Institutional design of irrigation and rural development projects and management in Japan

Transcription

1 SEMINAR ON SYNERGIES AND SYMBIOTIC STRATEGIES IN IRRIGATION: Lessons Learnt from Japanese Experiences 20 February 2013 Institutional design of irrigation and rural development projects and management in Japan Japan International Research Center for Agricultural Sciences Kazumi Yamaoka, PhD

2 PhD in the field of agricultural water management (The University of Tokyo) Research coordinator, JIRCAS (An independent agency under the jurisdiction of MAFF, Japan) Commissioner, Japan National Committee (JNC) for International Commission on Irrigation and Drainage (ICID) Governor, World Water Council (WWC)

3 Official, Ministry of Agriculture, Forestry and Fisheries (MAFF) First Secretary, Embassy of Japan in the Netherlands, MOFA Deputy Director, International Department, MAFF Deputy Director, Rural Development Bureau, MAFF Director, Rural Development Division, Yamaguchi Prefecture Government Director, Research Dept., Japanese Institute for Irrigation and Drainage (JIID) Head of Laboratory, National Institute of Rural Engineering (NIRE) Project Professor, The University of Tokyo Japan International Research Center for Agricultural Sciences (JIRCAS)

4 Significance of Irrigation Increasing productivities 1. Land productivity: Yield per area 2. Labor productivity: Labor investment hours per area

5 Local varieties make more yield than high-yielding varieties when water availability during growing period is below a certain level

6 High substitutability between water and labor Ample water can reduce various labor force Conversely, temporary labor investment reduces water use during dry spells Items a) Reducing labor for water management (off farm) b) Reducing labor for water management (on farm) c) Reducing labor for weed control Advantages provided to paddy rice agriculture with ample water use Ample water use allows to easily convey water to all parts of the paddy fields with even poorly built canals and reduce labors for water management. With the system, called plot-to-plot irrigation, the paddy fields themselves serves as irrigation canals. Under this condition ample water use allows to easily keep the depth of water in Input submerged of water paddy use plots. Submerged soil prevents weeds from growing, except vascular weeds. d) Preventing soil erosion Use of levees around rice fields and a standing pool of water reduce soil erosion-losses even during periods of heavy rain e) Reducing labor and materials for fertilization f) Reducing labor for plowing g) Preventing a fall in yield from repeated cropping Substitutable factors for efficient irrigation management in paddy fields Organic matter in the soil decomposing slowly through anaerobic decomposition when the soil is submerged maintains soil fertility. Organic nitrogen is transformed into ammonia nitrogen while the soil is under reduced conditions with water and nitrogen is easily taken up by plants. Less phosphate fertilizer is required for submerged Substitutable soils because soluble, plant-available phosphates are formed while the soil is in a reduced state. Paddy rice cultivation in clay-rich soil involves a year long process whereby flooding water makes soil swelling and soft and dry condition makes soil shrinking, which forms cracks in soil. It makes same effects as plowing. Investment for Input of labor for The soil is under reduced conditions when it is submerged and becomes oxidized when water is drained. This process promotes alternation between anaerobic and aerobic microbes, which maintains bacterial balance and soil fertility and prevents developing a fall in facilities water management yield from repeated cultivation of the same crop on the same ground.

7 Significance of Irrigation Increasing productivities 1. Land productivity: Yield per area 2. Labor productivity: Labor investment hours per area Increase of land productivity brings more income to farmers. This allows introducing mechanization with surplus of profits and results in further increase of labor productivity. Increase of labor productivity brings more external income additionally to farmers. This allows more investment for organizing agricultural cooperatives for better market access.

8 Investment to irrigation development by collective action with supports from governments Utilizing more water, seeds in a highyielding variety, fertilizer and other inputs Increasing land productivity, income and surplus of profits Investment to machineries such as tractor, cultivator, harvester, thresher Investment to land replot/consolidation by collective action with supports from governments Increasing labor productivity and external income additionally Individual Investment for organizing agricultural cooperatives for better market competitiveness

9 Yield in an Irrigated Paddy Plot and Distribution of Available Water per Area (Conceptual Diagram)

10 A sudden brake has been put on investments in the development of irrigated agriculture since the beginning of this century. It is revealed that the annual fluctuation rate of area of irrigation agriculture has dropped to 0.5% recently while 1.5% in average from 1960 s to the end of last century in the world. Legend Annual fluctuation rate of irrigated land area Moving average in 5 years of above Annual fluctuation rate of agricultural land area Moving average in 5 years of above

