ANNEX RIVER BASIN INSTITUTIONS THE ETHIOPIAN EXPERIENCE TABLE OF CONTENTS 1 BACKGROUND... B 1.1 INSTITUTIONAL DEVELOPMENT OF THE WATER SECTOR HISTORICAL OVERVIEW.. B 1.2 INTEGRATED WATER RESOURCES MANAGEMENT IN THE FRAMEWORK OF RIVER BASIN C 2 THE AWASH VALLEY AUTHORITY... C 2.1 OBJECTIVES... C 2.2 POWERS AND DUTIES... D 2.3 ORGANIZATIONAL SET-UP... D 2.4 BUDGET... E 2.5 REPORTING... E 3 VALLEYS AGRICULTURAL DEVELOPMENT AUTHORITY... G 3.1 OBJECTIVES... G 3.2 POWERS AND DUTIES OF THE VADA... G 3.3 ORGANIZATION... G 3.4 BUDGET... H 3.5 REPORTING... H 4 AWASH VALLEY DEVELOPMENT AGENCY... H 4.1 OBJECTIVES... H 4.2 POWERS AND DUTIES OF THE AVDA... H 4.3 ORGANIZATIONAL SET-UP... H 4.4 BUDGET... I 4.5 REPORTING... I 5 ETHIOPIAN VALLEYS DEVELOPMENT STUDIES AUTHORITY... I 5.1 OBJECTIVES... I 5.2 POWERS AND DUTIES... I 5.3 ORGANIZATIONAL SET-UP... J 6 AWASH BASIN WATER RESOURCES ADMINISTRATION AGENCY... L 6.1 OBJECTIVES... L 6.2 POWERS AND DUTIES OF THE AGENCY... L 6.3 ORGANIZATIONAL SET-UP... L 6.4 BUDGET... M 6.5 REPORTING... M 6.6 THE AGENCY S ACCOMPLISHMENTS SINCE ESTABLISHMENT... M 6.7 PROBLEMS ENCOUNTERED... M
1 BACKGROUND 1.1 INSTITUTIONAL DEVELOPMENT OF THE WATER SECTOR HISTORICAL OVERVIEW Water resources development approaches and organizations in Ethiopia have evolved in to needs, as they were perceived over time. Before 1956, only a small portion of Ethiopia s water resources was developed and the Government's administrative role was minimal. In 1956, a Water Resources Department under the Ministry of Public Works & Communications was established to handle a multi-purpose investigation of the Blue Nile Basin. Over the years, it took on the river basin studies and water well drilling programmes. As a parallel development, the Awash Valley Authority in 1962 assumed responsibility for all water activities in the Awash Valley (AVA). Its mandate includes all aspects of water planning, development and operation including water rights administration. In 1971, the growing importance of water elsewhere in Ethiopia was recognized by the establishment of the National Water Resources Commission (NWRC), under the then Ministry of Public Works & Water Resources. The Commission s purposes and objectives covered the full range of water responsibilities. The Commission s powers were broad but were not fully exercised and implemented due to financial and organizational constraints as well as lack of commitment and willingness of public authorities to accept a national authority over water resources development and management. As a result, in 1975, the Ethiopian Water Resources Authority (EWRA) was established and placed under the Ministry of Mines, Energy & Water Resources. Three agencies, namely, Land & Water Studies Agency, Rural Water Development Agency and Urban Water & Sewerage Agency were established under the Authority. The AVA, however, retained its responsibilities for the Awash Valley. In another re-organizational undertaking, the Valleys Agricultural Development Authority (VADA) was proclaimed in 1977. It had similar powers and duties as AVA except that its jurisdiction was limited to water resources (AVA s responsibilities include all resources), but its authority covered the whole country. To avoid conflict with AVA, the Awash Valley Development Agency (AVDA), a creation of VADA was formed. The AVDA had diminished powers as compared to those AVA had enjoyed. In 1981, a further re-organization took place in the water sector; and a new National Water Resources Commission (NWRC) was created. VADA and AVDA were dissolved and incorporated in the newly established NWRC under the Water Resources Development Authority (WRDA). The new NWRC, in fact, was composed of the Water Resources Authority, Water Supply and Sewerage Authority (WASSA), Ethiopian Water Works Construction Authority (EWWCA); and the National Meteorological Services (NMS). After about ten years of existence, the National Water Resources Commission was dissolved and the Authorities under its umbrella, except EWWCA, were made accountable to the Ministry of Natural Resources & Environmental Protection, which was established in 1993 and existed for about two years. The Ministry of Water Resources was established in August 1995 by proclamation No.4/95 as a federal institution for the water sector. At regional level, the water sector is the responsibility of the Water, Mines and Energy Development Bureaus or the Water Resources Development Bureaus.
