HOW TO MEASURE PEOPLE’S ATTITUDES CONCERNING WATER? AYSE KUDAT SOCIAL ASSESSMENT 2002

1. HOW TO MEASURE PEOPLE’S ATTITUDES CONCERNING WATER?AYSE KUDATSOCIAL ASSESSMENT2002

2. WATER IS LIFE • Shortages of water, inadequate and irregular supply causes people to resort to a broad range of quality and quantity enhancement strategies; • When coping mechanisms are ineffective, latent or manifest conflict arises among key stakeholders; • Potable water shortages are more severe than irrigation water; • There is limited trust that water resources will be managed to the satisfaction of all stakeholders; trust for local authorities, fellow farmers and for people of different ethnic origin is high; • Farmers want to have more independence in managing water resources; • There is limited involvement of women in farming decisions. Women are said to be more skilful in conflict resolution; • The evaluation of farming as a profession is mixed; some feel that it promises much while others are pessimistic; • There is strong support for the proposed project; • Support for longer term project objectives is even stronger.

3. THERE IS HIGH POTENTIAL FOR CONFLICT AMONG COMMUNITIES DIFFERENT CATAGORIES OF FARMERS COMMUNITIES NEIGHBORS ETHNIC 1. People do not share irrigation water; 2. Many downstream communities have disagreement with the upstream one for water;3. There is a lot of conflict between neighbors for water; 4. Not even neighbors trust one another when it comes to irrigation water;5. Shirkat farmers have a much easier time than dehkan or private farmers; 6. Cultivators are favored over cattle and sheep breeders; 7. Being of different ethnic origin aggravates water conflicts; 8. Some ethnic groups do not get their fair share of resources

4. Conflict Over Water Resources Occurs among Many Stakeholders Farmers and ethnic groups have little conflict There is substantial conflict over water Source: Karshi SA, 2001 * The area inside the red line points to scope of potential conflict

5. Reasons for Conflict In old times, the conflicts over water were caused by the traditional arid conditions of the area. Today, conflict arises from the nature of the system of agriculture, put in place since the 1960s, which has increased the production of more water intensive crops through a network of pumped irrigation. The operations of the system installed, for many reasons, result in insufficient water in a timely fashion for all those who wish to use the system. The impact of water shortages can be dramatic for irrigated agriculture that depends on water supplied in sufficient quantity and quality at the times in the agricultural season when it is needed technically. As one farmer put it, “If the irrigation system does not deliver water for cotton even once or twice, then yields are reduced 25-30% and cotton becomes unprofitable. If the system fails three times, not even expenses are covered. And if one farmer in an area has enough water and a good crop while another farmer has insufficient water and no crop, there will be a scandal”.

6. Reasons for Conflict (cont’d) According to focus groups, the main reasons for specific incidents of conflict are: · Lack of precision as well as flexibility in contracts between land owners and leasers over water. The leaser often contends that any payment owed the land owner is void if the state does not provide irrigated water, a condition the land owner is not often prepared to accept; · Both leasers and owners have imprecise information concerning who is responsible for the distribution of water, the terms and conditions of the distribution, and whether it actually takes place as contracted. Determining who is responsible for water is difficult, and thus “anyone and everyone” can become responsible for a problem; · Those at the end of the irrigation system are under-serviced by the irrigation system,, particularly in recent times during which lack of water has been exacerbated by drought. Since the shirkat head is usually responsible for allocating land, those who receive land away from the irrigation canals are apt to be unhappy. · The shirkat head appears to have the authority and the power to cut off irrigated water for private and dehkan farms and allocate this water to shirkat fields; water engineers (the mirabs) report administratively to the shirkat head. · There is little transparency in water distribution. As one private farmer in the Nishan district put it, “Every farmer has a right for a certain quantity of water, but I don’t know how much water my neighbor actually took.” In addition, because there is no metering, there is no objective basis on which to judge water distribution.

7. Horizontal Conflict • Conflict within stakeholder groups at the same level of water resource management tends to be between two participants and on the basis of issues directly related to the two participants involved. The nature of conflict amongstakeholder groups is as follows: • Among dehkan farmers who use irrigated water for their small plots conflict is usually due to a dehkan (i) close to the intra-farm irrigation canal closingoff water to one further away; and (ii) not respectingirrigation scheduling accepted by neighboring farmers; • Among private farmers conflict arises from: (i) one farmer using more water than permitted by theirrigation schedule or by an amended schedule when the shirkat has taken more than its agreed share; and in a few cases by (ii) one farmer unsatisfactorily maintaining irrigation and drainage systems; • Between private farmers and family brigades within a shirkat especially since the private farmers may be allocated land downstream of the family brigades. As one official in the Nishan District observed, “Farmers were given land two or three years ago when there enough water for everyone, but now with scarcity, family brigades get the priority allocation and private farmers get what is left.”; • Among heads of family brigades within a shirkat, conflicts arise because: (i) one brigades cuts off the water of another brigade; (ii) incorrect water allocation by the shirkat water engineer results in insufficient/untimely water for a brigade; and (iii) some brigades may not maintain the irrigation/drainage system in ways that impact other brigades; • Among shirkat heads, disputes may arise over overall allocations and scheduling, especially at the Khokimiyat levels, and during the agricultural season when one shirkat is taking water and another feels it is being penalized.