11 This level of annual fluctuation rate since 2006 is the lowest and the world has never been had such a serious experience in the last half century Analyzing in detail its considerable drops in various parts of the world; North and central America during the second oil shock Europe especially Eastern Europe since the end of the Cold War Africa since 2003 keeping almost zero in annual expansion West Asia since 2005 maintaining below zero in annual expansion

12 The highest level of price index ( =100) of cereals ever recorded has lasted for the last two years As of January 2013; Maize: Rice: Wheat: Soybean: The structural mechanisms for pricing crops in international market have changed and food price volatilization has become ordinary

13 Accelerate utilization of untapped water resources in humid regions by increasing investment to irrigation development projects Recent continuation of high crop prices is harmful to the poors but a good opportunity of investment to irrigation development projects Prioritize the investment according to degree of potential increase of food production per unit cost of the investment; Developing countries must have an advantage over developed countries

14 Features of Japan

15 * *Immersion Cultivation under the Ample Water Conditions *Wide-ranging Substitutability between Water and Labor *Providing Ecosystem Services through the Water Cycle Systems in a Basin *Frequent Outbreaks of Abnormally Dry Spells

16 * *The Asian monsoon region embraces the Indian Ocean to the south, the expansive region of Tibet, the Himalayan mountain mass and continental China to the north, and the Pacific Ocean to the east Monsoon Asia accounts for 14% of world s land area 54% of world s population (3.6billion) 50% of world s water use

17 agriculture others km 3 (64.1%) 795.2km 3 (20.3%) 362.3km 3 (9.3%) 218.8km 3 (5.6%) 27.4km km 3 (0.7%) (100.0%) 17.9% 82.1% 52.0% 72.1% 15.7% 84.3% 26.2% 73.8% 29.8% 70.2% Water for others Water for agriculture 48.0% 27.9%

18 Hokkaido Map of Japan Kyusyu 7,000 small islands Long 135 E Lat 40 N Tokyo Honshu Lat 35 N Shikoku

19 Topography of Japan 2/3 of total land Mountains

20 Data of Japan Total area: 37,795,000 ha (as of 2009) Population: 128,056,000 people (as of 2010) Agricultural land: 12 % of total area (4,593,000 ha) (as of 2010) Mountainous area: around 2/3 of the total land Paddy field : 54 % (2.50 million ha) Upland field : 46 % (2.10 million ha. Irrigation ratio: around 20%) Agricultural population: 2,606,000 people (as of 2010) Total economically active population in agriculture: 2,050,000 people (as of 2010) Percentage of GDP from agriculture: 1 % (as of 2010)

21 Climate of Japan; the Four Seasons Spring Summer Spring Summer Winter Autumn Winter Autumn

22 (mm) Precipitation, Total 1,405mm/year More than around 19 C Climate at Tokyo 30 Temperature, Average 15.6 C ( C) 0 0

23 The climate in Japan falls under the category of that in Monsoon Asia rather than that in western developed countries Monthly precipitation in cities in Monsoon Asia and western countries The rainy and dry season and annual precipitation in cities in Monsoon Asia and western countries Definition of the rainy season: Months with monthly precipitation being 125 mm or more Monsoon Asia Europe, North America

24 High Productivity by Agricultural and Rural Development Projects Meteorological condition Topographical condition Agricultural and Rural Development Projects Paddy Field Improvement Agricultural Machinery, New Variety of Rice High Productivity

25 Farm land consolidation 25 years from 1982 to 2007 To increase the productivity and to improve farm management in the paddy fields The rate of farm land consolidation : 35.4% 61.3% Working hours of rice cultivation : 60.4hr/10a 28.5hr/10a Before project After project Ibigawa sagan district, Gifu 25

26 Network of Irrigation and drainage canal in Japan The quantity of water for Agriculture About 55.7 billion m3/year The length of Main Canal About 49 thousand kilometers The number of Main facility for agriculture About 7 thousand Location of Irrigation Facilities in Kanto area The number of irrigation pond About 210 thousand Irrigation channel Drainage channel