1.2 INTEGRATED WATER RESOURCES MANAGEMENT IN THE FRAMEWORK OF RIVER BASIN It is ever since Ethiopia launched the Blue Nile / Abbay Basin Study in 1956 it adopted the river basin system as a source of planning unit for water resources development. The establishment of the Awash Valley Authority in 1962 and the subsequent chain of reorganization of the water sector institutions around the central concept of river basin/valley is a clear indication of the country s desire to embrace river basin water resources management. As a result, Integrated Water Resources Development Master Plans are already prepared and are being prepared for the various river basins of the country. The rationale for using the river basin as a planning and management unit for natural resources, mainly water, land and related resources, are: The river basin is a functional region established by physical relationships and can serve as an excellent spatial unit for a scientific understanding of natural processes. The river basin approach is logical for evaluating the biophysical linkages of upland, valley and plains activities as they are linked through the hydrological cycle. The river basin approach is holistic, which enables planners to consider all relevant facets of resources development including on-site and off-site changes and impacts. The river basin approach has a strong economic logic as many of the externalities involved with individual projects or areas and lesser coverage are internalized. The system perspective can take into account the entire complex of biophysical, social, economic, organizational and institutional factors that bear directly on the planning of sustainable management programmes. Integrated water resources planning is also accepted as sound planning approach in river basin development planning in Ethiopia. The term resource includes the entire natural, economic, social and political attributes available to a given river basin that can be used or interacted with by some management strategy. The term integrated is then used to imply that many aspects of the resources will be considered during the planning process. In fact, integrated water resources development is the coordinated development and use of the resource for a sustainable benefit of the community. It incorporates the issue of environmental impact assessment, the social, economic, and political aspects of the area. More or less, these are the basis for multi-sectoral studies in the preparation of master plans. 2 THE AWASH VALLEY AUTHORITY The Awash Valley Authority (AVA) was established as an autonomous public authority by a charter of the Imperial Ethiopian Government in 1962. It was the first river basin institution in Ethiopia. 2.1 OBJECTIVES The objective of the AVA was to administer and develop the natural resources of the Awash Valley.
2.2 POWERS AND DUTIES a) to conduct and cause to be conducted surveys of the Awash Valley resources, either directly or through the intermediary of other domestic and international bodies; b) to establish plans and programmes for the use and development of the resources of the Awash Valley; c) to coordinate the activities of all Government Ministries and Public Authorities in respect of the use and development of the resources of the Awash Valley; d) to authorize third parties to construct, acquire, manage, administer and maintain dams, reservoirs, canals, power houses, power structures, transmission lines and incidental works in the Awash Valley; e) to administer all water and water rights in the Awash Valley and to control the flow of water of the Awash River; f) to assign waters of the Awash River for irrigation and other purposes and to fix and collect fees for the use of such water and other facilities; g) in co-operation with other bodies, to promote, organize and authorize the establishment of co-operative and other Agricultural and industrial enterprises in the Awash Valley; h) generally, to do all such things as may be necessary to assure the best use and development of the resources of the Awash Valley. The AVA had also the following extraordinary powers: a) to acquire such real and other property as may be necessary or convenient for the achievement of its purposes by expropriation in accordance with the law; b) to fix fees and charges for the use of water, land and other facilities subject to its jurisdiction and to use fees and charges so collected in the carrying out of its operations in accordance with the policies adopted by the Board of Directors; provided, however, that any surplus not required for such operations shall be turned over to the Central Treasury of the Government; c) to borrow money in accordance with the law; d) to issue regulations related to the use of water, land and other facilities subject to the jurisdiction of the AVA; e) in co-operation with appropriate Government Ministries and Public Authorities, to grant concessions for the use of land in the Awash Valley for agricultural, industrial and other purposes; f) to receive and administer, as agent of the Government, international aid and credit; g) When so requested, to act as agent for other Government Ministries and Public Authorities carrying out activities in the Awash Valley; and to establish and invest in public companies and to create subsidiary executive and advisory bodies within the AVA. 2.3 ORGANIZATIONAL SET-UP The powers, responsibilities and functions of the AVA were vested in the Board of Commissioners. The Board was composed of the following seven members: Representative of the Ministry of Agriculture Chairman
