Participatory Privatization of Irrigation Management in Turkey

Participatory Privatization of Irrigation Management in Turkey

Turkey has become a model for other countries regarding the transfer of irrigation schemes to Water User Organizations (WUOs). Many authorities agree that Turkey's approach is a middle ground between the fast-paced, top-down transfer model seen in Mexico and the slow-paced, bottom-up transfer model seen in the Philippines.

Today, Turkey's agricultural area is about 28 million ha.  It is estimated that it is economically and technically viable to bring 8.5 million ha under irrigation. State-managed irrigation projects together with privately-owned irrigation schemes make up 4.7 million ha.  This total is expected to expand by another 3.8 million ha in the future.

Government irrigation schemes are constructed by both DSI (Turkish acronym for State Hydraulic Works) and by GDRS (General Directorate of Rural Services), as well as jointly by DSI and GDRS.  Turkey's irrigated land is slightly less than the irrigated area of Mexico or the state of Andhra Pradesh in India.

Table 1. Irrigated Area and Administrative Head in Turkey

According to the existing laws, DSI is the main state agency responsible for developing Turkey's water resources. Irrigation schemes developed by government agencies have been transferred to Water User Organizations such as Village Authorities, Municipalities, Water User Associations, Cooperatives, etc. under the established Law Number 6200.  As the rate of transfer accelerated, the government agencies recognized the need for a sound legal basis for the reforms. A proposed new law governing Water User Associations was prepared by DSI in late 1999 and sent to the Ministry for further action.

By the end of 1999, management responsibility (but not ownership) of schemes constructed by DSI was transferred to about 700 Water User Organizations, covering an area of 1.53 million ha.  Over an area of 315,000 ha, irrigation infrastructure could not be transferred to WUOs for such reasons as low irrigation ratio, high electricity cost, low farmer income, one crop production a year, improper infrastructure, lack of farmer awareness, farmer policy, etc. In the transferred area, the types and numbers of organizations created to manage the system are as follows:

Table 2. Water management entities created in Turkey

Water User Organizations which have taken over management responsibility have hired 5,000 staff members to perform operation and maintenance (O&M) activities. Staffing consists of both permanent staff (22%) and seasonal staff (78%).  A great many seasonal workers are employed during the months of April, June, and August, when irrigation is at its peak.  Most directors of WUOs (second in command after the chairman) are professional agricultural engineers.

The total budget for all WUOs in 1999 was US $48.5 million (at an exchange rate of 420,000 Turkish Lira/Dollar).  The collection rate of water charges in 1999 increased to 78%.  By comparison, in the non-transferred systems, collection rates were almost constant at 43% from 1997-1999. Transfer has had a major impact on collection rates. The majority of a WUOs revenue (68%) is spent on O&M. Some was saved for purchasing equipment, machinery, and vehicles in order to make use of World Bank supported project, PPIMIP.

The idea of the Participatory Privatization of Irrigation Management and Investment Project (PPIMIP) came to the agenda in late 1997 to provide for the sustainability of WUOs.  The loan agreement with the World Bank was signed on February 27, 1998. The project subsidizes 25-45% the cost of machinery purchased by WUOs.

The loan amount foreseen for the initial 5 years is about $20 million, and $17.5 million US over the next 5 years.  The first installment will be applied for the years 1998 to 2002. DSI is not the only line agency for PPIMIP project—GDRS will also construct drip irrigation systems in some irrigation networks.  $12 million out of $20 million will be granted to WUOs by the Turkish government to subsidize the purchase of new machinery. The project also comprises education programs and elements to strengthen the organizational structure.

Because the work of the project cuts across several agencies, the Project Coordination Unit (PCU) was set up.  Based in Ankara, the office coordinates activities amongst DSI, GDRS, the World Bank (WB), and WUOs. PCU operating costs are covered by the PPIMIP. Setting up the PCU to coordinate sectoral activities is a completely new approach for the irrigation sector in Turkey. 

To date, 238 WUOs (or 72%) have signed contracts with PCU to purchase machinery and equipment. Through 1999, 1,164 pieces of O&M equipment, 60 vehicles, and 98 pieces of machinery have been purchased by WUOs, at a total cost of $8.6 million.  $6.2 million was covered by WUOs themselves, and $2.4 million was granted from the PPIMIP Loan.

The machinery and equipment that was purchased by WUOs in 1999 was as follows:

• Computers (168)
• Measuring Devices (1)
• Mobile Wireless (589)
• Vehicle Wireless (40
• Fixed Wireless (45)
• Relay Station (30)
• Motorbike (213)
• Motor Pump (38)
• Generator (9)
• Fax Machine (8)
• Storage Tank (1)
• Small Equipment Repairs (7)
• Grout Mixer (3)
• Sprayer (6)
• Pick-Up (60)
• Loader-Wheeled(32)
• Tractor (15)
• Crane (8)
• Trailer (12)
• Truck (13)
• Damper (4)
• Grader (3)
• Bantam Excavator (2)
• Wheeled Excavator (11)
• Tracked Excavator (4)

Recently, representatives from different countries have visited Turkey to see the latest developments in the irrigation sector, as well as WUOs and transfer activities. Interested people or groups are welcome to come and see the Turkish experience.  Please contact DSI at foraffairs@dsi.gov.tr or visit our web site http://www.dsi.gov.tr .

By Adem Avni Unal
Senior Engineer
ademavni@yahoo.com