27 Basic Concept of Agricultural and Rural Development Project

28 Historical Development of Agricultural Land 4.67 million ha in 2006

29 Organization of Japanese National System National government The Prime Minister The Diet Prefecture A governor A prefectural assembly There are total 47 prefectures. City A mayor A city assembly Town The mayor of a town A town assembly Village A village headman A village assembly There are total 1,724(as of 2011) municipalities. 13

30 National government Prefecture City/ Town/Village Food self-sufficiency Promoting agricultural production Promoting agricultural production Ministry of Agriculture, Forestry and Fisheries Agricultural and Rural Development Project by government Supporting farmer Agricultural and Rural Development Project by prefecture Agricultural and Rural Development Project by municipality Use the land for purposes other than agriculture (not less 4ha) Use the land for purposes other than agriculture ( less than4ha) Agricultural committee for agricultural land use

31 Land Improvement Law (Act) Agricultural land Enhancement of land productivity and labor productivity Land Improvement Law Law for the enhancement of agricultural land productivity and agricultural labor productivity and so on. Agricultural and Rural Development Project 15

32 Origin of Land Improvement District (LID) water users group (Community level) around 300 years ago Water Users Association based on the Irrigation Association Law A.D.1909 Land Consolidation Association based on the Land Consolidation Law A.D.1900 Agricultural Land Reform A.D Land Improvement District based on the Land Improvement Law A.D Total around 5,600 LIDs in 2006

33 Legal Procedure for the Project (in case of National government-operated Project) Farmers make a group as petitioners (15 farmers or more). The farmers group obtains the consent of two-thirds or more of all farmers in the project area. The farmers group petitions for approval of execution of the project to MAFF. MAFF examines and determines the project plan. MAFF implements the project. All farmers in the project area establish a LID. The LID operates and maintains the developed facilities.

34 Advanced features and effects of irrigation projects compared to other general public works projects Policy objectives of irrigation project Improvement of agricultural productivity in harmony with the environment Sustainable development of rural areas etc Proper construction of facilities Sustainable and efficient utilization of facilities Empowerment Governance CHECK at three stages Establishment of LID Accumulation of social capital Effects Increase in the efficiency of the national budget National land conservation and social stability Agreement by at least two thirds Application by at least 15 cultivators Facilitating the accumulation of social capital

35 Bodies which can execute Agricultural and Rural Development Projects (1) Land Improvement District (Including Land Improvement Association (union of LIDs)) (2) National government (3) Prefecture Land Improvement Law (4) Municipalities (city, town and village) (5) Agricultural co-operative association (Including a union of agricultural co-operative association) Agricultural and Rural Development Projects

36 Operation and Maintenance of Constructed Facilities Reservoir Dam Community Barrage Main Irrigation Canal Secondary Canal O&M by LID Dues Farmers (Members of LID) River Paddy field Tertiary Canal O&M by Community Community Tasks Local residents Non- Farmers Secondary Canal Main Drainage Canal Managed by individual farmer Tertiary Canal Farm road Managed by community Managed by individual farmer

37 Basic cost-sharing and adaptation standard of MAFF projects Project Executing body Government s subsidies Minimum beneficiary area for implementing the project All beneficiary area Each facilities Development of Irrigation and Drainage Facilities National Gov ,000ha(Paddy) 1,000ha Up-l and 500ha(Paddy) 100ha (Up-land) Development of irrigation and drainage facilities / Farmland consolidation executing by local gov. Development of Irrigation and Drainage Facilities Prefecture 50% 200ha (Paddy) 100ha(up-land) 100ha(Paddy) 20ha(Upland) Farmland consolidation Prefecture 50 20ha

38 Classification of the Projects 1. Development of Agricultural Production Infrastructure (to increase agricultural productivity) Development of Irrigation and Drainage Facilities Farmland Consolidation Agricultural and Rural Development Project 3.0 Billion US$ (National Expenditure, 2012FY) Around 11% of the total budget of MAFF 2. Development of Rural Areas (to improve the living environment) Development of Agricultural Roads Development of Rural Sewerage Facilities Integrated Development of Rural Areas Integrated Development of Hilly and Mountainous Areas 3. Conservation and Maintenance of Rural Areas (to prevent disasters in rural areas) Disaster Prevention and Conservation of Farmland Maintenance and Management of Facilities

39 Basic cost-sharing and adaptation standard of MAFF projects Percentage of cost bearing (%) Project name State Guidelines Farmers Prefectures Municipalities National irrigation and drainage project National farmland reorganization and consolidation project (hilly and mountainous area type) Prefectural irrigation and drainage project Management entity development system improvement project Upland field area comprehensive development project (prospective farmer cultivation type) Hilly and mountainous area comprehensive development project (colonial type) Farm pond development project (small scale) Note) =By utilizing interest free funds, actual cost bearing by farmers will be further reduced.

