Completion evaluation

Background

In 2006, the International Fund for Agricultural Development's (IFAD) Office of Evaluation (OE) conducted a completion evaluation of the Participatory Irrigation Development Programme (PIDP) in the United Republic of Tanzania. The evaluation mission took place in July/August 2006 and the evaluation report was finalized at the end of October 2006.

The Core Learning Partnership (CLP) of the evaluation comprised of representatives from: the Ministry of Finance; Ministry of Planning, Economy and Empowerment; Ministry of Agriculture Food and Cooperatives (MAFC); Prime Minister's Office, Regional Administration and Local Governments, District Councils, Regional Administrative Secretaries, World Food Programme; the office responsible for Irish Development Assistance; members of research institutions and universities; The United Nations Office for Project Services (UNOPS), Nairobi; and the IFAD Division for Eastern and Southern Africa (PF). Other agencies involved in irrigation development such as the Danish International Development Agency (DANIDA) and Japan International Cooperation Agency (JICA) were also part of the CLP.

A final workshop was held in Dar es Salaam on 19 October 2006 to discuss the findings and lessons from the evaluation, and to lay the basis of the Agreement at Completion Point (ACP). This ACP reflects an agreement between the Government of Tanzania (GOT) [represented by the Ministry of Agriculture Food and Cooperatives (MAFC)] and IFAD (represented by the Eastern and Southern Africa Division).

The main evaluation findings

The PIDP was designed according to IFAD's country strategy for the United Republic of Tanzania, and was in line with the Government's high priority of poverty reduction. The programme considerably attained its objectives by improving overall water availability and agricultural productivity although with varying degrees of effectiveness. PIDP made very good efforts in terms of institutional capacity development, as well as promoted participatory approaches and intensive training. It also significantly achieved most of its outputs and it provided opportunities for the traditionally landless (especially women and youth) to get land.

There were several challenges facing PIDP implementation and these include: the low institutional capacity at district level, the limited range of water-harvesting technologies used, the under estimated level of construction costs for individual schemes, the lengthy tendering process and the low capacity of contractors and the unclear land rights of the ‘new' land owners among others

Recommendations agreed upon by all partners

General policy recommendation

It was proposed that the recommendations below should be integrated into the National Irrigation Policy under formulation and that MAFC should therefore introduce this ACP to the team drafting the policy. Further, it was agreed that the implementation of the recommendations should be within the context of the Agricultural Sector Development Programme (ASDP) and the respective District Agricultural Development Plans (DADPs).

The proposed National Irrigation Policy policy should be comprehensive and robust taking into consideration:

• Different water users
• Competitive water demands
• Sustainability of irrigation development and management
• Targeting the poor (pro-poor)

Time frame: by end of 2006

Specific policy and institutional issues

Poverty eradication. It should be emphasized in the National Irrigation Policy being developed, that different irrigation/water-harvesting technologies be discussed in the context of each potential scheme area, and the range of agronomy options available including selecting the most suitable crops. Livestock development should be considered alongside crop production, to promote a harmonious coexistence of the two, and where possible to integrate them. It is also evident that market access for surplus produce and access to inputs and finance must be integral parts of irrigation schemes and community development.

Catchment approach. MAFC should ensure that Ministry of Water, and other line ministries in consultation with partners continue their concerted actions to incorporate the catchment approach in the policy and to ensure that the necessary institutions at national, regional and local levels are established to implement it.

Time frame: end of 2006

Supporting water users' associations

Districts should provide institutional support to the WUAs to assist them in maturing and performing their very crucial role in irrigation management.

Time frame: by end of 2007

The PIDP Programme Coordination Unit (PCU) should conduct a comprehensive study of how WUAs function (what works and what does not work). The study should be formulated and carried out and the results be translated into operational tools regarding the regulatory role of WUAs. Based on the results of the study it should be considered to develop more robust arrangements for legal support to the WUAs.

Time frame: by July 2007

Targeting the rural poor. MAFC should decide at the design of any irrigation scheme that the overall aim is to target the rural poor while giving due consideration to the economic efficiency of the schemes.

Time frame: after the development of the irrigation policy – by December 2007

Water use efficiency. MAFC in coordination with relevant ministries (Water, Environment, Energy, Livestock) should therefore develop appropriate strategies that will empower farmers to become aware of and knowledgeable in water management. The District Councils should train WUAs and then WUAs should become accountable to the communities for efficient water use. This requires a participatory approach, training, application and enforcement of regulations and introduction of incentives/disincentives.

Time frame: starting June 2007

Participatory approach. The participatory approach should be adopted as a standard methodology for the planning, design, implementation, monitoring & evaluation of all future irrigation and water-harvesting programmes. MAFC should ensure that this is adopted in the National Irrigation Policy.

PIDP PCU should develop guidelines for participatory approaches for incorporation into DADPs for implementation.

Time frame: by June 2007

Exploiting already improved social capital. In instances where good social capital has been built, but where irrigation systems have not worked as well, efforts should be made to use the acquired social capital for other community development. The respective districts should identify areas where such social capital exists and incorporate such information in their DADPs for use.

Time frame: Starting January 2007

Capacity-building

Capacity-building at district level. MAFC should ensure that measures are taken nation wide to considerably increase the capacity (human and financial resources) at district level to take responsibility for implementation and follow up of irrigation development programmes. An assessment will need to be urgently made of the bottlenecks to effective implementation and uptake of management responsibilities by district institutions. This should be followed by a clear definition of activities, including timelines, aimed at addressing the identified gaps. This is a condition for the foreseen decentralized implementation of the National Irrigation Policy and attaining the targets set for expanding irrigated agriculture.

MAFC in collaboration with Prime Minister's Office-Local governments should ensure that District Councils carry out an assessment of requirements, identify capacity gaps and develop corresponding training programmes. Districts could undertake both training and recruitment of necessary staff in order to fill the existing gaps.

Time frame: starting July 2007

Capacity-building in irrigated farming. MAFC should ensure, that the necessary training needs are catered for during policy formulation and that District Councils through DADPs make provision for Farmers Field School, supporting Village Extension Officers' (VEO) and core farmers' participation.

Time frame: July 2007

Private sector contractors. MAFC should open up dialogue with the private sector specifically to identify gaps and develop means and measures to fill the gaps. Training programmes should be developed in cooperation with the sector to improve its capacity. Possibilities for streamlining tendering and procurement rules, regulations and procedures thus facilitating its operations in irrigation scheme construction should be investigated. Measures must be developed to improve the productivity of the sector otherwise a bottleneck for scheme construction will be a serious constraint on the implementation of the National Irrigation Policy.

MAFC should in coordination with other relevant ministries establish cooperation with the National Construction Council, Contractors' Registration Board, and Engineers Registration Board in order to implement this recommendation.

Time frame: immediately

Technical matters

Data collection programme. MAFC and the DADPs should ensure that the necessary data are collected to support future works. MAFC in coordination with Ministry of Water and other relevant institutions should immediately establish such data collection stations in cooperation with Zonal Irrigation Units and the District Councils.

Time frame: immediately

Compiling information regarding irrigation and water-harvesting techniques. The MAFC through the Department of Irrigation and Technical Services should compile information about the range of irrigation/water-harvesting technologies already developed and available and the related advantages and disadvantages. The already existing knowledge and experience in the United Republic of Tanzania about irrigation and water-harvesting techniques should be made the best possible use of. Where necessary it should be supplemented and up-dated. Relevant institutions should be assigned the task of compiling the relevant information available nationally and internationally and make it available for the National Irrigation Policy implementation.

Time frame: immediately