World Bank experience with irrigation development : socio-economic, institutional and technical impact and lessons (Vol. 3 of 3)

Report No. 7876 World Bank Experience with Irrigation Development Socio-Economic, Institutional and Technical Impact Lessons (In Three Volumes) Volume III: Morocco Doukkala I and II Irrigation Projects (Loans 1201- and 1416-MOR) june 15, 1989 Operations Evaluation Department FOR OFFICIAL USE ONLY Document of the World Bank This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. CURRENCY EQUIVALENTS Currency Unit - Dirhan (DH) DH 1 = US$0.13 US$1 = DH 9.42 WEIGHTS AND MEASURES 1 milimeter (unm) = 0.039 inches (in) 1 meter (m) = 39 inches (in) 1 kilometer (km) = 0.62 miles (mi) 1 hectare (ha) - 2.47 acres (ac) 1 square meter (m2) = 10.76 square feet (ft2) 1 cubic meter (3) = 35.31 cubic feet (ft3) 1 liter (1) = 0.264 US gallons (gal) I hectoliter (h1) = 26.4 US gallons (gal) 1 kilogram (kg) = 2.206 pounds (lb) 1 metric ton (t) 2,205 pounds (1b) 1 bar - 14.66 lb/square inch (psi) ABBREVIATIONS CMV Development Center (Centre de Mise en Valeur) CNCA National Agricultural Credit Bank (Caisse Nationale de Credit Agricole) CRCA Regional Agricultural Credit Bank (Caisse Regionale de Credit Agricole) iMF International Monetary Fund (Ponds Monetaire International) INRA National Institute of Agricultural Research (Institut National de la Recherche Agronomique) LSI Large-Scale Irrigation Scheme (Perlitres de Grande Irrigation) MARA Ministry of Agriculture and Agricultural Reform (Minist;re de l'Agriculture et de la Reforme Agraire) 0&M Operation and Maintenance (Operation et Entretien) ORMVA Regional Agricultural Development Office (Office Regional de Mise en Valeur Agricole) ORMVAD Doukkala ORMVA (ORMVA de Doukkala) PA-I Large-Scale Irrigation Improvement Project (Ln. 2656-MOR) (Projet d'Amilioration de la Grande Irrigation) CPBS Main Low-Service Canal (Canal Bas Service) MMI Mobile Sprinkler System (Matiriel Mobile d'Irrigation) SAR Staff Apprairal Report (Rapport d'Evaluation) PCR Project Completion Report (Rapport d'Achevement) PPAR Project Performance Audit Report (Rapport d'Evaluation Retrospective) UREF Newly es:ablished village (Unite rurale dlequipement et de fonctionnement) GOVERNMENT OF MOROCCO FISCAL YEAR January 1 - December 31 FOR OFFICIAL USE ONLY WORLD BANK EXPERIENCE WITH IRRIGATION DZVELOPMENT SOCIO-ECONOMIC, INSTITUTIONAL AND TECHNICAL IMPACT AND LESSONS ROLUME III MOROCCO DOUKKALA I AND II IRRIGATION PROJECTS (LOANS 1201- AND 1416-MOR) TABLE OF CONTENTS Page No. SUMMARY AND CONCLUSIONS ................................. i I. BACKGROUND ........ . . . ..............*....*..... 1 A. The Economy ........................................... 1 B. The Agricultural Sector .. ............ ... ...... ... .... . 2 C. The Irrigation Subsector . ............ . ...... . .. 3 D. The Projects .............#.. .................. 6 II. AGRICULTURAL IMPACT ................ .............. 9 A. Land Tenure ......................................... 9 B. Agricultural Development ......................rD...... 13 1. Cropping Pattern ............ . ............... 14 2. Cropping Intensity ............................... 16 3. Yields #.......... . .*.......... . . . .. . . . ... 16 C. Livestock Development ................................. 17 III. PERFORMANCE OF THE IRRIGATION SYSTEM ....................... 19 A. General .** ... .. ....... . .. . . * . ......... .... * ......... 19 B. Project Design ........................................ 20 C. Actual Performance of the Irrigation System .... 21 1. Status of Project Works at Impact Evaluation 21 2. Water Exficiency ................. #0 ..... 22 3. Flexibility in Water Distribution ................ 24 4. Equity of Water Distribution ......**.......... 24 5. Reliability and Timeliness of Water Distribution.. 25 D. Operation and Maintenance ...... . . ......... 25 E. Cost Recovery .............. ...... ............ ....... 26 F. Impact on Environment ................................. 28 G. Performance Comparison between Sprinkler and Gravity Systems ............................................... 29 This document has a restricted distribution and may be used by recipients only in the performance of their official duties. Its contents may not otherwise be disclosed without World Bank authorization. Table of Contents Cont. IV. ECONOMIC AND FINANCIAL IMPACT ....... ....................... 32 A. Economic Impact ..................................... 32 B. Financial Returns to Farmers .......................... 33 C. Financial Returns to ORMVAD ........................... 34 V. INSTITUTIONAL EFFECTIVENESS ................................ 36 A. Project Organization . ...........................*.## 36 B. Institutional Performance ............................. 37 C. Farmer Involvement .................... .............. 38 D. Farmer Perceptions of Institutions .................... 39 VI. SOCIAL IMPACT . ............................. 40 A. The Family Unit ......................... 40 B. Work Distribution and Role of Women ................... 41 C. Housing and Social Infrastructure ..................... 42 D. Farmer Perception of Project Jenefits ................. 43 VII. FUTURE PROSPECTS ............................ ...... 43 Annex 1 - Main Features of the Doukkala Irrigation Projects Annex 2 - Socio-economic Survey of the Doukkala Project Beneficiaries Annex 3 - Farm Budgets, Cropping Intensities and Net Production Values Annex 4 - Estimated Net Returns per halper Crop by Farm Size in 1986 Annex 5 - Economic Rate of Return Analysis MAPS: IBRD Nos. 16255 (PCR), 12561R (PCR) Dirt mWoW s frontpae morescome 11:48:00 18-RN-89 WORLD BANK EIPERIENCE WITH IRRIGATION DEVELOPMENT SOCIO-ECONOMIC, INSTITUTIONAL AND TECHNICAL IMPACT AND LESSONS VOLUME III MOROCCO DOUKKALA I AND II IRRIGATION PROJECTS (LOANS 1201- AND 1416-MOR) SUMMARY AND CONCLUSIONS 1. These projects complemented well Government's objectives of investing in large-scale irrigation to enhance domestic food self suffi- ciency, boost export earnings and expand rural employment opportunities. Both projects were the most recent efforts to develop the resources of the Oum er R'bia river--the second largest river basin in Morocco. Originally prepared as one project in 1974, these projects constituted one of nine large-scale irrigation schemes (LSI) in Morocco in which land consolidation was integrated with layout of the irrigation network. In the case of Douk- kala, irrigation was by sprinkler, the projects also provided supporting services over a total command area of about 30,000 ha. Irrigation system design was technologically advanced, featuring modern water regulation and high overall water efficiency to provide quality and equitable services to water users. Related village infrastructure, bilharzia control and techni- cal assistance was also financed. The projocts were administered by a single regional agency (ORMVAD) responsible for both irrigation and agri- cultural services. At appraisal in 1976 the project was split into two tranches, the first, approved in the same year for a total project cost of US$94.4 million, the second, approved in 1977 for US$121.0 million. 2. The projects were successfully Implemented, in large part due to strong and effective management performance on the part of ORMVAD. Both projects experienced initial delays due to weak contractor performance, procurement problems and government financing difficulties. Doukkala I closed one year late in June 1981; total project costs were US$85.0 million; US$2.7 million of the loan was cancelled. Closing of Doukkala II was delayed by three and a half years with total project costs of US$77.4 million; US$3.0 million of the Bank's loan was cancelled. Lower project costs in dollar terms were due to savings. 3. Actual irrigation construction achievements were close to apprai- sal estimatess 15,820 ha and 16,400 ha equipped to sprinkler irrigation in Doukkala I and II respectively. Only two of the expected seven villages were completed due to lack of demand by farmers. Although land consolida- tion was succeasfully accomplished prior to construction of the irrigation infrastructure, at project completion, average farm size was much smaller, and with a greater number of co-owners, than expected. Production and yields at completion of both projects were higher than forecast at apprai- sal. Cropping intensities were in line with appraisal expectations and reached 119% for Doukkala I (146% expected at full development) and 107% Dir: NM M as frantpags moroco:no 11:43:00 18-JUN-89 - ii - for Doukkala II (1442 expected at full development). Technical assistance was satisfcctorily completed, ORMVAD was regarded at project completion as a sound and well managed institution. Less success was noted with other institution-building objectives, notably development of water user associa- tions. Despite low priority to operation and maintenance, cost recovery was highly satisfactorily. The respective economic rates of return were re-estimated considerably higher than what had been forecast at appraisal: 20.5% va 11.4% for Doukkala I and 18.7% vs 11.6% for Doukkala II, the just- ification being the higher than expected yields and cropping intensities. 4. The PPAR for Doukkala I attributed overall project success in part to (i) the managerially integrated farm services whereby all the key pro- ductive activities required by farmers, and not just water for irrigation, were under one management structure and (ii) continuity of senior manage- ment and staffing. The rapid adoption of the technical package by project far.ers was also attributed to the semi-arid conditions of the project area and the fact that sprinkler irrigation proved to be technically the best tool for the project. The PPAR praised the land consolidation system and highlighted its replicability; also noted that operation and maintenance received low priority including the development of water user groups. 