40 Cost sharing system

41 Replotting system Small and scattered farm lots Reshaping, Consolidating To improve agricultural productivity

42 Establishment of a Land Improvement District (LID) Farmers make a group as petitioners (15 farmers or more). The farmers group obtains the consent of two-thirds or more of all farmers in the project area. The farmers group petitions for approval of execution of the project to MAFF. MAFF examines and determines the project plan. MAFF implements the project. All farmers in the project area establish a LID. The LID operates and maintains the developed facilities.

43 2. Development of Rural Areas 2-1. Development of Agricultural Roads

44 Organizational Structure of the Land Improvement District General meeting Board of directors

45 Management of Land Improvement Facilities Control room Maintenance of canal

46 Federations of Land Improvement Associations (National level and prefecture level) The Federations of Land Improvement Associations have been established with the aim of promoting the members common interests by ensuring appropriate implementation of land improvement projects and efficient operation of land improvement districts, as a cooperative organization of the people who conduct land improvement projects. These Federations of Land Improvement Associations have been established at the levels of prefectural and central governments with the approval of the Minister of Agriculture, Forestry and Fisheries. LIDs in a prefecture consist of the members of a FLIA at prefectural level and FLIAs at prefectural level consist of that at national level. Therefore 47 FLIA at prefectural level and one FLIA at national level have been legally established under the Land Improvement Act.

47 Outline of Agricultural and Rural Development Project

48 Organization Chart of MAFF Ministry of Agriculture, Forestry and Fisheries Minister's Secretariat Food Safety and Consumer Affairs Bureau Food Industry Affairs Bureau Agricultural Production Bureau Management Improvement Bureau Rural Development Bureau Agriculture, Forestry and Fisheries Research Council Forestry Agency Fisheries Agency 7 Regional Agricultural Administration Offices Land Improvement Survey and management Offices (15) Land Improvement Engineering Offices (7) National Project Offices Administration Division Rural Policy Department Rural Planning Division Hilly and Mountains Areas Development Division Interaction Between Urban and Rural Areas Division Rural Environment Division Rural Infrastructure Department Design Division Overseas Land Improvement Cooperation Office Land Improvement Planning and Management Division Water Resources Division Farm and Rural Land Resources Division Rural Development Director Disaster Prevention and Restoration Division

49 Major Policies of Agricultural and Rural Development Project in 2012 Total budget for Agricultural and Rural Development Project is approx. 213million yen Strengthening for disaster prevention functioning of Agricultural Irrigation and Drainage facilities. nhancing earthquake safety of the facilities in the expected epicentral areas emergency response measures to prevent secondary disaster and minimize possible damage of the main facilities constructed by national government project. expand the scale of their farming operations Promoting detailed improvement of the present agricultural land condition and irrigation / drainage facilities which were developed in the past en Promoting risk management by established new local community Supporting high level activity such as water management, asset management of irrigation facilities for extending the life time.by new local community. Promoting introduction renewable energy

50 1. Development of Agricultural Production Infrastructure 1-1. Development of Irrigation and Drainage Facilities To increase agricultural productivity through constructing irrigation and drainage

51 1-2. Farmland Consolidation Small and scattered farm lots Reshaping, Consolidating To improve agricultural productivity

52 1-2. Farmland Consolidation (cont.) To promote the multipurpose use of farmland Subsurface drainage systems are being installed.

