MANAGEMENT OF IRRIGATION AND DRAINAGE SYSTEMS – A SERVICE APPROACH UNESCO-IHE MONOGRAPH 3 Management of Irrigation and Drainage Systems – A Service Approach HECTOR M. MALANO Department of Civil and Environmental Engineering, University of Melbourne PAUL J.M.VAN HOFWEGEN International Institute for Infrastructural, Hydraulic and Environmental Engineering, Delft LONDON / LEIDEN / NEW YORK / PHILADELPHIA / SINGAPORE Copyright © 2006 Taylor & Francis Group plc, London, UK All rights reserved. No part of this publication or the information contained herein may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, by photocopying, recording or otherwise, without written prior permission from the publisher. 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Published by: Taylor & Francis 2 Park Square, Milton Park, Abingdon, Oxon, OX14 4RN 270 Madison Ave, New York NY 10016 Transferred to Digital Printing 2007 ISBN 10: 90 5410 482 1 hardbound edition ISBN 13: 978-9-05-410482-7 ISBN 10: 90 5410 483 X paperback edition ISBN 13: 978-9-05-410483-4 Table of contents PREFACE VII ACKNOWLEDGEMENTS VIII ABBREVIATIONS AND ACRONYMS X 1 THE CONTEXT OF IRRIGATED AGRICULTURE 1.1 The Importance of Irrigation and Drainage 1 1.2 Dissapointing Performance of Irrigation and Drainage Infrastructure 4 1.3 Government Policy and Planning Environment 6 1.4 Lessons from the Past and the Need for a New Orientation towards Irrigation and Drainage Management 8 2 THE MANAGEMENT ENVIRONMENT OF IRRIGATION AND DRAINAGE 2.1 Competition for Water 13 2.2 Characteristics of Water and Related Services 14 2.3 Irrigation and Integrated Water Resources Management (IWRM) 17 2.4 Irrigation and Drainage in the Context of IWRM 19 2.5 Main Interests and Interest Groups 21 2.6 Types of Irrigation and Drainage Organisations 23 2.7 Service Oriented Management: Rationale and Key Elements 24 3 MANAGEMENT PROCESSES OF THE ORGANISATION 3.1 Irrigation and Drainage Organisations 27 3.2 Management Functions 30 3.3 Irrigation and Drainage System Management 31 3.4 The Strategic Planning Process 33 3.5 Financial Planning 37 4 THE IRRIGATION AND DRAINAGE SERVICE CONCEPT 4.1 Irrigation And Drainage As Services 41 4.2 Definition and Qualities of Level of Service 43 4.3 Level of Service Determining Factors 45 4.4 Formulation of Level of Service Specifications 59 4.5 Level of Service Specifications 64 4.6 Service Agreements and Accountability Mechanisms 68 V 5 RELATION BETWEEN LEVEL OF SERVICE, FLOW CONTROL AND MANAGEMENT 5.1 Irrigation and Drainage Levels of Service 75 5.2 Flow Control Concepts 79 5.3 Water Control in Drainage Systems 86 5.4 Level of Service and Flow Control Systems 87 5.5 Relation between Flow Control and Management Inputs 88 5.6 The Link between Level and Cost of Service 90 6 MANAGEMENT OF IRRIGATION AND DRAINAGE INFRASTRUCTURE 6.1 Rationale for an Asset Management Program 97 6.2 Principles of Asset Management 99 6.3 The Asset Register 102 6.4 Asset Management Functions 104 6.5 Development and Implementation of the Asset Management Program 121 7 PERFORMANCE OF IRRIGATION AND DRAINAGE SERVICE 7.1 Conceptual Framework 125 7.2 Performance Spheres 127 7.3 Performance Assessment 133 8 THE WAY FORWARD 8.1 Introduction 137 8.2 Many Challenges – One Common Response 138 8.3 Modernisation, Innovation and Research 140 8.4 Opportunities 141 8.5 Ensuring Future Management Quality 141 REFERENCES 143 VI Preface This monograph is written with the aim of providing an overview of the principles necessary to develop a service orientation in the management of irrigation and drainage systems. The material covered in the book is designed to address an area largely neglected in the irrigation and drainage management literature. This neglect was the outcome of policies developed through the 1980’s to transfer irrigation and drainage system management out of the direct government sphere, in the belief that such policies of privatising these activities would inevitably lead to improvements in the sustainability of irrigation and drainage systems and agricultural production. The message contained in this monograph is that the principles of service oriented management need to be embraced by statutory authorities, public corporations and private organisations alike if these improvements are to be achieved. Simply “rearranging the deck chairs” is not likely to achieve significant improvement in irrigated agricultural productivity, and will not meet the broader objectives of integrated water resources management. The philosophy embodied in this book is that irrigation and drainage systems must be managed as a service business responsive to the needs of