8. Vertical Conflict • Conflict between different levels of society over water arise among the stakeholders: • Between private farmers and shirkat heads over: (i) more water being allocated to shirkat brigades at the expenses of private farms; (ii) insufficient attention to irrigation and drainage maintenance that may impact one group at the expense of another; (iii) inadequate attention to private farmers in scheduling water release; and (iv) failure of the shirkat to take action with regard to over-utilization of water by some farmers; • Between dehkan farmers and shirkat heads over: (i) unauthorized use of water by dehkan farmers especially when shirkat lands are beingirrigated; (ii) prohibition for dehkans to water plots at certain times; (iii) unauthorized use of water by dehkans, especially in ways that hurt the irrigation systems; (iv) use of potable water by dehkans for irrigation; (v) permission for relatives of shirkat heads to water their backyard land plots at the expense of dehkan farmers; • Between family brigade heads and shirkat heads over: (i) lack of maintenance on brigade land for which brigades are responsible; (ii) water supply limitations; and (iii) not respecting irrigation schedules; • Between family brigade heads/private farmers and shirkat water engineers over: (i) mistakes by engineers on water distribution that are then blamed on farmers; (ii) unauthorized use of water by farmers; and (iii) the lack of precise information on the quantity of irrigation water to be supplied. • Between shirkat heads and Rayselvodkhoz officials over the initial calculation of water volumes and irrigation scheduling which is usually solved quickly except when water scarcity forces the Rayselvodkhoz officials to introduce changes to the agreements, including rationing.

9. Stealing Water The concept and ramifications of “stealing” water, the unauthorized use of water designed for another individual or farm, was the subject of much discussion in focus groups. The nature of stealing is ambiguous since most people do not have a clear idea that water belongs to anyone and therefore it is not difficult to find an excuse for taking water. On the otherhand it is also clear that “stealing” war causes loss and suffering for others. Stealing occurs both vertically and horizontally and conflicts can become acute, often involving the use of force, especially when crops are dry or backyard gardens need watering at a time when water is being used by shirkats.

10. Conflict Resolution Mechanisms • Hardly anyone believes that increasing the water supply will eliminate stealing water. The most effective way to deal with horizontal conflict is through appeal to an objective higher authority who is not involved in the dispute, including a public official, a traditional leader such as the Khokim, or an acknowledged expert. Another effective way of resolving horizontal conflict is through the establishment of water user associations that can either be a venue for resolving issues when they occur or for dealing with potential conflict before it happens. Administrative penalties are not seen as an effective means of resolving conflict often because they are not severe enough to be a deterrent. • Vertical conflict resolution is much more difficult and usually involves, in the experience of focus group members, an appeal to a higher authority.

11. DRINKING WATER Drinking water problem is much more important than irrigation water People share water when it comes to drinking water because the amount needed is small

12. THERE IS RELATIVELY HIGHER TRUST IN LOCAL LEVEL LEADERS IN RESOLVING WATER RESOURCES MANAGEMENT ISSUES IN STATE/GOVERNMENT OTHER PEOPLE/ FARMERS ASSOCIATIONS LOCAL GOVERNMENT AND SHIRKATS 1. Water user associations are needed provided that state officials do not intervene with their activities;2. One cannot earn money honestly;3. Influential people always get more than their share of water; 4. It is connections that get things done, not the laws; 5. No one trusts the officials anymore for allocating water in a fair way; 6. Even if new lands are opened to irrigation only the influential people would get it; 7. There is no need for any associations, only the state should be in charge of water distribution*; 8. People do not trust each other and do not get together to help solve water and drainage problems; 9. Shirkat farmers do not trust private farmers; 10. Water user associations could work only if their managers are appointed by local authorities; 11. Water user associations will inevitably become bureaucratic offices similar to land user and dehkan and farmer associations; 12. All associations are set up to take money away from ordinary working people; 13. People have to make high unofficial payments to get irrigation water; 14. Local authorities work very hard to help people*; 15. People are able to meet their water needs only through informal payments and contacts; 16. Everyone trusts the shirkats for delivering water in a fair and equitable way*; 17. Private farmers do not trust shirkat farmers.