Representative of the Ministry of Commerce & Industry Member Representative of the Ministry Public Works & Communications Member Representative of the Ministry Interior Member General Manager of AVA Member And two members appointed by the King The organizational set-up of the AVA is divided into line and staff functions. The line function is composed of the following units: Agriculture Department Engineering Department Legal & Land Management Department Regional Offices (Middle & Lower Valley) Likewise, the staff function comprises the following departments and services: Administration Department Finance Department Planning &Programming Departments Audit Service 2.4 BUDGET Annual budget is approved by the board of Commissioners. Money collected from any payments, fees or charges by the AVA was to be incorporated in the budget. 2.5 REPORTING The AVA was required to submit to the office of the Prime Minister annual reports on the development of its activities.
Awash Valley Authority Organization Chart (March 1974) Board of Commissioners General Manager Legal & Land Management Agriculture Administration Engineering Department Development Water Management Project Implementation Contracts Designs Surveys Hydrology River Operation Environmental Control Project 1 Project 2 Regional Office Middle Valley Lower Valley Agriculture Engineering Administration Agriculture Engineering Administration Settlement Operations Finance Extension Construction & Maintenance Property Livestock & Crop Production Workshop Personnel
3 VALLEYS AGRICULTURAL DEVELOPMENT AUTHORITY The Valleys Agricultural Development Authority was established under proclamation No. 118 of 1977 by the Provisional Military Administration Council in 1977. The Awash Valley Authority Charter was repealed by this proclamation. 3.1 OBJECTIVES The principal objectives of the Authority were to co-ordinate, regulate and supervise the development and utilization of land and water resources of River Valleys for agricultural development. 3.2 POWERS AND DUTIES OF THE VADA to establish river valleys Agricultural Development Agencies; and to define their powers and responsibilities; in co-operation with the concerned offices, to study or cause the study of agricultural resources of the river valleys; to prepare and implement plans and programmes for the development of and use of agricultural resources in the river valleys; to arrange for the administration, conservation, environmental protection, management and utilization all agricultural resources in the river valleys and to coordinate all the agricultural development activities carried on by different government agencies; to cause to be set up the infrastructure required for the development and utilization of the agricultural resources of the river valleys; to design and construct major buildings, dams or civil engineering works for the purpose of agricultural development or employ others for the same; to fix and collect fees and charges for the use of water its supplies for agricultural development and for other facilities and services provided by it; to supervise and coordinate the activities of river valley development agencies; 3.3 ORGANIZATION The Authority was composed of : a Board a General Manager; and technical and support staff The board had the following members: Minister of Agriculture & Settlement Chairman Representative of MME&WR Member Representative of Ministry of Industry Member G
Representative of Ministry of Interior Member Representative of Central Planning Commission Member General Manager of the Authority Member All powers and duties of the Authority were vested in the Board. 3.4 BUDGET Annual budget allotted by the Government. Money collected from any payments, fees or charges. 3.5 REPORTING The VADA was required to submit to the office of the Minister of Agriculture annual and periodic reports on the development of its activities. 4 AWASH VALLEY DEVELOPMENT AGENCY As per the authority vested on him under proclamation No.118/1977, the Minister of Agriculture, established by regulation the Awash Valley Development Agency in 1977. 4.1 OBJECTIVES The Agency was established to administer and develop the land and water resources of the Awash Valley for development purposes; 4.2 POWERS AND DUTIES OF THE AVDA to coordinate the activities of all Government and Public bodies in respect of agricultural use and developments of resources of the Valley; to conduct studies of agricultural resources of the Valley; to prepare plans and programmes for the use and development of agricultural resources in the Valley; to issue directives relating to the use of water for irrigation, land and other facilities, and, approve and accept appropriate agricultural practices; in consultation with the Ethiopian Water Resources Authority, to administer all water of the Awash River; to assign water of the valley for irrigation and to fix and collect fees and charges for the use of such water and other facilities; in connection with the directives set by the Authority to design and construct major civil engineering works for the purpose of agricultural development; 4.3 ORGANIZATIONAL SET-UP The VADA had a general manager, a deputy general manager, a team of senior experts and support staff. H
