The importance of groundwater WUAs to water saving in northern China

Groundwater management and the role of Water User Associations (WUAs) in northern ChinaExperiences from WRDMAP ProjectCatherine Watts and Simon Howarthsimon.howarth@mottmac.com

WRDMAP1Good afternoonToday I want to talk about groundwater management, and particularly the role of farmer WUAs in groundwater management. This is drawing on some work we have been doing for the last three years in Gansu Province in North West ChinaWater Resources in China Water owned by state, managed by water resources departmentsBUT: groundwater pumped by numerous locally owned tubewells, abstraction often exceeds rechargeSO: Government is promoting water saving society as one of many responses

Shiyang River Basin

Water scarce particularly in the north: groundwater levels declining

WRDMAP2As you know, water is extremely scarce in north China: groundwater is being used at an unsustainable rate so that the groundwater level is dropping rapidly.

This is despite the fact that water is owned by the state and managed by the government, through its water affairs bureaus. This is because in reality water is being pumped from innumerable small, locally-managed tubewells typically not controlled by the government. Abstraction is happening at a rate which exceeds recharge and also without reference to the groundwater resource availability.

In response the government is doing a lot of work to rectify the situation and is promoting the concept of a water savings society

Shiyang River Basin, Gansu Province

Inland river - from the Qilian Mountains towards Gobi desert Surface and groundwater used separately or managed conjunctivelyVery low rainfall, aquifer recharge from irrigation return flows (and historically through flood spills which are now rare)

Water Resources Demand Management Assistance Project (WRDMAP) Implemented by Ministry of Water Resources, funded by DFID, advised by Mott MacDonald Case Studies - establishing water saving societies and participatory water management in pilot communities of the basinNWuweiQilian mountainsShiyang River

WRDMAP3The place we have been working is in the Shiyang River Basin in Gansu province. This is an extremely arid area, along the old silk road, between the Tibetan plateau and the Gobi desert. The Shiyang is an inland river which flows from the Qilian mountains northwards towards the desert. Both surface and groundwater are used, either separately or managed conjunctively in different parts of the basin. There is very little rainfall, so virtually all recharge is from irrigation losses and return flows. In the past, floods also recharged the aquifer, but these are now quite rare

The project is the water resources demand management assistance project, which is being implemented by the Ministry of water resources, which it is funded by DFID of the UK and Mott MacDonald are providing technical assistance. There are many aspects of the project, but I am going to concentrate on work done in two case studies these have involved establishing a water savings society and advocating participatory water management.New tools for groundwater managementStrong administrative control:crop norms and ruleswater rights (of sorts)abstraction permits IC Card control on pumpsAnd economic measureswater resource feesfull cost recoveryImpact of less water mitigated by:technological improvementsassistance with crop diversification, use of greenhouses, etcin extremes, resettlement with compensationWell permitHousehold Water Rights CertificateHousehold Water Rights CertificateSpecify volume quotaBased on crop normSpecify permitted volume

Enforced by IC cardabstraction wellWell permitHousehold Water Rights CertificateHousehold Water Rights CertificateSpecify volume quotaBased on crop normSpecify permitted volume

Enforced by IC card to avoid over-use of resourceabstraction well

WRDMAP4For the last few years the government has recognised the problem of unsustainable water use and they have introduced a number of strong new measures or tools to control the use of groundwater. Norms for crop water requirements are being tightened up and rules on what crops may be grown where are becoming stricter, to encourage less wasteful irrigation. Water rights have been allocated, so people know exactly how much water they are entitled to, and permits are being issued for each well. In many places including in the Shiyang, they have installed IC cards on pumps. These are electronic controls which automatically switch off the pump when the permitted amount has been used up.

At they same time, the government are introducing economic measures. Water resource fees are now being charged and the concept of full cost recovery is being established, so that farmers pay the total cost of delivering water and for the value of the resource itself.

The permits and rights reduce the amount of water that can be abstracted. The impact on farmers of less water are being mitigated by technical improvements to agricultural practices; assistance with new crops, greenhouses &marketing; and, in extremes, resettlement to other parts of china with compensation.Key challenges for groundwater management in ChinaAdministrative burden of issuing and managing household rights, permits, IC cards etc ?Enforcement of rights and permits? Cost recovery for the new systems who should pay?How will farmers cope with the reduced volume of water?

Example of water rights certificate

WRDMAP5Now, its easy to initiate these new measures, but it is very challenging to administer them. There is a huge administrative burden in all the paperwork for issuing and managing household water rights certificates and permits, and for the new IC cards

Having issued the rights and permits, how will the actually be enforced? What will the penalties be for those who take too much water?

