Improving Irrigation Service Delivery to Water Users Associations (US$ 2.0 million)
- This component focuses on improving the level of water service delivery to FWUAs, WUAs and water users by the DWRLI, by improving scheme management, record keeping, MOM planning and implementation, budgeting and contracting procedures. Emphasis will be put on the proper linking of support to off-farm and on-farm systems and emphasizing the importance of performance related interventions.
The component will finance TA and goods for:
- Activities at national level;
- Activities at scheme level;
- Supporting studies and activities to ensure the realization of the two main activities.
The component is centered four key concepts:
- A move towards scheme-based performance management rather than on a Raion basis;
- Computerization of maintenance estimation and design processes and procedures;
- Working in partnership with WUAs to improve the approach and funding of MOM of I&D systems;
- Strengthened communication systems supporting improved management capability, more coordinated reporting and detailed justification.
- The DWRLI has the mandate to provide water service delivery to all WUAs and farmers to meet the irrigation needs of their crops. This is implemented by the Operations Section within the IDM division through the appropriate Oblast and Raion management units. DWRLI records (March 2013) show that of the 1.02 million ha irrigated in the country, 735,160 ha comprise systems with registered WUAs, of which 83% (611,127 ha) were cultivated in 2012. The remaining command area (280,928 ha) does not have registered WUAs with 201,610 ha receiving water from DWRLI-managed off-farm systems and 71,120 ha irrigating from their own sources. The condition of I&D systems and the level of service to water users have been deteriorating over the last 20 years due to lack of adequate MOM funds. In addition, the capability of DWRLI to operate and maintain I&D systems has been declining due to a lack of adequate resources (field vehicles; computers; field equipment), decreasing numbers and capabilities of professional technical staff and a lack of training.
Sub-component 2.1 Activities at National level (US$ 0.7 million)
- Certain interventions need to be undertaken at DWRLI headquarters where changes need to be introduced and institutionalized for wider dissemination to the Oblasts and the Raions. A TA team of national and international consultants will work with DWRLI and be supported by subcontracting to local firms.
Sub-component 2.1.1. Update inventories of system I&D infrastructure.
- Passport data for all Kyrgyz off-farm I&D systems are held centrally by the Operations Section within the IDM division of DWRLI. The lack of complete data, maps and asset details is severely constraining the preparation of accurate maintenance estimates and their implementation.A start will be made to update these data during NWRMP-1.These data will be updated during the NWRMP-1 using the format, forms and procedures set out in the WMIP MOM study. During Phase 1, these procedures will be refined by working on 6 advanced/ model systems in 6 Raions.Over the 8 year project period of NWRMP-1 and NWRMP-2, the systems covered will be up-scaled to include all of the 23 representative systems identified under WMIP which cover 125,000 ha (12.2%) of the total irrigation command area in the country.
- The activities to be carried out under this sub-component include:
(a) Preparation of schematic maps and plans of I&D systems. These are required to show the layout of the complete systems based on hydrological and not administrative boundaries, and include structures, offtakes, drains and other I&D infrastructure with standard format and nomenclature. These maps will be prepared utilizing both existing data and information gained from interpretation of satellite imagery. (b) Preparation and digitization of drawing of all structures, including Bills of Quantities BOQs).A start will be made during Phase I to digitize drawings of I&D structures. Where drawings are not available new CAD drawings will be prepared together with automatically generated BOQs. Many of the I&D structures have been built to standard designs and drawings, which will be updated to reflect current construction costs with drawings providing variations in dimensions for key design variables. Sub-component 2.1.2. Improved procedures for determining annual maintenance requirements. These will be developed by the HO Operations Unit of DWRLI and will commence with are view of design policies and procedures. This study will review current processes and procedures and examine opportunities for introducing new computer-based procedures to streamline and modernize design and cost estimating