the changing requirements of its customers. These are chiefly farmers in the case of irrigation, but may include urban and industrial areas in the case of drainage systems. We believe that this service approach to the management of irrigation and drainage systems constitutes a key element of the strategy that is needed to improve the existing level of performance of many existing systems. Enhanced performance is a prerequisite if we are to face the enormous challenges to produce more food to meet the demand of a growing world population in an environment with an increasing competition for water. This is a why book that emphasises what should be done andwho should do it. It is not a how tobook. It bridges the classical engineering and hydraulic principles related to irrigation and drainage engineering with the basic management principles related to the management of service organisations. The book is written to serve the needs of managers and planners of irrigation and drainage systems as well as students of irrigation, drainage and water resources management. The material presented contains both a synthesis from relevant literature as well as conceptualisation of the several service principles applied to irrigation and drainage. Most of the literature on service management has been developed for commercial and industrial applications; and although the concepts are largely applicable to the provision of irrigation and drainage services, a large amount of adaptation was needed. The content of the book builds largely on the teaching and research efforts of the authors who have delivered this material for several years to middle and senior irrigation managers and post-graduate students at the University of Melbourne, Australia and the International VII InIsntsittiuttuet e fofor r IInnffrraassttrruuccttuurraall, , HHyyddrraauulliicc aanndd EEnnvviirroonnmmeennttaall EEnnggiinneeeerriinngg,, ((IIHHEE--DDeelflft)t), , TThhee NNetehtehrelralnadnsd.s. 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CChahpatpetre r2 2f ofcoucsuesse so no nth eth eex etexrtnearnl aeln venirvoinromnemnte nstu rsruorurnoduinndgi ntgh et hmea mnaagneamgeemnte onft iorfr igirartiigoant iaonnd draanidn adgrea ionraggaen iosragtiaonniss.a tIito hnisg. hIlti ghhitgsh tlhigeh ntsa ttuhree noaf tuwraet eorf rewsaotuerrc ere asos uar cceo masm ao nc opmooml orne sopuorocle anreds othuer cuen adnedrl ythineg u pnrdienrcliypilnegs porfi nIncitpeglersa toefd IWnteagterra tRede sWouartceers RMesaonuargceems eMnta. nIatg aelmsoe nptr.o Ivti dalesso a peprrsopveicdteisv ea poenr stpheec dtiivfefe orenn tth ea nddif fseormenett iamneds s ocmoneftliimcteins gc oinntfelircetsitnsg binettwereeesnts tbheet wmeaeinn thaec tmorasi nin iraricgtoatriso ni na ndir rdigraaitnioang e a—nd T hdera Ginoavgeer n—me nTt,h Teh eG Iorvriegrantmioenn at,n dT Dhera iInrariggea Otiorgna nainsdat ioDnr aainnda gthee UOserrgsa.n isation and the Users. CChahpatpetre r3 3 fofoccuusseess oonn tthhee iinntteerrnnaall mmaannaaggeemmeenntt eennvviirroonnmmeenntt ooff tthhee irirrrigigaatitoionn aanndd d draraininaaggee orogragnainsiastaitoino.n .I tI et xepxlpalianisn sth teh be absaics ipcr ipnrcinipcliepsl eosf omf amnaagneamgeemnte nant da nsdtr astteragtiecg picla pnlnainnngi nagn da intds riotsle inr othlee imn athnea gmeamneangte omf einrrti goaf tiirornig aantido nd raaninda dgrea isneargveic seesr wviictehs a w sietrhv aic see orvriiecnet oatriioenn.t ation. CChahpatpetre r4 4 e elalabbooraratetess oonn tthhee pprriinncciipplleess aanndd eelleemmeennttss ooff iirrrriiggaattiioonn aanndd ddrraaininaaggee sseervrviciceess. .I tIt didsicsucsussesse st hthee mmaainin ffaacctotorrss tthhaatt ddeetteerrmmiinnee aanndd ccoonnddiittiioonnss tthhaatt mmuusstt bbee ccoonnssidideerreedd inin ththee fofromrmulualtaitoino no fo lfe vleevl eol fo sfe rsveircvei csep escpiefcicifaitcioatniso.n Ist. aIlts oa ldsois cduisssceuss stehse tnheee dn efoedr afnodr dainfdfe rdeinffte tryepnets ofty apcecso oufn taacbcioliutyn tlaebvieliltsy a lnedv emlse acnhdan misemchs anneiesdmesd ntoee ednesdu rtoe ae nsseurrvei cae soerriveinctea toiorine.n tation. Chapter 5 discusses the key relations between the level of service and necessary hydraulic Chapter 5 discusses the key relations between the level of service and necessary hydraulic control and management inputs needed for the provision of a specific level of service. The control and management inputs needed for the provision of a specific level of service. The various types of flow control concepts are discussed together with the associated operational various types of flow control concepts are discussed together