53 LIDs play a leading role to keep multifunctionality with local residents (Example) 53 LID Maintenance by members share(levying charges) Member of LID Providing labor (voluntary) Facility operation, development and repair Cannels grass cutting, removal of algae, sand and soil etc. Stable agricultural water supply Providing labor (voluntary) Sustainability of multifunctionality Activity involving local residents

54 Activities of LIDs General meeting Board of directors Control room Maintenance of canal Maintenance of canal with Activities with non-farmers

55 Rural Communities in Japan Typical rural landscape Cooperative activities

56 1-3. Increase of Agricultural Irrigation and Drainage Stock Among the agricultural irrigation and drainage facilities which supply agricultural water, the total length of the main agricultural irrigation and drainage canals is about 47,000 km and the number of dams, head works, pumping stations for irrigation and drainage, and so on is about 7,000, of which total asset value, as calculated in terms of replacement cost, reaches about 25 trillion yen. Main agricultural water and drainage canals in Japan Legend Water canal Drainage canal Agricultural dam Head works Pumping station for irrigation Pumping station for drainage Agricultural irrigation and drainage stock (trillion yen) Other facilities and drainage facilities 9 trillion yen Up to Mar. Up to Mar. Note 1: Assessed and calculated on the basis of replacement cost of agricultural irrigation and drainage facilities. Note 2: The main irrigation and drainage facilities are defined as those with a beneficial area not less than 100 ha. Agricultural water and drainage canals (Reference) Main agricultural irrigation 5 trillion yen Up to Mar Main facilities Dams, head works, pumping stations for irrigation and drainage, etc. 16 trillion yen National highways Railways 8 trillion yen trillion yen 14 trillion yen 2002 About 400,000 km (about 10 circuits of the earth) About 47,000 km About 7,000 22,279 km 20,006 km References: National highways refer to Road Pocket Book 2006 Ministry of Land, Infrastructure, Transport and Tourism (Nov ) Railways refer to Railway Numerical Data 2006 Ministry of Land, Infrastructure, Transport and Tourism (Oct. 2006) Note: The railway figure is the total railway length of JR (passenger-traffic lines only) 56

57 1-3. Deterioration of Facilities (1) Current Situation Deterioration of the agricultural irrigation and drainage facilities is progressing and, particularly in recent years, the ratio of facilities whose lifetimes have exceeded the standard working life has been increasing. The project budget for agricultural infrastructure improvement and rural development has been drastically reduced, and therefore it is necessary to set up a system to sustain a function of efficiently maintaining agricultural irrigation and drainage stock. Increase of facilities which require replacement Transition of budget for agricultural infrastructure improvement and rural development Number of facilities Number of facilities Average number in the past 5 years Maintenance & replacement, etc. of irrigation & drainage facilities 1,228.2 billion yen 3,879 53% less Progress of facility deterioration Irrigation & drainage canals, etc. Pumping stations for irrigation & drainage Diversion Reservoirs weirs Year Number of facilities, total length of irrigation & drainage canals, etc. 10 km Average working lives of facilities are roughly as follows: Irrigation & drainage canals, etc.: 40 years Pumping stations for irrigation & drainage: 20 years Reservoirs: 80 years Agricultural land development Agricultural road development Rural living environment improvement Disaster prevention measures for agricultural land Others 2,676 1,621 2,350 1, FY billion yen 2,285 1, FY2009 (Share: 32% 40%) 8 41% less (Share: 22% 23%) 51% less +1 (Share: 32% 16%) 76% less -16 (Share: 9% 14%) 23% less +5 57

58 1-3. Implementation of Preventive and Maintenance Measures For the purpose of extending the lives of facilities, adequate preventive and maintenance measures are to be taken in accordance with functional diagnoses before serious functional decline occurs, in order to decrease life cycle cost. Extended life of facility Conventional procedure Facility function Repair Reconstruction Repair Serious functional decline Reconstruction Serious functional decline Evaluation period Conventional procedure Preventive and maintenance measures Life cycle cost Preventive and maintenance measures Strength measurement by taking core samples Repair with polymer cement mortar Evaluation period 58

59 6. Study of Countermeasure Method 59 (1) Preparation of scenario (Repair, reinforcement, renewal ) Scenario I: A case to repair 20 years after the previous repair Scenario I 2008 Repair (Working life 20 years) 2028 Repair (Working life 20 years) Strength measurement by taking core samples Repair with polymer cement mortar To continue functional diagnosis and inspection through visual check, etc. Scenario II: A case to reinforce after 5 years and to completely renew 30 years after the reinforcement Scenario II 2013 Reinforcement (Working life 30 years) 2043 Renewal (Working life 40 years) Scenario III: A case to renew completely after 10 years Strength measurement and the like by taking core samples Scenario III Attachment of FRP Panel To continue functional diagnosis and inspection through visual check, etc Renewal (Working life 40 years) Serious functional decline Functional recovery through reconstruction

