $5.000
DSA for driver and other support staff
Duty Travel
Inland travel to participate in staff training and to supervise and support the implementation of farmer training and pilot studies $12.000
General Operating Expenses
For sundry, communications, reporting costs and running costs for vehicles $12.000
Supplies and Materials
A considerable number of training manuals and farmers extension material need to be developed, in particular during the first period of the project. Preparation of the training and demonstration material will be supported by the project $10.000
Equipment
No major purchase of equipment is foreseen, except some equipment for training purposes (slide projector ($1000) and overhead projector ($1500), audio-visual equipment ($3000), photocopy machine ($3000)) and some irrigation material for the Mangochi Small Farmer Association not exceeding $4500 $13.000
Training
Technical staff training for 24 district irrigation and extension staff officers in 1 technical training course (10 days) and 2 evaluation workshops (3 days each) are foreseen, requiring support for per diem and use of training facilities
$12.000
Farmers training in 3 locations for 45 farmers and local officials in 2x5 days sessions, requires support for tea and lunch arrangements (45x10x$10) = $4500 $4.500
1 National workshop (3 days) in Lilongwe for 30 senior staff will require funds for per diem and travel of participants from outside of Lilongwe. $3.750
REPORTING:
A terminal statement will be produced at the end of the project by the national Project coordinator assisted by the international and national consultants supporting the project.
Technical reports related to specific outputs of missions of national and international experts, workshop reports and progress reports on the various activities of the project, will be prepared during the course of the project.
GOVERNMENT CONTRIBUTION
The Government of Malawi will provide a national project coordinator on full time basis, who will be responsible for a smooth project implementation. Furthermore, the Government of Malawi and its responsible agencies: the Department o Irrigation and the Department for Agriculture Extension Services will make available adequate provisions and facilities for all national and international staff, as well as the government staff at national and district level to participate in the project activities.
This will include office facilities for all staff assigned to the project, transport facilities (including drivers) and training facilities.
The Government of Malawi will further provide all government staff remunerations according to established government standards.
ANNEX 1
PROJECT BUDGET COVERING FAO INPUTS
(in US Dollars)
Country: ALAWI
Title: Handing-over of Irrigation Schemes to Farmers
Project No.: TCP/MLW/6611
PERSONNEL FAO FUNDS
w/m US$
1100 International Experts
- International Consultants 6.5 108,000
(incl. international travel)
1300 Support Staff
- Temporary Assistance 5,000
1700 National Experts
- Agro-economy 1.5 2,000
- Legal Cons. 1.5 4,500
- Nat. Cons. for training 3 3,500
1900 Technical Backstopping Mission (2) 22,000
(secondment and travel)
Component total: 145,000
2000 DUTY TRAVEL
- In-country travel 12,000
4000 OPERATING EXPENSES 12,000
5000 SUPPLIES & MATERIALS
- Training and demonstration materials 10,000
6000 EQUIPMENT
- Specialized equipment 13,000
7000 DIRECT OPERATING EXPENSES 20,000
8000 TRAINING
- In-country staff and farmers training 20.250
TOTAL 232,250
ANNEX 2
Terms of Reference
FARMERS organization ISSUES SPECIALIST
(2.5 w/m in 2 visits)
Under the general supervision of the Director TCO and the technical supervision of SDAR the consultant, in close collaboration with the National Project Coordinator, will have the following tasks:
· prepare a detailed workplan and verify the TOR for the national consultants in legal aspects and agro-economy.
· identify and initiate recruitment of the national consultants;
· undertake a reconnaissance visit on the 16 irrigation schemes and review the present management structures, in particular the social structures on the schemes and draw lessons from this review indicating the potentials and problems with regard to irrigation management transfer to farmers;
· consult with a representative cross-section of the beneficiaries and as a result of this consultation provide specification of the management structures and skills needed by producers to enable them to take responsibility to as great an extent as possible for sustainable carrying out the various activities;
· identify any gender issues in the context of farmer organization and self-management related to small-scale irrigation development;
· assist the national legal consultant in drafting relevant by-laws for the farmers associations;
· identify any training needs other than irrigation related to be addressed in the farmer training programme;
· prepare in collaboration with the irrigation extension training specialist a training programme for the project;
· organize and participate in a workshop for farmers aiming to:
(i) introduce and discuss among others the recommendations with regard to new management structures of Farmers organizations;
(ii) modify if required the recommendations and agree with farmers on the recommendations.\
· prepare a long term farmer organization development strategy;
· initiate restructuring and formation of farmers association;
· prepare a consolidated report on findings and recommendations.
· participate in the national workshop and present the recommendations regarding establishment of new management structures for the Farmers organizations;
· assist in preparing a national action plan regarding phased handing over of the schemes.
Duty station: Lilongwe with frequent in-country travel