with the associated operational requirements. This provides the basis for establishing the critical link between the level of requirements. This provides the basis for establishing the critical link between the level of service and cost of service. service and cost of service. Chapter 6 provides the basis for the sustainable management of the irrigation and drainage Chapter 6 provides the basis for the sustainable management of the irrigation and drainage infrastructure assets. This approach is designed to provide a methodology that would enable infrastructure assets. This approach is designed to provide a methodology that would enable the irrigation and drainage organisation to ascertain the actual cost involved of providing the irrigation and drainage organisation to ascertain the actual cost involved of providing irrigation and drainage services. The framework and methodology for implementing an irrigation and drainage services. The framework and methodology for implementing an asset asset management program are also discussed in detail. management program are also discussed in detail. Chapter 7 discusses the assessment of performance of irrigation and drainage systems as the Chapter 7 discusses the assessment of performance of irrigation and drainage systems as the closing link in the management framework of the organisation. The internal and external closing link in the management framework of the organisation. The internal and external performance domains to the organisation are outlined although the focus stays with the performance domains to the organisation are outlined although the focus stays with the assessment of the organisation performance in relation to the delivery of services. assessment of the organisation performance in relation to the delivery of services. Chapter 8 summarises the potential and opportunities to introduce service oriented Chapter 8 summarises the potential and opportunities to introduce service oriented management as a common response to the many challenges the irrigation and drainage management as a common response to the many challenges the irrigation and drainage sector sector is facing. It emphasises that service oriented management cannot be looked into in is facing. It emphasises that service oriented management cannot be looked into in isolation isolation but should be seen the wider context of water resource use and management. but should be seen the wider context of water resource use and management. The format adopted for the presentation of the material includes tables, figures and boxes. The format adopted for the presentation of the material includes tables, figures and boxes. Tables and figures are used to assist with the explanation of concepts and principles; Tables and figures are used to assist with the explanation of concepts and principles; whereas whereas boxes use used primarily to provide examples relating to actual irrigation and boxes use used primarily to provide examples relating to actual irrigation and drainage drainage systems and to emphasise key principles. systems and to emphasise key principles. We hope that what is presented here will play a small role in promoting the shift in We hope that what is presented here will play a small role in promoting the shift in paradigm paradigm in irrigation and drainage management towards service orientation to overcome in irrigation and drainage management towards service orientation to overcome the poor the poor performance of many irrigation and drainage systems in past decades. performance of many irrigation and drainage systems in past decades. AAckcnkonwolewdlgeedmgeenmts ents The generous assistance given in the preparation of this book is by many colleagues, associates and friends is hereby cordially acknowledged. We owe special thanks to Hugh VIII Turral for his contribution and useful comments. For generously sharing his research results and insightful comments on the draft we owe a special debt to Bart Snellen. We would also like to acknowledge with thanks the inspiration and foresightedness provided by David Constable who pioneered many of the concepts expounded here. Also we owe our thanks to Henri Tardieu for his valuable comments on the draft and Bart Schultz for both his valuable comments and facilitating the production of this monograph. Last, but not least, let us thank all those who helped us with the editorial and logistic support throughout this work, especially Fiorella Chiodo and Peter Stroo. Comment and criticism from the readers will be sincerely appreciated. Melbourne, Australia Hector M. Malano Delft, The Netherlands Paul J.M. van Hofwegen IX