5. At impact evaluation, six years after closure of the first proj- ect, the land tenure system is much more complex than appraisal expecta- tions. As originally planned, the minimum size of consolidated farms was to be 5 ha. Landowners with smaller holdings were to be grouped in 5-ha farms to be cultivated collectively. In fact, the number of land rights has increased significantly over time. The project area is now character- ized by small plots of less than 2 ha. individually cultivated, with a much larger than expected number of beneficiaries. 6. Agricultural development has closely followed appraisal expecta- tions but differs substantially from the revised, upward, estimates made at project completion. In the cropping pattern, wheat and sugarbeet continued to increase each year while other crops expected in the rotation were much less cultivated due to inattention to research, changes in the land tenure situation, marketing problems and availability of land in non-irrigated areas. There has been good transfer of technology particularly in respect of wheat and sugarbeet for which ORMVAD has developed a suitable, inte- grated package for farmers. Cropping intensities have reached appraisal expectations but not those at project completion. Livestock and milk production have not progressed as expected because of farmer attitudes towards livestock, the fact that it is almost exclusively a female activity but women receive no extension advice, the smaller than expected farm size and marketing problems. 7. The sprinkler irrigation system has proved satisfactory in terms of flexibility, equity, reliability and timeliness of water distribution. Water use .fficiency was lower than expected. Conveyance and distribution efficiency was good but *here were substantial water losses at the field level due to deficient operation and maintenance, changes in the land ten- ure situation and lack of farmer organization at the tertiary level. The advanced technological design of the irrigation system, however, has per- mitted an overall water efficiency of 49%, greater than most irrigation systems in developing countries. Cost recovery for operation and mainte- Dir: MMORDP as frontpage wn-occo:n* 11:43:00 18-JUN-89 - iii - nance has continued highly satisfactory. No adverse impact on the environ- mert has been noted; all drainage works were constructed as planned, 8. The revised economic rate of return for Doukkala I at Impact eval- uation is 11.7%, slightly more than the appraisal forecast but considerably less than the over-optimistic projections re-estimated at completion. Similarly for Doukkala II where the revised economic rate of return is 10.5%, lower than estimated at completion, and slightly less than appraisal forecast. These reflect the fact that cropping intensities and yields, which quickly reached a peak during project implementation, did not continue to increase as expected after project closure. Exogenous factors which affected the rate of return were a fall in international commodity prices and higher energy costs. 9. The social impact of the projects has been considerable. There is a significantly higher number of beneficiaries than expected either at project a ppraisal or completion. This has proved of substantial benefit in economic terms: small farmers have significantly higher cropping intensi- ties than do larger farmers, as well as in financial terms: small farmers have the highest returns on a per hectare basis. Because of the much smal- ler size of holding, average rural incomes have increased but not to the extent expected. Only those farmers with two hectares and above, (25% of farms in Doukkala I and 29% of farms in Doukkala II) have incomes above the rural poverty level. The project has proved successful in another of its objectivest alleviating underemployment. Doukkala I generated over 4,100 years of employment; the surveys report an increasing incidence of work at the farm level. Improvements in standards of living have begun slowly- -probably a result of the lower than expected average family financial returns. The survey shows that families welcome the increased incomes which irrigation has brought together with better access to water. About one third of houses have been improved in Doukkala I, but there has been little progress in respect of access to potable water, electricity and schooling for their children. Overall th. project has served to stabilize the rural population by slowing the rate of permanent and seasonal emigra- tion and by encouraging the rate of in-migration. 10. The institutional impact has been very positive. ORMVAD remains at impact evaluation a highly efficient organization which ;romoted an appropriate and effective development strategy. It has progressively moved towards financial independence, by steadily increasing, in con-.ant terms, water charges for operation and maintenance (the most important source of revenue) thereby phasing out government subsidies for its recurrent budget. It has low intensity management staff, particularly in respect of operation and maintenance. This is in part due to the irrigation system design, which by virtue of being a fully automated on-demand system requires little technical management and in part due to the budgetary situation facing ORMVAD in recent years. 11. Interesting findings and important lessons can be derived from project experience. Even the best designed land consolidation system in respect of provision of the technical, managerial and agricultural support- ing services is likely to prove unaustainable if it takes no account of the dynamics of the development process and the weight of rural tradition. While the integration of the irrigation layout with land consolidation has permitted the successful introduction of irrigation to smallholders, the Dir: M1IP a frontpafes mroecme 11:48:00 18-49-8 - iv - increasing value of land combined with the traditional Muslim rights of inheritance, whereby each family member received a portion of the inheri- tance, have resulted iu previously consolidated land becoming rapidly sub- divided into small plots. This in turn has affected the economic viability through lower water efficiency and created institutional problems in the delivery of supporting services. 12. By contrast, the irrigation system design proved sufficiently flexible to accommodate the changes in the land tenure situation, to adapt to unexpected changes in cropping patterns and to unanticipated drought. However, the technical and economic superiority of sprinkler vs. gravity irrigation was less pronounced at impact evaluation than was expected at project appraisal. The volume of vater diverted on a per hectare basis has been greater for sprinkler and not less as expected due to the fragmenta- tion of farms, water losses at the field level and subsequent lower than anticipated water efficiency. The sprinkler system is more productive on a per hectare basis than is the gravity system but the expected lower 0&M costs for the on-demand system with downstream control were offset by the substantially higher energy costs. When this is combined with the higher investment costs of the sprinkler system, the latter has proved relatively less attractive in economic :erms. Only the fact that the topography and soils of Doukkala preclude gravity irrigation is in favor of sprinkler irrigation. Within a wider context, however, both systems of on-demand in sprinkler systems and arranged demand in gravity have proved to be highly efficient and adapted to arid conditions when compared to water delivery in other Bank-supported projects in other countries. 13. The lesson is that irriation system design should be sufficiently flexible to take account of subsequent evolution of social factors. The rapid subdivision of land following consolidation has been overlaid by a high degree of individualism which characterizes farmers in Doukkala, and which has resulted in overwatering of fields, limited mechanization oppor- tunities because of bunds being constructed across crop strips, no develop- ment of farmer organizations and an increasing burden for extension and irrigation staff who have to distribute inputs to each co-owner and resolves disputes among farmers. 14. The smaller than expected size of farm in turn has several posi- tive and negative implications. Smaller farm size has resulted in greater productivity per hectare with more high value crops, such as vegetables, being grown and higher cropping intensities. Almost 502 of area is culti- vated to wheat compared to the 25% expected in the mandatory cropping pat- tern, farmers anxious to assure food security. This has also pre-empted livestock and other high-value crops since the predominance of wheat/- sugarbeet has effectively precludEd forage in the rotation. The fact that there are few suitable summer crops available highlights the need for bet- ter agricultural research. The difficulties which small farmers have in obtaining credit highlights the Importance of an effective development strategy. 15. The survey illustrates that the successful introduction of irriga- tion has only had a peripheral effect in terms of significant social changes at the farm level. Families continue to be of large size, although women would like greater access to family planning activities. Married women and their daughters rarely venture beyond the homestead; men continue Dir: NDP1W s* frontpages Orocco:no 11:48:00 18-AM-89 - v - to be responsible for all purchases, including food and kitchen utersils and for decision making regarding family and agricultural activities. Women are reluctant to engage in agricultural activities except small live- stock, although they noted that the introduction of irrigation has increased their work load. They regret that this has also resulted in their daughters having less access to education than before because of the increased incidence of work. 16. The much greater than expected number of beneficiaries, the con- tinuing extent of rural tradition in the project area and the fact that farmers had no knowledge of irrigation prior to the project all underline how effective the ORMVAD approach has been in its successful introduction of a technology driven strategy. Farmers have rapidly adapted to irriga- tion practices, applied the necessary inputs and quickly achieved higher yields than expected. ORMVAD's strategy was based on promotion of a cash crop (sugarbeet) with guaranteed price and marketing. Sugarbeet has undoubtedly been the motor of development resulting in greater monetariza- tion of the rural economy and at the same time has permitted the introduc- tion of modern intensive agriculture for both sugarbeet and wheat. The fact that yield increases have not continued upwards is more due to other factors than to poor farmer receptivity. 