The AVDA was using the organizational set- up that was developed by AVA. In fact, all assets and facilities owned by AVA were transferred to AVDA. 4.4 BUDGET Agency s budget used to be determined by the VADA and approved by the Government. Money collected from any payments, fees or charges by the AVDA was to be incorporated in the budget. 4.5 REPORTING The AVDA was required to submit to the VADA annual and periodic reports on the development of its activities. 5 ETHIOPIAN VALLEYS DEVELOPMENT STUDIES AUTHORITY The Valleys Development Studies Authority was established by proclamation No. 318 of 1987. Authority was created to deal with the development of the natural resources of the valley systems of Ethiopia. It was an institution that was supposed to survey natural resources, take inventories of the same, determines their quantity and distribution, studies their uses, formulate plans for their proper development, utilization and conservation within the valley systems of Ethiopia. The overall purpose of such a large study was envisaged to enhance the social, economic and environmental conditions of the valleys through inventory, study, and planned use of the total resources available to the area of each valley. Each valley study was to evaluate resource development and management plans using multipurpose approaches. 5.1 OBJECTIVES conduct studies and research of natural resources, in particular water resources, in the valleys of the country; prepare development master plans for valleys; conduct studies and research for the protection of the environment; conduct studies and research pertaining to transboundary rivers. 5.2 POWERS AND DUTIES on the basis of water flows, delimit the boundaries of country s valleys; conduct studies and research pertaining to the quantity and distribution of natural resources in the nation s valleys as well as collect and record data; to prepare master plans for valleys development and ensure that projects are implemented in accordance with the master plan; based on valleys development master plans, identify development projects as well as prepare priority thereof and conduct pre-feasibility feasibility studies of irrigation projects and follow up their implementation; I
conduct study and initiate policy and directives pertaining to utilization of transboundary rivers; conduct study and research with a view to devising and improving irrigation methods and technichs of water management; conduct environmental research and studies with a view to controlling depletion of pollution of natural resources in the valleys; prepare and submit to the Government the optimum allocation of valley s water resources for irrigation and varies other uses. 5.3 ORGANIZATIONAL SET-UP The organization of the Ethiopian Valleys Development Studies Authority was divided into line and staff functions. The line function was composed of the following functional units: Valleys Natural Resources Research Studies Desk; Master Plans Preparation Desk; Surface & subsurface Water Utilization Desk; Valleys Environmental Research & Conservation Desk; Projects Coordination Desk. Likewise, the staff functions comprised the following departments and services: Administrative Affairs Department; Finance Department; Planning & Programming Department; Transboundary Rivers Studies Department; Legal Services; Audit, Organization & Methods Services. These Desks, Departments, and Services are further divided into functional subunits based on the principles of management such as specialization, line and staff relations, authority and responsibility. J
Organizational Chart of Ethiopian Valleys Development Studies Authority Council of Ministers Valleys Development National Council Ethiopian Valleys Development Studies Authority General Manager Audit & Organisation and Method Services Transboundary Rivers Studies Department Legal Services Deputy General Manager Administrative Affairs Planning & Programming Department Finance Department Project Coordination Desk Valleys Natural Resources Research & Studies Desk Valleys Environmental Research & Conservation Desk Surface & Subsurface Water Utilisation Studies Desk Master Plans Preparation Desk Project Engineers Water & Land Uses Studies Division Environmental Health Studies Division Surface Water Utilisation Studies Division Feasibility Studies & Engineering Division Mines & Energy Sources Studies Division Ecological Studies Division Subsurface Water Utilisation Studies Division Socio-economic Studies Division Plants & Animals Studies Division Agricultural & Industrial Pollution Studies Division Survey & Mapping Division Natural Disaster Early Warning Systems Division Laboratory Division Irrigation Technology Research & Studies Division K