for system maintenance. This assessment will form the basis for deciding which of the following activities can be taken up in Phase 1 and which will need to be deferred to Phase 2, based on the needs and resources available to the DWRLI: (a) Introduction of computer-based asset management procedures. The HO Operations Unit of DWRLI will be provided with modern computers and hardware, capable of handling modern software and fulfilling the requirements for storing, handling and processing of asset management data. Training will be provided in the use of appropriate CAD, proprietary software, spreadsheets for calculations and design and the transfer and use of passport information for MOM activities. (b) Establish up-to-date appropriate computer-based procedures and guidelines. In support of the above, and to overcome staff shortages and the current lengthy manual preparation of maintenance, repair and rehabilitation cost estimates (i.e. costed BOQs), proprietary software existing in neighboring countries, which are based on the methods used during the former Soviet times, will be introduced for use by the HO Operations Unit and all Oblast and Rayon sections. This will facilitate the development of rolling five-year maintenance plans that recognize previous interventions, the development of priority performance-based rehabilitation lists and a balance between preventative maintenance and replacement. (c) Assess force account versus contracting out maintenance work. Government advises DWRLI to use force account for maintenance works using own equipment. DWRLI recently has received heavy machinery with financing from the Turkish Government. A study will be carried out to help the DWRLI to adequately schedule the use of maintenance of this equipment, and also to ascertain the needs, opportunities, costs and benefits of the greater involvement of national or local contractors in maintenance work. The study will assess the impact and consequences of the resultant reduction of in-house work and measures for redeploying staff elsewhere including, possibly, employment by contractors. (d) Study of SNiP-Gostroy versus FIDIC-Unit cost for simplification of work estimation. Under NWRMP-1 a study will be initiated to investigate the costs, benefits and consequences of the DWRLI moving from the current SNiP-Gostroystandards to the FIDIC approach for cost estimation and monitoring of physical works. The FIDIC approach has been successfully introduced by the World Bank for international contractors, so is not new to the DWRLI. This study is likely to be conducted under Phase 2. (e) Study of current practices and recommendations. A study will be carried out to identify areas for improvement to ensure more effective annual maintenance and rehabilitation and to define job descriptions, staff needs and training requirements.
- Sub-component 2.1.3. Improved Implementation of Maintenance and Repair work. The capacity for implementation of annual maintenance and repair works by force account is severely constrained by equipment availability/capacity. The use of contractors will considerably expand the annual output capacity and make more efficient use of limited funds.
(a) Support for restructuring of RVK Construction Units. Regular training and upgrading of staff will be carried out to improve the quality of construction supervision, especially of contractors, and increase capability and understanding of RVK staff in the preparation of tender documents, the interpretation of specifications and BOQs, and the procurement and supervision of contractor’s activities according to these standards. (c) Support and training of local contractors. To prepare for a move away from force account implementation of maintenance related work, the NWRMP-1 will provide short training courses for local contractors working in the I&D sector. This will cover DWRLI contracting processes and procedures and other key issues related to construction and maintenance of I&D works, drawing on DWRLI experience under WMIP and OIP-2. Sub-component 2.2 Activities at Scheme level (US$ 0.3 million)
- Development of 6 pilot systems to introduce practical training in implementation of improved MOM procedures. In 2012/13, the WMIP MOM study identified implementation issues constraining the performance of off-farm I&D systems and proposed modified approaches to system MOM. These modified approaches will be tested, refined and developed into updated MOM processes and procedures by DWRLI staff working in partnership with TA consultants, in order to make more efficient use of limited resources and increase the expenditures on maintenance. This will be done in Phase 1 on the 6 pilot schemes and gradually upscaled to more systems in the country under Phase 2.