17. The very flexibility of the irrigation system together with the integrated development strategy have also served, however, to preclude successful institution building at the tertiary level. Although it was expected that farm groups would be responsible for the provision of credit, marketing at the farm level and common ownership of sprinkler equipment, these organizations have not developed even in embryonic form. 18. In reviewing the twelve-year experience of the Doukkala projects, it is clear that project success has been due primarily to the efficiency of ORMVAD, the most successful of the nine large-scale irrigation schemes and the suitability of the development approach. Despite this success, ORMVAD's functions are changing in line with government and Bank strategy, which provides for a rapid transfer of responsibility to the sugar refin- eries and to the private sector for a number of ORMVAD's former activities. In examining the potential for sustainability, this impact evaluation con- cludes that this policy change, which appears sound in principle, includes a considerable amount of risk as it dismantles the integrated development approach which has been the very reason for project success. In par- ticular, ORMVAD's disengagement from provision of inputs and credit is likely to be detrimental to small farmers, the majority of project benefi- ciaries, who often are not eligible for credit or are unwilling to borrow from the agricultural bank. This aspect will have to be carefully moni- tored during the disengagement process. It is also doubtful that sugar refineries will be able to take over without OrMVAD's assistance all func- tions related to the organization of sugarbeet production, the management of farmers' accounts and cost recovery. Encouraging the remaining large- scale irrigation sohemes to emulate the success of ORMAD, promoting more farmer participation in decision-making, redefining the allocation of responsibilities between farmers and government, and facilitating ORMAD'S gradual disengagement from commercial activities would have been, in the view of this evaluation mission, more successful and less hazardous than quick structural adjustment which does not take into account the social factors of the project area. Dir: MOMW sa frontps"es morecono 11:48:00 13-AWN - 1 * 'WORLD BANK EPERIENCE WITH IRRIGATION DELOPMT SOCIO-ECONOMIC, INSTITUTIONAL AND TECHNICAL IMPACT AND LESSON VOLUME III MOROCCO DOUKKALA I AND 11 IRRIGATION PROJECTS (LOANS 1201- AND 1416-MOR) I. BACKGROUND A. The Economy 1.01 Morocco is rich in natural resources. This permits a diversity of activity in the agricultural sector including intensive rainfed cultiva- tion, livestock, fisheries and forestry. Morocco is endowed with a wide variety of mineral deposits--the most Important being phosphates; a range of energy resources; Lubstantial potential for tourism and an abundant labor supply, which has provided both cheap domestic labor and an important source of foreign exchange earnings. 1.02 Economic growth in the decade following Independence in 1956, however, merely kept pace with the annual population increase of approxi- mately 2.6%. The rate of growth accelerated in the second decade, which was also the period immediately preceding the appraisal of these Doukkala projects: to 5.6% in real terms or 3% per capita. Initially, this increase was due to favorable weather conditions, strong external demand for Moroccan goods and services, a boom in private investment and a tri- pling of remittances from migrant workers; latterly to a rapid increase in public spending as Government launched a massive investment program and initiated a major defense buildup. 1.03 Government policies which presided over this period of accelerated economic growth were embodied in the Second (1968-72) and Third (1973-77) Five-Year Plans. Both emphasized commitment to long-term economic growth principally through reliance on the private sector; Government's role being confined to provision of infrastructure, utilities and the necessary incen- tives. This was to be accompanied by conservative fiscal and monetary policies. The Plans also continued to emphasize agricultural self suffi- ciency, sought to shift the previous focus in trade pol.y away from import substitution and towards export promotion and to arrest the widening gap in income distribution. 1.04 The sustained period of economic growth which characterizes this middle decade since Independence did not continue into the third decade. The annual rate of economic growth between 1976-84, the period in which these projects were implemented, averaged 2.9%. Performance was affected by: (i) deterioration in the terms of trade following both the fall in phosphate prices in the mid seventies (which typically constitute almost DIR: 1%rolap/sa 0afcco ispacb eng:no 18:04:00 W8-449 -2- half of total export earnings) and the second round of oil price increases at the end of the seventies; (ii) heavy debt servicing to maintain the high public spending program; (iii) diversion of political and capital resources towards defending Morocco*s claim to the former Spanish Sahara; and (iv) severe drought conditions between 1980-84. 1.05 Stabilization measures began in the late seventies, but failed to address the underlying structural problems, the Fourth Plan (1981-85) also continued to support a high level of public investment based upon foreign borrowings and grants. Beginning in 1983, when medium- and long-term debt constituted 85% of GDP, Government embarked upon a new stabilization pro- gram in close collaboration with the IMF. At impact evaluation, Morocco is in the course of a third stand-by with the IMF; a waiver having been obtained for the first, the second became inoperative when key performance criteria could not be met, the third negotiated and in effect for December 1986 to March 1988. These efforts to contain the budget deficit were accompanied by a program of structural adjustment in conjunction with the Bank which focussed on increasing the productive efficiency and competi- tivenass of the econowy, comprising trade liberalization, export promotion and sector reforms in agriculture education and public enterprises. 1.06 In 1987, Morocco has a population of 22 million, a population Oensity in arable areas of about 107 persons per square kilometer and a per capita income of US$620. In 1985, 451 of the population was under the age of 14, the aduilt literacy rate was 28% and 511 of the population had access to safe water. B. The Agricultural Sector 1.07 Morocco has a land area of 60 million ha, with a diversified agri- cultural base. Although a large part of the country is arid or semi-arid, 8 million ha is suitable for cropping, of which about 60% is located in areas which receive more than 400 m of rainfall per annum. Principal crops, in order of importance are: cereals and pulses, citrus, getables and industrial crops. About 20 million ha of semi-arid and mountainous regions support extensive livestock production; these regions also provide a basis for forestry activities. Morocco's extensive coastline on both the Mediterranean and Atlantic coasts offers considerable fishery resources. 1.08 Agriculture's contribution to the economy is si,.dificant. When these projects were appraised in the early seventies, agriculture consti- tuted over 20% of GDP, providing employment to almost half of the country's labor force and accounting for about 25% of total export earnings. Since then, agriculture's share of GDP relative to other sectors has been declin- ing due to a slow increase in value added: increasing at an annual rate of 1.7% between 1970-80, 1.2% thereafter until 1985-86 when the rate increased sharply to 14%, largely due to exceptional climatic conditions. Although, therefore, at the time of impact evaluation in 1987 the agricultural sector was contributing almost half the overall rate of GDP growth, the sector now accounts for only about 17% of GDP, although its importance as a source of employment and export earnings remains largely unchanged. With a popu- lation growth rate in excess of 2.5% per year, domestic food demand is growing at about 4-51 per year. The Bank estimates that the population DIR: lovroip/** Morocco iaact etglo 18:04:00 18-JUN-89 - 3 - depending on the agricultural sector for income and employment will increase by 25% in the next 15 years. 1.09 Principal exports are citrus fruits and vegetables, both fresh as well as processed. Food production has not kept pace with risiIg demand (the level of urbanization, for example, increasing by almost 6% ptr year). Morocco became a not food importer in 1974, principally Zor wheat, sugar, vegetable oils and milk. Food imports have since continued to increase by about 101 per annum, food self-sufficiency for cereals declined from 86% and is now about 60%. Agricultural imports constitute about 251 of all merchandise imports. 1.10 Development of the agricultural sector has been closely controlled by Government; 90% of investment has been supplied by Government which also fixes the prices of major agricultural products and imports. Key policies at the time these projects were appraised includeds development of large- scale irrigation, expansion of credit to largelmedium farmers, maintenance of low and stable prices to urban consumers and export promotion of Moroc- co's most competitive agricultural products. Attention was also given to land reform, tro 'ig and credit. These objectives were reflected in the pattern of pub_u .nvestments during a twenty-year period (1960-80) over half of government investment in the agricultural sector, excluding dam construction, was devoted to large-scale irrigation, between two thirds and three quarters of total investment including dam infrastructure. 