60 7. Study of Countermeasure Method (2) Scenario evaluation Soundness Scenario I Scenario II Scenario III Functional diagnosis Performance improvement through countermeasure works Performance decline due to deterioration Elapse of time Control level Function maintenance cost (thousand yen) 30,000 20,000 10,000 Scenario I Scenario II Scenario III Elapsed time 5 years Residual working life 35 years To deduct from the cost the residual value after a certain period of time Christian year A certain period 60

61 1-3. Introduction of Stock Management 61 As a method to make the enormous agricultural irrigation and drainage stock perform its function adequately and effectively, a stock management to selectively implement efficient and effective measures will be introduced on the basis of the facility functional diagnosis, so that the facility life will be extended, and the life cycle cost will be decreased. To implement functional analysis on each facility (By inspecting and diagnosing the facility function, the facility deterioration will be judged.) [Countermeasure 1] Sound condition of facility Dam Continuous use under monitoring Head works Range of function diagnosis implementation [Countermeasure 2] Deteriorated water canal The optimum repair is conducted depending on the deterioration level. Reinforcement with Surface covering carbon sheet method Water canal Countermeasure 1 Countermeasure 2 [Countermeasure 3] Fallen canal wall Serious functional decline Partial renewal Countermeasure 3 Renewal work from necessary parts

62 2. Development of Rural Sewerage Facilities To improve water quality of irrigation and drainage canals by treating the sewerage and wastewater Change in availability of sewerage facilities Bodies for constructing sewerage facilities Ministry of Land, Infrastructure and Transport Environmental Agency Ministry of Agriculture, Forestry and Fisheries

63 2. Development of Rural Areas 2-1. Development of Agricultural Roads To improve the efficiency of transportation of agricultural products between farm, village and market

64 3. Conservation and Maintenance of Rural Areas 3-1. Disaster Prevention and Conservation of Farmland To protect farmland and agricultural facilities from natural disasters

65 Conclusions/Comments Indonesia now has become a member of G20, also is the world s largest Islamic state and already a leader of countries. It is a time for Indonesia to contribute to challenge to the global food and human security Farmers with substantial capacity development and farm lands with appropriate irrigation infrastructure are sustainable national public treasuries/properties Ministry of Agriculture (MOA) should not hesitate to drastically increase its budget for the investment on irrigation infrastructure and capacity building of farmers for water management

66 Conclusions/Comments The problem on shortage of engineers and technical officials in MOA can be solved by means of outsourcing technical works For that purpose development of private companies engaged in consulting works on planning and designing is essential Retired technical officials from Ministry of Public Works as a core and young engineers may establish consulting and architectural design firms Otherwise MOA promotes the establishment of United national/provincial Federations of WUA/WUAF and recruits retired technical officials and young engineers and farmers who have technical knowledge

67 Conclusions/Comments The United national/provincial Federations of WUA/WUAF collect a membership fee from WUA/WUAF and take two roles; Technical instruction/assistance to WUA/WUAF and training farmers on water management, and in some cases consulting and architectural design firms as well as contractors for construction works Collecting farmers voice and votes and conveying them into politics and decision makers at provincial/national level to create more positive atmospheres for public investment on irrigation infrastructures (Political union of WUA/WUAF may accompany them)

68 Photographs

69 Facilities Developed by Agricultural and Rural Development Project

70 Rock Fill Dam

71 Large Scale Barrage - Tone Barrage Tone means the name of river which has the largest basin area in Japan.

72 Medium Scale Barrage

73 Diversion Dam Head works)

74 Prior to Installation of Surface Drainage Facilities Around 50 years ago

75 Pumping Station After Installation of Surface Drainage Facilities

76 Pumping Station

77 Farmland Consolidation Before After

78 Farmland Reclamation

79 Sea Bottom Reclamation Before(1957) After(1977) 22000ha (12km X 27km) 17000ha

80 Embankment Repair Before After

81 Development of Rural Waterfront Environment

82 Thank you for your kind attention.