13. There is Low Social Capital in the System There is little trust in the system Source: Karshi SA, 2001 * The area inside the red line shows lack of trust to different stakeholders

14. WOMAN’S PARTICIPATION IN WATER RELATED CONFLICTS PRODUCE MORE EFFECTIVE RESULTS 1. Women have fewer problems with irrigation water; this is mostly the men's problem 2. Women should not be involved in farm management 3. Only men get into water disputes, women are able to resolve water problems more peacefully*

15. Exclusion of Woman Source: Karshi SA, 2001 * The area inside the red line, discourages female participation in farm/irrigation management

16. NEED FOR LARGE QUANTITY OF IRRIGATION WATER IS MODERATELY FELT 1. There is enough irrigation water in this rayon * 2. It is not right for people to expect us share our water* 3. Using a lot of water for irrigation damages the soil, less water should be allocated* 4. There is insufficient land to allow people to become private farmers

17. Felt Need for Higher Volume of Irrigation Water is Conditional. People Realize the Need to Use Water Moderately Source: Karshi SA, 2001 * The area inside the red line points to felt need for larger volumes of irrigation water

18. PEOPLE FIRMLY BELIEVE THAT FARMERS SHOULD PARTICIPATION IN WATER RESOURCES MANAGEMENT INTEREST IN PARTICIPATION IN IRRIGATION IMPROVEMENTS WHEN IT COMES TO CAPITAL EXPENDITURES PEOPLE EXPACT THE GOVERNMENT TO BE SOLELY RESPONSIBLE 1. It is wrong to expect every improvement from the state, each individual should do their share to promote reforms; 2. Shirkat farmers are not given an opportunity to participate in shirkat decisions, including irrigation; 3. Farmers, not shirkats should be responsible from water management; 4. Irrigation and drainage are the problems of the state. The government should do all the investments and the maintenance*

19. Farmers are Eager to Participate in Irrigation Management except with regard to Capital Investments Source: Karshi SA, 2001 * Area inside the red line sums the need for greater participation of people in water resources management and farming

20. FARMERS WISH TO OVERCOME CONSTRAINTS TO LAND AVAILABILITY 1. Everyone would like to be a private farmer;2. There is insufficient land to allow people to become private farmers*;3. It is best for young people to go to big cities as there are no opportunities in agriculture*; 4. The future holds great promises and it is great to be a farmer;5. It is best to work in a factory or government office*; 6. No informal arrangements are necessary to get everything one needs for crop production and livestock management

21. Image of Farming is Largely Positive Source: Karshi SA, 2001 * The area inside the red line sums positive perceptions of farming and its future

22. FALL IN LIVING STANDARDS IS WIDELY FELT 1. Some get richer and richer while others impoverish; 2. Living standards are constantly falling 3. Life is a constant struggle in the region whether one farms or does something else; 4. Urban people of the region cannot survive unless they do some livestock and cultivation activity; 5. Rich people work harder than others.

23. People Perceive Structural difficulties in Getting out of Poverty Source: Karshi SA, 2001 * The area inside the red line points to an unjustifiable increase in poverty and an unfair distribution of opportunities

24. PEOPLE SUPPORT SHORT AND LONG TERM OBJECTIES OF THE PROJECT 1. Meters should be installed to measure exactly how much water everyone uses; 2. If this situation continues, water problems will get worse; 3. There is enough irrigation water in this rayon *; 4. There is need to open new lands for irrigation; 5. Using a lot of water for irrigation damages the soil, less water should be allocated; 6. There is more difficulty in obtaining other farm inputs such as fertilizer, farm machinery than there is to get irrigation water*; 7. It is no good to have more irrigation when drainage is inadequate (need for long-term project objective)

25. Need for the Proposed Project is Widely Felt Source: Karshi SA, 2001 * The need for the proposed long-term project objectives is felt by many people as indicated by the area inside the red line

26. PEOPLE HAVE VERY POSITIVE PERCEPTIONS OF WATER USER ASSOCIATIONS (WUA) 1. Water user associations could themselves fix amounts of payment for water; 2. Water user associations could be useful for resolving water conflicts;3. Water user associations could protect interests of ordinary dehkans ;4. Information about water distribution will be available for every member of water user associations; 5. Water user associations cannot be useful, unless they manage supply of water from the main canal to inter-farm canals; 6. Separate special associations should keep control over drainage network maintenance and repair;7. Members of water user associations could easily reelect their managers; 8. Members of water user associations could exercise control over managers of water user associations; 9. If Water user associations were established, this could be another reason for water conflicts as they could not distribute water in a fair way*

27. Water User Associations Are Supported by Everyone Source: Karshi SA, 2001 * The need for the establishment of WUAs is felt by nearly everyone as indicated by the area inside the red line

28. Most Farmers Report Declining Yields Owing to Water Shortages Yields are unchanged Crop yield increase Crop yields fall in last 3 years Source: Karshi SA, 2001 NOT ENOUGH WATER Source: Karshi SA, 2001

29. There is Strong Support for Long-term Project Objectives