1.11 The structure of the agriculture sector, not surprisingly, is indicative of this pattern of investment. Thus, the irrigated areas have received priority both in terms of financial investment and in respect of access to the best managerial resources. As a result, there has been a rapid increase in irrigated area as well as the effective transfer of tech- nology which together have strongly and positively affected production. The bulk of agricultural activity in Morocco, however, remains in the rain- fed areas which produce the majority of Morocco's fooderops. 1.12 Morocco's agricultural potintial is far from fully realized. In 1985, the Bank President's Report on the Agricultural Sector Adjustment Loan (ASAL) pointed out that in the rainfet sector, despite natural con- straints the technical and economic ceilings of agricultural inputs use could be substantially increased both in rainfed and irrigated areas. Under the above ASAL, sector policy adjustments have been undertaken by the Government aimed at reducing subsidies on inputs, increasing water charges with parallel emphasis on Improved collection, encouraging the private sector to provide inputs and market outputs, reforming public sector enter- prises, and reorganizing the research and extension systems. C. The Irrigation Subsector 1.13 About 1.5 million ha of Morocco's total arable area of 8 million ha is suitable for irrigation. Reflecting both the vagaries in climatic conditions which directly affect agricul.ural production and, in turn, the rate of economic growth and the agricultural policies outlined above, area equipped with irrigation has doubled over the past two decades to 900,000 ha. Almost half of this area is concentrated in 9 large schemes (TSI--see Map 1) controlled by a corresponding number of regional offices (ORMVAs). DR: Hiner p/40 moc Itapcb eeno 8:04:00 18-JLN- Watc- is supplied by 12 major storage reservoirs or by tubevells; surface irrigation constitutes 80% of the area equipped, the remainder is to sprin- kler irrigation. These LSIs are well designed and efficiently managed by the respective regional offices, which are state-owned enterprises report- ing to the Ministry of Agriculture but with financial autonomy. Their principal responsibilities are to expand irrigation to new areas, operate and maintain the irrigation schemes and promote crop and livestock produc- tion. Decisions regarding the cropping pattern in LSIs is not left to individual farmers. The Agricultural Investment Code charges ORMVAs with determin3.ng the area cultivated to each crop, both within the irrigation perimeter as a whole and within the individual farm and the crop rotation. Since 1985 their responsibilities have been broadened to cover rainfed areas contiguous to the irrigation schemes. 1.14 Land tenure in irrigated areas is governed by two statutes: the Land Consolidation Law (1962) and the Agricultural Investment Code (1969). The first addresses the procedural aspects of land consolidation with the objective of arresting the trend towards fragmentation; the second relates specifically to irrigated areas establishing a minimm size of farms (5 ha) and permitting the consolidation of smaller land holdings into 5-hectare collective units, thus ensuring a better designed and less costly irriga- tion network and more effective utilization of the heavy investment related to irrigation. Land consolidation has been carried out for the past 30 years in all LSIs. Two different systems were adopted: the first, called "Tram. A" consists of consolidating all the fragmented plots of each land- holding into one block (or two at the most). The newly consolidated farm units are served by tertiary canals; field irrigation is carried out indi- vidually. As most of the farms are too small for mechanization, crops are grown manually or with draft animals. 1.15 Since the early 60s, another more sophisticated land consolidation system, called "Trame B" has been adopted in LSIs, with a view to integrat- ing the land consolidation process with the layout of the irrigation net- work. Under the Trame B system, the consolidated farms consist of property strips of equal length, lying parallel to the tertiary canals, with differ- ent widths according to the size of the property. The farms include sev- eral contiguous fields, whose boundaries run perpendicular to the property boundaries, thus forming crop strips, perpendicular to property strips (Chart 1). The cropping pattern is mandatory, with crop strips usually collectively plowed but individually cropped. Each crop strip is expected to be irrigated from the tertiary canal in a continuous way and the irriga- tion program is based on the crop strips instead of individual farms. This more rational land consolidation layout has been successfully introduced in most LSIs. 1.16 Growth in the irrigated areas has been steady and sustained. Between 1970-85, irrigated output increased 5.5% annually. Major crops are wheat (352), sugarbeet and cane (15%), alfalfa and berseem (142), citrus fruit trees (16%) and vegetables (92). Milk production in irrigated areas contributes about half of all domestic milk output. Production from irrigated areas constitutes 45% of total agriculture value added, 60% of egricultural exports and is important for import substitution: sugarbeet DIR: Morip/se moresc imaset enano 18:04:00 18-JU1-8 - 5 - CURT 1: LAND CONSOLIDATION AND IRRIGATION SCHEME SID SMAlL DISTRICT - TRAME A f~* //L 1- sar. rr,n..,n c*rs- 1a144 \ ejn je taalltaam SIDI DENNOUR DISTRICT -TRAME 8 r sL c .. --.J f.*.. c L... .. TT g§I r £ Rm C p DIR: Muie v~co offloct .n9-no 8:.41:00 29-APR-89 - 6 - production, for example, has enabled Morocco to progress towards self- sufficiency from 4% in the early 60s to 502 in 1980. While the average cropping intensity in 1983 was 108%, intensities vary widely between schemes, for example, ranging from 82Z in Tafilalet to 147% in Ouzarzate, although both perimeters are located in the most arid zone of the country. 1.17 Beginning with the second Five-Year Plan (1968-72), investment in irrigated agriculture increased rapidly. Allocations to dams and irrigated agriculture constituted 29% of total budgetary resources, while investment in rainfed agriculture over the same period comprised 13%. By the time of the third Five-Year Plan (1973-78), government policies had shifted some- what--within the framework of increased investment greater emphasis was to be given to promoting efficiency by focussing on immediately productive investments in agriculture and slowing investment in dams and other large physical infrastructure. This switch to a greater emphasis on rainfed farming in particular was expected to assist at the same time in distribut- ing the benefits of growth more equitably. This shift was reiterated in the following and subsequent Five-Year Plans. D. The Proiects 1.18 The projects were part of the development plan of the Oum Er R'bia Basin, started in the 1930s, and the continuation of an irrigation develop- ment plan undertaken in the 1950s and 1960s in the Doukkala area (Chapter III). 1.19 The climate of the Doukkala region is semi-arid, with hot, dry summers and relatively short, cool winters. Rainfall varies from year to year, averaging 300 mm, which limits rainfed crops to barley, wheat, maize and pulses, with very low yields. Prior to the Doukkala I project, farms were small and fragmented; the project area was heavily populated (95 inhabitants per km2) and the majority of the population was underemployed. Principal project objectives were to reduce underemployment, to raise rural incomes by increasing the production of cereals and high-value crops and to improve standards of living of the rural population through the construc- tion of roads, schools and villages. This was to be accomplished by maxim- izing fully the investment program previously undertaken in the Oum er R'bia river basin, the second largest river in Morocco (see Maps 2 and 3). Principal components, therefore, comprised: (i) land consolidation and preparation; (ii) construction and equipping of 15,400 ha of land to sprin- kler irrigation; (iii) improvement of major classified roads; (iv) infra- structure for agricultural supporting services and villages; (v) bilharzia control; and (vi) technical assistance and studies. The project was to be implemented by the regional development authority (ORMVAD), responsible for the construction and maintenance of the irrigation works and provision of agricultural services. Line agencies would be responsible for the remain- ing components. The project was expected to benefit families already liv- ing in the project area and, inter alia, consolidate existing fragmented and scattered plots into about 3,200 farm units. The economic rate of return was estimated at 11.4%. 1.20 The Doukkala I project was appraised in 1976 and a Bank loan of US$30.0 million in support of total project costs of US$94.4 million was signed in 1976. USAID provided cofinancing in the sum of US$13.0 million. DIR: Moroimp/a mrocco impact eng:no 18:04:00 18-JN4-89 - 7 - The project was to be implemented over three and one-half years between 1976 and 1979. 1.21 The project was successfully implemented with no major problems, in large part due to strong and effective management performance on the part of ORMVAD. There were initial project delays due largely to weak contractor performance and procurement problems. Actual construction achievements were close to appraisal estimates with the exception of the villages--only two of the seven villages were completed and equipped, while expected support to the agricultural research station at Zemamra did not materialize. Land consolidation was successfully accomplished prior to construction of the irrigation works and resulted in 7,754 farm units being established, representing 11,216 land holdings and benefiting some 15,600 people. Average farm size was smaller than expected; over 4,100 years of employment were created by the project. 