And how will all the new costs for the staff, for all the paperwork and for the administration be paid? And who should pay? the government, or the farmers, or both?

And ultimately, how will the farmers cope? If they cannot earn enough income with less water, what will they do? Alternative approachesTraditional approach: top down control, with economic incentivesNew approach: Water Saving Society developmentEstablish water rightsPromote awareness of water resources issues and need for water savingsEncourage community participation (through WUAs) in water resource management (and water use)

WRDMAP6The traditional approach, and still the one which is very popular with local governments, is a top-down approach, supplemented with economic incentives but it essentially restricts what farmers are able to do.

But this approach is beginning to be softened, with the help of the project, through the concept of a water savings society. This approach is bottom up, focusing on the interests of the farmers, establishing water rights for them, ensuring they are aware of the limits of water resources and the need for water savings, and encouraging them to participate through water users associations in many aspects of water resource management.

Role of WUAs for GW managementDual RoleWUAs can help local government in administrative systems, ensuring compliance with abstraction permitsMore importantly, WUAs also help farmers, in ensuring access to water and in coping better with limited water suppliesBut financial arrangements are critical

WRDMAP7As part of the water savings society development, new WUAs are being established and existing ones strengthened.

These new WUAs have two roles. Firstly, they can help the government with these new administrative systems and in ensuring compliance with permits. Provided they are supported financially, the WUAs can take a large burden off the local offices of the water affairs bureaus.

Secondly, but more importantly the WUAs should help the community; helping them cope with less water and making sure people get a fair share of the limited amount of waterEstimate crop water needswater allocation for irrigation districtReview application for permit and household water rightsMonitor actual abstraction and compare with rights/permitsWater resources assessmentInform WUA of norms Issue well permits (5 year validity)Verify abstraction and GW levelsPlanningMonitoringCompile total abstraction and report to RBMBCounty Water Affairs Bureau (WAB)Water Management Division (WMD)Water User Association (WUA)Issue crop water norms Request household water rights Prepare permit applicationauthorise water rights

Compare allocated and actual for districtReceive permit and water rights certificatesFlow diagram for administration of groundwater controlsReview crop water norms Monitor GW level

Adjust irrigation to match permitAnnual allocation for for wells (IC cards)

WRDMAP8Now, here is a flow diagram suggesting how these new groundwater controls could be administered. It shows the roles of the county water affairs bureau, the water management division for an individual irrigation district, and the water user association which is roughly equivalent to the area of a single village or perhaps 500 households.

I wont go through all the details at the moment, but you have a printout in this presentation. You can see it is a cyclical process with planning and monitoring - the monitoring feedbacks and updates the basis for planning of the next year. The WUAs should be critically involved in this cycle, so that they are aware of the problems and help in solving the problems. If farmers are involved, they are much more likely to comply with the rules than if they are just imposed from outside.

At the moment, the government concentrates mainly on the top left of the diagram the higher level planning. They are, however, are involving WUAs more and more, and beginning to improve monitoring and feedback. But these are new and unfamiliar concepts and take timeFinal Messages

Permits should be based on an accurate assessment of water resources which should continuously be refinedWUAs are important for successful groundwater management and implementation of water saving measures. BUT:they will only be sustainable if there are clear incentives for farmers to participaterepresentative WUAs needed important that they reflect the interests and rights of the whole community there must be sound financial arrangements for new WUAsthere must be technical support for farmers through the WUA (training, demonstrations)There is a need for greater participation by stakeholders, and more feedback from field data. The new techniques are still at an early stage; many details are still being worked out, and there is some resistance to the changes required China has made good progress; there is still a reliance on top-down control but the prospects for real reform are encouraging

WRDMAP9So, some final messages

Permits need to be based on accurate assessment of water resources. The target is to reduce water use so that it is sustainable, so we must know how much water is actually available first.

WUAs are fundamental for successful groundwater management and implementation of water saving measures.1. BUT, WUAs will only be sustainable if farmers have the incentive to participate. 2. They should also be representative so it is important that they reflect the interests and rights of the whole community, and not just the leaders. All groups should be included, especially those who work outside much of the time.3. And clearly, WUAs need to have sound financial arrangements. We cannot expect them to take on lots of new tasks if no one is willing to pay for them4. There must also be technical support for farmers this includes training about new water savings techniques and crops.

There is also a need for greater participation by stakeholders and more feedback from field data as shown in the previous flow diagram.

It is also important to remember that the new techniques are still at an early stage many details are still being worked out and there is some resistance to the changes required.

In summary, China has made good progress: there is still a reliance on top-down control but the prospects for real reform are encouraging.