6 AWASH BASIN WATER RESOURCES ADMINISTRATION AGENCY The Awash Basin Water Resources Administration Agency was established under proclamation No. 129/1998. 6.1 OBJECTIVES The objectives of the Agency are to coordinate, administer, allocate and regulate the utilization of the surface water resources of the Basin. 6.2 POWERS AND DUTIES OF THE AGENCY a) To administer the available water of the Basin that flows across or lies between more than one Regional Governments and regulate the flow of such rivers; b) To issue permits pursuant to appropriate law, to construct and operate water works, in relation to waters referred to in sub-article (1) of this Article and regulate same; c) To allocate water to permittees and collect bulk charges for water use as determined by the government; d) To undertake the maintenance of primary irrigation networks and main service roads and collect fees in accordance with a directive issued by the government; e) To initiate improved water management methods, in association with the appropriate institutions, by conducting studies pertaining to uses of water for irrigation; f) To cause measures to be taken by monitoring groundwater level in order to prevent an occurrence of salinity problem in areas where irrigation development works and projects are carried out; g) To insure and regulate the construction of irrigation water distribution and drainage structures; diversion dams; water control gates and dykes in accordance with safety standards to be issued by the Ministry; h) To cause preventive measures to be taken by conducting studies based on continuously collected data pertaining to flood simulators and incidents that causes damage within the basin and carryout or cause to be carried out such planned and successive works having a permanent nature in order to prevent same; 6.3 ORGANIZATIONAL SET-UP In order to translate in to actions its objectives as well as its powers and duties, the Agency is organized with a board, a general manager and the necessary staff. The board constitute: Minister / V/Minister( MoWR) Chairperson Hydrology Department Head(MoWR) Member River Basin Studies & Water Utilization Department Head(MoWR) Member Wonji Sugar Factory General Manager Member Metahara Sugar Factory General Manager Member L
Afar Regional State (V/President) Member Cheffe Oromia (Economy) Member Representative from the Coordination Office for Public Enterprises Member Representative of the Ministry of Federal Affairs Member Initially, following the establishment of the Agency, the Board met regularly at least every quarter but for the last two years they might have met only once or twice. 6.4 BUDGET The budget of the Agency is drawn from the following sources: a) Water charges and service fees collected in accordance with the proclamation; and b) Annual budgetary provisions from Government and other sources. 6.5 REPORTING The ABWRAA is required to submit to the Minister of Water Resources annual and periodic reports on the development of its activities. 6.6 THE AGENCY S ACCOMPLISHMENTS SINCE ESTABLISHMENT Even though, the Agency has broad powers and duties, as a result of limitations in its capacities, its areas of focus at present are restricted mainly to the following activities: River training works in the Middle and Lower Valleys; Maintenance works for the Amibara State Farm (Weir; main, secondary & drainage canals) Distribution of irrigation water; and Construction of flood protection works. 6.7 PROBLEMS ENCOUNTERED Shortage of trained manpower; Lack of enforcement in the collection of fees and other charges for services rendered to water users; Proliferation of illegal water users in the Middle and Lower Awash; Lack of understanding of water resources administration policy on the part of water users and the administration in the Middle and Lower Awash; and Lack of capacity on the part of the Agency. M
Organization Chart - Awash Basin Water Resources Administration Agency Minister of Water Resources Board of Directors General Manager Finance Services Administration Services General Accountant Division Revenue Account Personnel Administration Division General Services Main Section Property Administration & Purchasing Services Planning & Inspection Services Property Administration Division Purchasing Division Technical Service & Water Structure Safety Control Dep. Operation & Water Use Control Department Flood Protection Team Equipment Team Permit Issuance & Water Users Affairs Team Water Control Team Structures Maintenance Team Middle Awash Water Management Coordination Team Upper Awash Water Control Centre Lower Awash Water Control Centre N