1.22 Despite little previous experience with irrigation, farmers adap- ted readily to the new technology; yields during the first full year of irrigation equalled or exceeded those forecast for full development of the project. The cropping intensity was estimated at 133%. As a result, the economic rate of return was recalculated at 20.5%, considerably above appraisal estimates (11.4%). 1.23 Total project costs at completion were US$85.0 million, 10% lower in dollar terms, largely due to components either not fully carried out or not funded under the project as anticipated. The project closed in June 1981, one year late, US$2.7 million of the Bank loan being cancelled. 1.24 The project was audited by OED in 1982. The main finding of the PPAR was the replicability of the irrigation layoutIland consolidation system. Other findings of the PPAR included: - the benefits of a project design which permitted good manage- ment, in this case the integration of all key productive services required by farmers under one principal management structure; - the rapid adoption rate by farmers of sprinkler irrigation, attributed in part to the semi-arid conditions which character- ize the project area and in part to the fact that sprinkler irrigation proved to be the best tool technically; and - the low priority accorded to operation and maintenance of the irrigation system at project completion, including inattention to the development of water users' institutions able to con- tribute to this activity. The PPAR also noted that the higher than expected rate of return might be affected by unanticipated water shortage. 1.25 A follow-on project, Doukkala II was approved in April 1977. This project had originally been prepared together with Doukkala I within the overall framework of the Water Master Plan for the Oum er R'bia basin. At appraisal, however, the Doukkala investment was split into two trenches for DIR: NwoIa e worocco iipet eng:no 18:04:00 18-149 - 8 - technical and financial reasons. As a result, project objectives and com- ponents for the second phase project were almost identical to those of Doukkala I, i.e., improving rural incomes and standards of living by the provision of sprinkler irrigation to a further 16,600 he contiguous to that served by Doukkala I. Land consolidation was expected to result in the creation of almost 3,500 farm units; the project was, as before, to be implemented by ORXVAD. The Bank provided a loan of US$41.0 million for a total project cost of US$121.0 million over a four-year period. The eco- nomic rate of return was estimated at 11.6%. 1.26 Project implementation encountered substantial delays largely due to national budgetary difficulties outlined above. Despite the three and one half year delay, the project successfully reached its objectives. All major works were constructed as planned, production and yields at comple- tion were higher than estimated at appraisal, cropping intensity was reestimated at 144% at full development compared to 141% estimated at appraisal. As in Doukkala I, average farm sizes were smaller; land consol- idation resulted in over 7,500 farm units being established in the project area. 1.27 Total project costs at completion were US$77.4 million or 64% of appraisal estimates. The lower than expected dollar amount (there was a slight overrun in Dirham terms) was in part due to savings from components not implemented. The economic rate of return at completion was reestimated at 18.7% versus 11.6% at appraisal. The project closed in June 1986 with US$3.0 million of the Bank's loan being cancelled. 1.28 The project was not audited by OED. Bank Management's attention, however, was drawn to the following: - while the land consolidation program successfully eliminated land fragmentation and permitted more viable family farms, there were indications at project completion that de facto subdivision of land was once again taking place; - cost recovery by the project authority was one of the highest in Morocco (in fact high by any standards) which in turn safe- guarded its financial autonomy; - within the framework of current structural adjustment efforts, commercial activities previously undertaken by the authority were in the process of being transferred to the sugar refinery and to the private sector. 1.29 In 1986, the Large-Scale Irrigation Improvement Project (Loan 2656-MOR) was approved, to help Morocco implement the reform package agreed upon under the ASAL (para. 1.12) with regard to the irrigation subsector. The project is expected to be implemented over a six-year period (1986-1992) with the following actions in the nine large-scale irrigation schemes: (a) an investment component including the rehabilitation or upgrad- ing of existing infrastructure and improvement of O&M works; DIR: Orolap/se aorocco impact eng:no 18:0400 18-Ak1-89 - 9 - (b) a technical assistance, training and support action component; and (c) an institutional and policy reform component including the Improvement of the operational and management efficiency of ORMVAs, and improvement of the recovery of water and service user charges. 1.30 For the Doukkala ORMVA, the investment component of the Large- Scale Irrigation Project consists of minor rehabilitation of headworks and the irrigation network throughout the Doukkala surface irrigation schemes constructed in the 1950s and 60s. The institutional component includes a contract program between the Government and ORMVAD whereby ORMVAD would strengthen its 0&M and agricultural extension services while disengaging from commercial activities such as provision of inputs, contracting credit on behalf of the farmers, controlling sugarbeet harvesting operations and managing farmers' accounts. ORMVAD has been selected as the first of the nine ORMVAs where a contract program would be introduced on a pilot basis as it is considered the most advanced and successful ORMVA, with a high degree of financial autonomy and adequate technical performance. II. AGRICULTURAL IMPACT A. Land Tenure 2.01 The myriad of land use rights in Morocco trace their origin to the interaction of Arab and Berber tradition, regional variations and statutory legislation enacted both during the time of the French protectorate and the independent Government of Morocco. 2.02 Prior to the projects, most of the land in the project area was private freehold, fragmented over time due to Koranic inheritance laws, to a degree where such land was often either owned and/or cultivated in co- ownership. Principal objectives, therefore, of the Government's land reform policy have been to reverse past trends towards increased fragmenta- tion, particularly of non-contiguous plots, through land consolidation, and to arrest multiple ownership, thereby stimulating investment for agricul- tural development. 2.03 All lands in the project area were consolidated under the Trame B system (para. 1.15) before construction of the irrigation and drainage networks. The basic layout of the consolidation consisted of rectangular properties disposed in blocks of about 15 ha (270 m x 576 m), divided into contiguous fields 270 m long and either 72 m or 144 m wide. The number of fields in each holding varied from 2 to 6 according to the property size (Chart 2) and the cropping pattern was determined by the number of fields (two-, four-, or six-year) of each holding. Due to the small size of hold- ings, many were grouped into joint holdings, to be farmed collectively by their owners. In addition to farmland, an 0.13-ha lot was allocated to most families for building a house in newly established villages (UREFa). DIR. Moroip/se mrocco impact eng:no 18:04:00 18-JN-9 Car 2: BASIC LAND CONSOLIDATION AND IRRIGATION SCHEME (TRAME 8> ZEMAMRA AND TNINE GHARBIA DISTRICTS L IL -FiFeld s Field 8 - ~ Lflm-d- -4 FField - -- FFieM FhiedW6 £a é - ritid ~ iwa Field 2 FiField Fie0d trm - 11 - 2.04 Over a four-year period in Doukkala I, a gross area of 19,546 ha, covstituting 516 ha of state land and 11,139 holdings comprising 35,407 separate plots, was expected to be consolidated into 3,200 farms. For Doukkala II, a gross area of 19,659 ha comprising 7,533 holdings containing 21,618 plots was similarly to be consolidated into 3,458 farms. However, by project completion the 3,200-3,458 farms had more than doubled in number as the following table shows: M&J*2..1: Le rOW V OuWu I nOEC1 AMe Permes Aversage Sie fhal) (ha) Number a Proteg Area tha) at Project at Project anclnal .L Copletion J Apainsl eL QMaoin _L Manami Cmeaia 0-2 1.870 48 8,758 78 1,960 18 6,109 82 1.4 0.9 0-0.5 1,958 685 0.4 0.5-1.0 1,969 1,624 0.9 1.0.1.5 1,049 1,481 1.4 1.8-2.0 782 1.869 1.8 94 1,180 85 1,414 18 4,880 81 4.786 80 4.8 8.4 5-10 440 14 417 5 8.850 25 2.858 18 8.8 6.9 10-20 124 4 115 1.5 1.490 10 154 10 12.2 18.4 Above g0 186 4 s0 0.8 3,250 21 1,588 10 28.9 31.7 TOTAL. 8.200 100 7,754 100 15,400 100 18,022 100 4.8 2.1 LOS 19Mt IN 00UIMA Z FI0JET AM liz.. Farms Averaoe Size (ha) (ha) Mwber at Prolect Are (ha) at Project at Proiect Apnaalael L Caseeina JL AnAsail L Conaletin L Aniaal Camelation 0-2 1.487 48 5,404 71 2,158 1 4,011 26 1.5 0.7 0-0.5 2,061 681 0.8 0.8-1.0 1.679 1.152 0.7 1.041.5 1,64 2,220 1.8 1.a-2.0 1,684 2,228 1.8 2-S 1,210 85 1,479 20 5,146 31 4,806 26 4.8 2.9 8-10 485 14 418 6 4.180 25 2,918 18 8.6 7.1 10-20 188 4 160 2 1,660 10 2,245 14 12.0 14.0 Above 2 188 4 67 1 8,488 21 2,822 17 25.8 42.1 TOtAL 8,458 100 7.828 100 16,600 100 16,278 100 4.8 2.2 2.05 The following findings at project completion, different from what was expected at project appraisal, can be noted: (a) it was expected at appraisal of both projects that over half of the respective project areas would comprise farms greater than 5 ha, considered by Government as a minimu size for irrigated areas. At project completion, the situation -'as reversed: 622 of the project area in Doukkala I and 51% in Doukkala II con- sisted of farms of less than 5 ha--largely due to a reduction in area of the largest farms--those 20+ ha in Doukkala I; (b) the average size of farms, expected to be 4.8 ha for both Douk- kala I and II was, at completion, 2.10 ha and 2.20 ha respec- ^vely. About 75% of farms in Doukkala I and 712 in Doukkala II were under 2 ha, compared to 43% projected at appraisal. Over 502 of all farms were 1 ha or less. (No breakdown beyond 2 ha was available at appraisal.) DIR: NMvae/Se moreoe iapaot ea:eo 38:04:00 18-JUN-8 - 12 - (c) the number of farms did not correspond to the number of owners, reflecting a considerable amount of joint ownership; at project completion of Doukkala I, for example, the PPAR reported 15,600 persons owning 7,754 farms, or abo-it 2 co-owners per farm; (d) most of the farmers benefitting from a plot in UREFs had not built a house as expected; irqtaad they used the plot for crop cultivation and were still living in their original villages. 