(a) Apply updated MOM procedures to system operation. During Phase 1, data collection forms and analyses developed under WMIP will be tested under field conditions and will concentrate on 6 identified advanced/model irrigation systems in 6 Raions covering a total command area of 60,823 ha and 30 WUAs (average area of 1,560 ha). In Phase 2, the deriving detailed implementation modalities will be applied on the remaining 19 representative schemes identified under WMIP. The approach is in keeping with DWRLI’s constrained financial and human resources and will enable senior DWRLI staff to guide and develop the performance based approaches that will involve computerization of MOM processes and procedures, working in partnership with FWUAs, WUAs and water users. This will enable (i) identification of bottlenecks to system operation, (ii) assessment of adequacy of control and measurement structures at division/ delivery points, (iii) identification of repair and maintenance needs and priorities, (iv) completion of an inventory of the system’s off-farm assets, and (v) estimation of project financed interventions for improving the efficiency of system water delivery. (b) Upgrading of control and measurement structures. Improvements in the operation of off- and on-farm systems will be coordinated through the installation and calibration of modern control and measurement structures at key division points both within the WUA command areas and at the interface of off- and on-farm systems. These will both confirm actual water deliveries/patterns at key locations within the systems and facilitate identification of locations where improvements are essential for improved water service delivery. (c) Improved communication between DWRLI offices and WUAs for improved MOM of I&D infrastructure. They formalization of service agreements between the DWRLI, FWUAs/WUAs will establish obligations between all parties, the prioritization of mutually agreed interventions for improved service delivery, the development of interconnected 4 to 5 year maintenance programmes and procedures for planning, scheduling and recording of irrigation demands/supply and reporting on system and scheme performance. This will develop active collaboration and liaison between RVK staff and WUAs/water users, facilitated by SMS messaging, if appropriate, and annual joint maintenance walk-throughs/reviews with DWRLI and WUA O&M staff. (d) Application of improved estimation of maintenance and repair needs using computer based recording procedures initiated under WMIP. This will be achieved through training of RVK staff in connection with the above activities. (e) Implementation of key rehabilitation civil works to parts of the systems to ensure improved service delivery. This will remove the identified key constraints to efficient service water delivery highlighted by the enhanced cooperation between off and on-farm system technical staff through targeted works financed under APNIP. (f) Application of cost-effective maintenance. Using the approaches developed under WMIP asset management plans will be prepared and costed with participation by WUAs for the short, medium and long term. The cost-effectiveness and sustainability of these plans will be assessed by looking at system performance and condition in a holistic way. The plans will help to identify budget short-falls, and will provide background documentation for a policy discussion on the level of ISF (currently 3 tyin/m3 as set by parliament) charged by the DWRLI to water users, and the government subsidy to system MOM. It is anticipated that these plans will verify the 3 to 4 fold increase in MOM budgets as being required for sustainable MOM of the off-farm systems. Training on the plans will be provided. (g) Improved irrigation planning and scheduling including provision of appropriate equipment. Overall system irrigation efficiency, from headworks to the crop, is in general in the order of 20%. Raising system irrigation efficiencies from 20% to 40% (considered good when compared to international benchmarks) will be achieved through the closer estimation of water needs and the improvement in scheduling of supplies. Specialist TA will be engaged to assist in the development of computer-based scheduling and performance assessment packages linked to improved reporting systems in the field. Training on the use of the packages will be provided. Sub-component 2.3. Supporting studies and activities (US$ 1.0 million)
- To ensure the effectiveness of other interventions at system or scheme level, a number of support activities will be required, as discussed below:
(a) Upgrading of computers and software for RVK operations. The NWRMP-1 will progressively equip RVK technical Operation Units with computers, associated hardware and relevant software. Computer support training for the improvement of maintenance cost estimation and support to MOM activities will be provided at least twice each year. (b) Increased mobility of engineering staff and technicians to implement cost-effective maintenance. Four-wheel drive vehicles and motorcycles will be provided to RVKs in line with the other support provided under 2.3(a) above. (c) Human resources planning and training. Currently the staffing at the DWRLI is tilted towards managerial posts and senior staff, inhibiting the future capacity of the DWRLI IDM division to operate effectively. The project will provide TA to cooperate with the DWRLI in defining a mid- to long-term human resources (HR) plan, with proposals for revised job descriptions and skills sets. This plan also will put forward proposals to attract younger staff. In addition to this HR plan, the project will work with the DWRLI on an inventory of the existing skill-set, and developing a training plan for internal knowledge transfer, and a training plan for introduction of new skill sets required to further the modernization of the DWRLI and its IDM division. Depending on progress, the plans will be implemented under Phase 2 or can start implementation under Phase 1. These are data related to each irrigation asset, giving its design capacity, dimensions, quantities, etc.  Constructions Norms and Rules of the Kyrgyz Republic (based on those of FSU).  Kyrgyz Costing system based on FSU methods and unit costs calculated by unified local unit rates (ULUR) catalogues (at 1984 values)