2.06 The significantly larger number and smaller size of farms than originally estimated was probably due to an underestimation at appraisal of the existing land rights, combined with subdivision of landholdings immedi- ately before the start of the land consolidation process and farmers' reluctance to work collectively. 2.07 The extent to which these trends have continued after project completion was reviewed in 1987 as part of a socio-economic survey under- taken for this impact evaluation. Although the sample of farmers (196) is too small to have statistical value, it is representative enough of the different farm categories to bring some new and interesting information: (a) the trend toward land subdivision appears to continue. In Doukkala I, completed in 1982, the survey shows that 25% of the land owned by the interviewed farmers has been acquired (inher- itance 19.7% and purchase 5.5%) since irrigation started. In Doukkala II, more recently completed, land acquisition after irrigation was only about 5%; (b) joint ownership is also more common in Doukkala 1 (26%) than in Doukkala II (11%), reflecting the larger number of inheritances since project completion and the multiplication of land rights; (c) the average holding size of interviewed farmers in Doukkala I was 1.9 ha in 1987 (2.1 ha at project completion); the average number of plots per holding, which had decreased from 3.2 to 1.5 as a result of land consolidation, was found to be 1.8 in the Doukkala I sample; and the average plot size which had risen from 0.6 to 1.5 ha after land consolidation had declined to 1.1 ha, reflecting increasing fragmentation of holdings; (4) in addition to this evolving ownership system the survey has shown that many farmers rent-in land from, or enter into part- nership arrangements with, other land owners, mostly absentee family members. In 1987, 42% of the land was cultivated under sharecropping or renting arrangements in Doukkala I (23% in Doukkala II). Sharecropping is widespread in small farms (69% of the 0-0.5 ha farms versus 29% for farms of 10+ ha), while renting is more common in large farms. As a result of these arrangements, the average area cultivated by each farmer is 3.10 ha, comprising 2.4 plots (of which 1.8 are owned and 0.6 are under partnership). 2.08 When compared to the situation at project completion and that of Doukkala II, Doukkala I shows that the number of land rights tends to rise DIR: Morolap/se maroacc impact eng:no 18:04:00 18-J4-89 - 13 - significantly over time. The introduction of irrigation has substantially increased the land value (more than US$5,000/ha versus US$950 in rainfed) making it difficult for the farmers to buy lend.1/ Land rights, even very small plots, are a source of profit for their absentee owners as well as for the farmers themselves. Most interviewed farmers expressed satisfac- tion with partnership arrangements and try to expand them in the project area. 2.09 In conclusion, the land tenure situation at the impact evaluation stage is quite different from appraisal expectations. Instead of a rela- tively small number of consolidated farm units, with a minimum size of 5 ha (collectively cultivated for holdings smaller than 5 ha), the land tenure consists mostly of very small and individually farmed plots with a large number of beneficiaries, of whom a significant part are absentee co-owners. This situation, which has both negative and positive affects, as stated in the following chapters, demonstrates that land consolidation is not neces- sarily sustainable and illustrates the difficulty for Government in apply- ing technical solutions to a society governed by traditional, Islamic laws. The major advantage of the land consolidation, however, was its integration with the irrigation layout, thus permitting equitable water distribution to a large number of smallholders (Chapter III). B. Agricultural Development 2.10 At completion of Doukkala I in 1981, 15,820 ha was equipped with irrigation, 420 ha more than appraisal estimates, of which 4,420 ha received its first irrigation in 1977, the remaining 11,400 ha in 1980. All crops, including wheat, were irrigated.2/ In Doukkala II, 9,370 ha received its first irrigation in 1982, a further 3,730 ha in 1984 and the final phase, 3,300 ha in late 1986 providing a total of 16,400 ha of equip- ped area. 2.11 At appraisal, the cropping intensity was expected to reach 133% at full development in Doukkala I and 141% in Doukkala II. The planned crop- ping pattern included: cereals (wheat and maize) 45-50%; industrial crops (sugarbeet and cotton) 23-27%; forage crops (alfalfa, bersim, barley) 23-26%; and vegetables (tomatoes, melons, etc.) 6%. Crop strips, perpendicular to property strips, were expected to reflect the planned cropping pattern and to be collectively and mechanically plowed. The following table illustrates changes in cropping pattern and intensity since project appraisal and completion: 11 Only 6% of the interviewed farmers in Doukkala were able to purchase land since project completion. 2/ Compare this with the experience recently recorded in Tunisia where uptake of irrigation at project completion was poor, particularly in respect of wheat, PPAR Tunisia Sidi Salem Multipurpose project, OED Report No. 7037, dated December 11, 1987. DIR: Norolp/as worocco tpact ens.n 13:04:00 18-AM-89 - 14 - Table 2.2: CROPPING PATTERN AND INTENSITY (hA) MAMA I Eatiasted at Estimated Awaraisale atCoule y Actual s Without with with I-1e 198 Ig AM AMU Jgg ofg n PCR prolegg prolgct Protect Ceeals 110 10J Li LMA LM ZaSn AA MA IZI LAt *47 Wheat 9,600 6.30 4,092 6.646 6.067 6.112 e.9 7.co0 7ees .eaM was Miaze 1.so0 3,970 2.009 3,319 1.997 1.e29 1.119 1.000 69* 1.804 -3s sans 1.600 AN - - IdWdriCo- CrAa 4J2 M .2M A92 a LM LMSS AJEn &AM *3 Sugarbeet -- 2.900 3,268 1.203 4 77 4.474 8.808 8.998 4,414 3,962 +21 Cotan - 1.360 -- - - - - - - - Soa -- - -- - - - - - 260 7as - ymsabiise -M 4-MA 2,912 JS2 LM LM JA JL &M -is Summer Veg. - 1.30 3.266 2.384 1.700 2.i 2.406 2.400 V,878 2.997 -8 Winter Veg. - - 2,422 1,732 1.219 1.592 1,690 1.960 2.143 1,7MS -27 Forse-- Crp 4,500 ZA WA S 2Z 2-2M0 2JS LME LMI LM -9 Alfelfe -- 3.430 2,408 887 961 980 870 480 473 477 -80 eaem -- 830 2,852 1,220 1,814 1.360 1,600 968 1.65 1.435 -50 Othere - 8I) 2,100 889 54 240 176 100 881 288 -89 Fruit Trees - ZI2 I : - - TgUi Cropped Area 12,700 20,530 28,187 18,740 17.939 18.727 18.898 18066 19.889 0.68 Equipped Area -- 15,400 15,820 18.820 15.820 15.820 15.820 15,800 15,820 18,80 Cropping Intensity 82.5 1335 1461 1195 1131 1105 1191 1141 3 18 -11 Estimated at Estimated Appraisale at Cowlsion Agtual Actual as Without With With ItoA lIM LIMA aff[*e* SfM eroj*c3 PE210a proia Coal[ 1051 ZL0A Li ZAA LZM LM *2a Whea# 6,225 4,800 4,164 4,397 6,262 6.540 7.520 481 aize 2,07i 6.051 2,900 952 1,619 1.432 1.202 -go Indusrial Crope g II ,485LU2.= 325O ,I73 ,8 - Sugarbeet 3,850 4.286 2,620 8,262 3,370 8,146 -27 Cotton 1,635 - - - - say. -s 89 -- - ale s69 .2 Vasaks a 1 11 1s 7 102 1AM 12311 2JU8a Sumer Veg. 790 857 820 Soo 78 1,494 #74 Winter Veg. - 857 480 700 600 819 -4 Forae Croa AI I .... BM M M 2o -98 Alfalfa 3,210 8,307 191 242 811 224 -98 Bersee 1.730 4.168 139 182 317 448 -89 Othere 1,675..o 2.082 - 4 20 113 -9 ]gal Cropped Area 16,000 28.541 23,145 9.799 13.107 13,891 15.80 Equipped Area - 16,600 16,045 9.063 12,817 12,817 12.820 Croppina intenaity 1001 1415 1441 100 1025 1075 1225 -15 * At Pull Development: Doukkals 1-1988; Doukkela II: SAR-199, PCR-1991. ** Completion Year. e* Dry Fodder. no As of November 1987. SoreA 0tMVAD 1. Cropping Pattern 2.12 The major changes at project completion for Doukkala I can be summarized as follows: no cotton was planted by farmers; area planted to wheat, summer vegetables and berseem was higher than expected; area culti- vated to maize corresponded to estimates while that to sugarbeet and forage crops, such as alfalfa, was lower than expected at appraisal. Winter vegetables, a new crop, were being cultivated on about 10% of the project area. 2.13 At impact evaluation, six years after project completion, wheat has steadily increased each year: in Doukkala I, for example, actual area cultivated is almost 100% higher than the revised (upward) project comple- DIR: Moroaimp/ae orocco lpact eng:no 13:04:00 18-Ja49 - 15 - tion estimates for full development. Wheat is, without doubt, the most important crop in terms of area, being cultivated on 44% of total cropped area, compared to 23% for the next most important crops, sugarbeet and vegetables. In contrast to the record during project implementation, area to sugarbeet is now higher than the revised PCR forecast, while area plan- ted to all other crops Is lower than the PCR estimates for full devel- opments maize with a 35% shortfall, vegetables 15%, and forage 69%. 2.14 Reasons for changes in cropping pattern are: - cotton was not accepted by farmers during project implementa- tion largely due to technical problems encountered; - the higher than expected area to wheat is due to: the small size of farms and the priority given by farmers to food secur- ity; the survey has shown that increasingly bread is replacing couscous as the staple diet, thus soft wheat has substituted for hard; the survey has also shown that only 27% of the wheat produced by the smallest farms is marketed (52% in farms of 10+ ha), and that a large fraction of the sharecropping arrange- ments are paid in wheat to land owners; - at impact evaluation, vegetables rank second to wheat in Douk- kala I. Area cultivated has, however, fluctuated considerably from year to year reflecting marketing problems. The survey has shown that vegetables are mostly produced on the smallest farms. Vegetable production in terms of area has been in con- trast much less important in Doukkala II than in Doukkala I until 1987, when area to summer vegetables increased substan- tially; - with its guaranteed market and price, sugarbeet is the main cash crop in Doukkala. It is also the main source of credit for agricultural inputs, which are delivered by ORMVAD and charged to the farmers' sugarbeet accounts; - except in 1987, maize experienced a steady year-on-year decline in area planted since project completion of Doukkala I due to (i) the fact that almost all farmers continue to have land in non-irrigated areas where the principal crops are traditional maize varieties and barley; (ii) difficulties encountered with the technical package; and (iii) being a spring crop, the rapid and unanticipated expansion of both wheat and sugarbeet has precluded uptake of maize in the rotation; - the much reduced area to fodder crops is largely a result of the smaller than expected farm size, the priority accorded to wheat and the slow uptake of livestock (para. 2.23). The survey shows that fodder crops are mostly cultivated on farms of 5+ ha. 2.15 As a result of these changes in cropping pattern the expected four-year crop rotation, with crop strips perpendicular to property strips, was little respected, except for sugarbeet. Although land preparation is DIR: Moroip/es moracco sapact eng:no 13:04:00 13-JUN-8 - 16 - generally mechaniszed, this has been made difficult by earth bunds that farmers traditionally build to mark the boundary of their properties, thus preventing collective plowing of crop strips. Apart from land preparation, other activities are done manually or by using animal traction. Irrigation has also remained a strictly individual work instead of collective as ini- tially envisaged (see Chapter III). Similar trends in the cropping pattern and similar reasons for changes can be determined at project completion of Doukkala II. 2. Cropping Intensity 2.16 At appraisal of Doukkala I it was estimated that cropping intens- ity would increase to 133% at full development; at proj ect completion in 1981 the cropping intensity was estimated at 119%, re-estimated at 146% at full development. Actual cropping intensity in the six years following project completion has remained lower than projected by the PPAR, ranging between 114% and 130%. As shown by the survey, cropping intensity does, however, vary by size of holding from 132% for farms under 1 he to 100% to 106% for farms of 10+ ha. Moreover, on the basis of farmers' statements, the overall cropping intensity appears to be slightly overestimated by ORMVAD. These trends are also evident in Doukkala II where cropping inten- sity was expected to increase from 100% prior to the project to 141%. At project evaluation, one year after completion in 1986, the actual intensity was lower, 122%. The lower than expected overall cropping intensity in Doukkala is explained in part by the changes in cropping pattern. Thus, the higher than expected area under wheat and sugarbeet has largely pre- cluded cultivation of summer crops. One of the most notable findings of this impact evaluation is the limited number of suitable summer crops to be introduced in the project area, reflecting the low achievements of agricul- tural research in the past fifteen years in Morocco.31 Soya is currently being tried on a small scale and could some day become a suitable short- cycle summer crop in the project area. 2.17 The cropping intensity was also affected by the drought years of 1980-84 which resulted in Doukkala's on-demand system being changed to one of rotation during the 1983-84 summer campaign; since then, cropping inten- sity has increased each year in both projects. Finally, both the PPAR of Doukkala I and the impact evaluation have identified a potential constraint in the future to increasing the cropping intensity, namely the lower than expected overall water efficiency (reestimated at 49% at impact evaluation) since such summer crops intrinsically require more water (Chapter III). 3. Yields 2.18 At impact evaluation, average yields of almos- all crops in Douk- kala I over the six years since completion were higher than expected at appraisal but, in most cases, lower than forecast at project completion. It must be noted, however, that yields were generally higher in Doukkala I and II than in the previous Doukkala gravity projects, reflecting the bet- ter performance of sprinkler than gravity irrigation (Chapter III). Many I/ In Mexico, the other country under review, the range of winter and summer crops is much larger, with predominance of oil seeds. Dit: 14mirlae uerocco Impact agano 18:'4:0 13-JAlO-8 - 17 - crops experienced initial rapid yield increases which have not been sus- tained over the past 6 years to any great extent. Table 2.3: TIMLDS (TIRA) OP THE MAIN CROPS am"(" Before, Appaea Pat Actalgtag tSLo ..Ta ... flLaAt, 1978 1979 1980 f81 1982 1tSS 3904 1985 1686 19870 (5 year&) What 1.0 8.0 4.0 2.0 8.0 8.0 8.0 I 8.7 8.8 8.9 8.6 4.2 8.2 8.7 Mai.- 0.6 2.5 4.8 2.0 1.0 2.0 8.0 1 2.6 2.1 8.8 2.1 2.9 2.6 2 6 Sugarbe*t -- 48.0 60.0 47.0 49.0 62.0 57.0 1 62.0 68.0 65.0 62.0 61.0 71.0 63.0 Witer Veg. 30.0 8.0 20.0 21.0 18.0 1 20.0 21.0 19.0 20.0 17.0 20.0 19.0 Summer Veg. - 40.0 40.0 10.0 81.0 80.0 27.0 I 24.0 26.0 24.0 2410 24.0 89.0 29.0 Forage -- 42.5 65.0 10.0 85.0 65.0 62.5 I 75.0 112.0 77.6 77.0 77.8 68.0 85.0 Safere Appreisal Pat Actual Ameregs M*T, t Eat.. imte 1984 19685 198 I 1987* (4 years) I Wheat 1.0 3.0 4.0 4.2 3.4 4.1 1 8.8 8.8 Maize 1.0 8.0 5.0 8.8 2.7 2.7 1 8.6 8.1 Sugarbeet 85.0 8.0 82.0 47.0 $4.0 ) 68.0 84.0 Winter Veg. 3- - 0.0 18.0 18.0 P0.0 1 16.0 16.0 Summer Ve. - 12.0 40.0 28.6 28.0 30.0 I 85.0 80.0 Forage - 42.8 72. 49.8 #7.0 70.8 I 70.8 64.0 espure: ORMAD 2.19 While the official 1987 yields of sugarbeet have been largely confirmed by the survey, farmers' estimates of wheat and maize yields are significantly lower than ORMVAD's estimates. The survey has also shown that yields of wheat are about the same for all farm sizes, but those of sugarbeet and maize are higher on the small farms than on the large. 2.20 Yields of sugarbeet in Doukkala have increased constantly and are the highest in Morocco, but the sugar extraction rate has declined each year. As a result of an inadequate pricing system, many farmers apply nitrate fertilizer far in excess of the recommended dose at the expense of sugar content of sugarbeet. Yields of soft wheat have also reached satis- factory levels since 1982 when ORMVAD started providing an integrated pack- age comprising selected seeds and fertilizer on credit deducted from the revenues of sugarbeet. The survey has indicated that virtually all sugar- beet and about 90% of soft wheat growers use selected seeds and ferti- lizers. In contrast, yields of maize have been consistently lower than estimated at project appraisal and completion. Only about one third of maize growers use selected seeds and two thirds apply fertilizer. C. Livestock Development 2.21 The following table gives appraisal expectations, revised PCR forecasts and data estimates gathered at impact evaluation. Despite the fact that supervision reports drew attention to the slow progress of live- stock production, project estimates for milk production were revised up- wards in both completion reports. DIR: Moroip/ese mroccao impact eng:ne 13:04:00 13-JN-89 - 18 - Table 2.4: LIVESTOCK DEVELOPHENT (t) I tSCA4 I MtUOALAg Ir Without WIth Revised PCR Estimated Without With Revied PCFt Estimated Pelesc Precas Eaimaenm,. .AsiUal.. Prelst Platt Estimates -Latej "I lk 2SOO 18.00 24,270 2.00o. 2sono 18,100 40.000 880. 7e0e0 o 2.000 1.748 1m 8O 2,080 2o000 880 * Excluding fealy consumption. 2.22 Reasons for the lower than expected uptake in livestock develop- ment can be attributed tot - the increasing number of small farms in the project area whose primary objective is to assure food security and whose plot size is too small to support forage. The survey has shown that forage is rarely produced on farms of 1 ha or less; - livestock is traditionall, a woman's activity, women do not benefit from extension advice; - livestock is considered as an insurance which can provide ready cash when necessary; - dairying would require substantial changes in farming attitudes of the rural population in addition to much increased labor requirements. The survey has demonstrated that milk is mostly used for calf fattening and family consumption. While 94% of the interviewed farmers owned cows, only 33% were selling milk. On the other hand, 71% of farms of 10+ ha used to sell milk, which clearly indicates that dairying is a large farm activity; - in addition, joint ownership of livestock, mostly with absentee family members, was noted by the survey for fattening opera- tions (20% of total livestock in Doukkala I, 23% in Doukkala II). 2.23 In the above context, transfer of technology in respect of animal production has remained limited. The survey noted a switch from the local breed to crossbred animals, now 43% of the total herd; but Friesian cows, planned at appraisal, are rarely raised by farmers. Artificial insemina- tion and scaled production of calves are not common practice, thus there are large seasonal fluctuations in milk production. This has caused mar- keting problems. The central milk factory reported that while its market- ing capacity is about 65,000 1/day, the milk supply can vary from a low of 25,000 1/day between September-January to a high of 85,000 1/day between February-May. Marketing constraints have not, therefore, been substan- tially addressed by ORMVAD's construction and equipping of milk collection centers, since in the peak season, about 20,000 1/day cannot be absorbed by the milk factory, resulting in heavy losses for farmers and a disincentive for milk production. DIR: horoap/as morocco Impact engino 18:04:00 18-JUN-69 - 19 - 2.24 The fact that livestock production is much more advanced in the prev7ous Doukkala gravity projects, which have been in operation for about 20 years, suggests that there is room for progress in Doukkala I and II. Nevertheless, the land tenure characterized by very small farms in Doukkala I and II and the persistent milk marketing problems will continue to adversely affect livestock production. 2.25 In conclusion, the agricultural impact of the two projects has been as favorable as expected at appraisal, but has certainly not reached the overoptimistic projections made at completion. There has been a rapid and sustained transfer of technology in respect of sugarbeet and wheat cultivation, largely due to the integrated technical package supplied by ORMVAD. Key constraints emerging at full development include the lack of suitable summer crops and the need for greiter research effort. This is apparent in respect of the "successful" crops, such as sugarbeet where the emphasis has been given to quantitative rather than qualitative increase, the unsuccessful crops such as maize, and the "missing" crops to fill the rotation. Extension themes have remained unchanged over many years, partly due to ineffective research efforts and the current lack of suitable mes- sages to transmit to farmers. The same factors that so adversely affected livestock production favored the expansion of high-value vegetable produc- tion, one of the great project successes and considerable source of income for small farmers. Finally, it must be noted that agricultural development in the Doukkala projects is the most advanced of all the large-scale irri- gation schemes in Morocco, despite the considerable and unexpected problems related to the large increase in project population and subsequent division of land. III. PERFORMANCE OF THE IRRIGATION SYSTEM A. General 3.01 With an average discharge of 3,400 Mm3 per year, the Oum Er R'bia Is Morocco's second largest river. The Oum Er R'bia Basin Land and Water Development Plan started in the 1930s with the construction of the Beni Amir irrigation scheme (31,000 ha), followed in the 1950s and 1960s with the construction of the Beni Moussa (69,000 ha), the first tranche of Lower Doukkala (26,000 ha), and the Boulaouane (1,100 ha) irrigation schemes (see map). Water control of the Owm Er R'bia river and its tributaries is ensured by six multipurpose dams of which the Ir Fout Dam built in 1947, the Bin el Ouidane reservoir (capacity 1,450 Mm3) completed in the 1950s and the Al Massira reservoir (capacity 2,320 Mm3), completed in 1980. 3.02 The Doukkala I and II projects comprised the second tranche of the Lower Doukkala and Boulaouane schemes totalling 58,000 ha. The projects aimed at fully utilizing the existing water resources and hydraulic infra- structure, principally the Im Fout Dam, the headwork gallery completed in 1953 and the Lower Service Canal constructed in the 1950s. The Doukkala I project included only the Zemamra subdivision (15,400 ha), because of lim- ited water supply at that time, while the Doukkala II project (16,000 ha) utilized the new water resources made available with completion of Al Mas- sira Dam. DI: Horo up/se moroco impact eng:no 18:04:00 13-A4-9 - 20 - B. Project Design 3.03 Although the original Lower Doukkala irrigation scheme was a grav- ity irrigation system, the Doukkala I and II projects were designed for sprinkler irrigation, mainly because the relatively shallow soils and the slightly undulating topography in the project area did not permit the land levelling necessary for installation of a gravity system. Previous experi- ence with the small Boulaouane scheme, equipped with sprinkler irrigation, had proven the feasibility of this system in the project area. In addi- tion, technical and economic analysis of gravity versus sprinkler irriga- tion had shown that the water use efficiency under sprinkler would be sig- nificantly higher than for gravity and therefore 332 more area could be irrigated with the same amount of water. 3.04 Main project works of Doukkala I and II consisted oft (a) enlargement by 111 km and remodeling of the main Low Service Canal, installation of downstream control on the final 55 km of the Canal and construction of a conveyance canal (5.6 km); (b) construction of 10 pumping stations, with gated concrete in- takes equipped with 57 electric pumps to serve the 10 sub- districts of the project area; (c) construction of ten equalizing elevated reservoirs to regulate pressure and, through automated controls, to activate pumps to meet demand fluctuations; (d) construction of underground distribution systems, totalling 885 km with an average density of 27.5 m/ha, including hydrants, each serving irrigation blocks of about 16 ha each; the distri- bution system was designed according to the land consolidation plan (Trame B) described in para. 2.03; (e) mobile equipment, based on an 18x18 m sprinkler pattern, and consisting of 411 feeder lines connected to hydrant outlets and 3" moving laterals carrying 8 sprinklers each with an individ- ual discharge of 0.54 1/sec; and (f) construction of a drainage system, totalling 713 km. 3.05 The system of water allocation and delivery was based upon demand4l 4/ As defined in 1984 by the US Agricultural Research Service, Irrigation and Drainage Division, water delivery systems have been classified in four main categories: (a) demand, which at lowe water to be taken from the system at the user's convenience; (b) arranged demand, in which the rate, frequency and duration of each Irrigation are arranged between the user and the water supply agency; (c) system control, where irrigation is scheduled in advance on a project wide basis, on the basis of future demand by farmere; and (d) rotation, where the rate, frequency and duration of Irrigation are fixed by policy of the water authorlty and remaIn fixed for the entire irrigation season. Dn: Moroiap/ae mwoco ipc eng:a 13:04:00 18-Jt-89 - 21 - at the block level (with predetermined rotation among users within the block), and automatic control of the pumping stations and hydrants. The basic technical parameters were the following: (a) the mobile sprinkler system would provide 6 mm/hour for 10 hours, with two daily positions corresponding to 20 hours of operation per day (allowing 4 hours for relocation of mobile sprinklers); (b) the frequency of irrigation was 7.5 days; (c) during the peak month, estimated water demand of 2,400 m3/ha was insured; (d) overall water use efficiency was estimated at 64%, representing an 86% efficiency of the conveyance and distribution system and 75% field efficiency;I (e) gross water demand at the field level during the peak month was expected to be about 8,500 m3/halyear for Doukkala I and 8,773 m3/halyear for Doukkala II, corresponding to gross water demand at the headworks of 9,956 m3/halyear and 10,304 m3/halyear respectively. 3.06 In summary, the irrigation system design was technologically advanced, featuring modern water regulation and a high overall efficiency, well adapted to the small size of the farms, and providing high quality and equitable services to water users. C. Actual Performance of the Irriaation System 3.07 Irrigation of Doukkala I started in 1977 in the first irrigation sector (Zl) and in 1980 in the three remaining sectors (Z2, Z3 and Z4). In Doukkala II, irrigation began in 1982 and was fully operational in 1986. 1. Status of Prolect Works at Impact Evaluation 3.08 In 1987, the main project works, including diversion canals, pump- ing stations, hydromechanical and electrical equipment, underground distri- bution network and drainage system, are generally in good condition, with the exception of some breaks and losses at joints of underground pipes. This shortcoming is probably due to inadequately sized valves for prevent- ing excess pressure. In addition, unforseeable and rapid fluctuations in water flow sometimes occur in the main Low Service Canal, due to the lack of balancing reservoirs in the lower part of the canal to compensate for 51 Conveyance and distribution water efficiency is the ratio of the volume of water flowing from the headworks through the conveyance and distribution system and to the turnout level. Field water efficiency is the ratio of the volume of water flowing from the turnout and to the root zone. Overall water use efficiency is the combination of the two above ratios. Expressed in percentage, the water use efficiency indicates the water volume actually used not of losses. DI:R Moroimp/s morocco Impact engno 18:04:00 18-JMt-89 - 22 - r&pid changes in water demand. At the field level, problems have been encountered with the isolation valves, the hydrants and volumetric meters, due to acts of vandalism, mishandling by farmers, lack of systematic main- :enance and corrosion by alkaline water and in some cases inferior quality of materials and equipment. Mobile equipment, property of the farmers, lacks routine maintenance such as the replacement of the sprinklers and gaskets. Rehabilitation of hydrants and improvement of control structures have now started under the Bank-financed "arge-Scale Irrigation Improvement Project (para. 1.29). 3.09 Despite the above drawbacks, the allocation and distribution of water is fairly good as the pumping stations automatically provide both sufficient water and operating pressure to satisfy farmers' demand; in addition, downstream control of the Low Service Canal adequately absorbs water flow variations. 2. Water Rfficiency 3.10 The conveyance and distributic.. efficiency is now estimated at 73%-75%, (Table 3.1) or 102-12% lower than estimated at appraisal (86Z), due partly to water losses in the underground network and leaking hydrants. It must be noted, however, that the conveyance and distribution efficiency was unrealistically overestimated at appraisal since only 10% of the main canal was lined and the remaining was earth built, resulting in inevitable ater losses. Nevertheless, the conveyance and distribution efficiency of the Doukkala projects compares favorably with similar systems in other countries, 75-85% in Bas-Rhone Languedoc (France), for example, where the main canal is entirely lined. Table 3.1: CONVEYANCE SYSTEM EFFICIENCY 1991-82 1992-8 1988-84 1984-85 195-8 Net Irrigation Area p/ (ha) 44,499.@ 58,560.9 58,68.9 57,816.9 57,816.0 58,251.9 Total Vol. Diverted (I Fout 1tw# a ) 468,680.7 566,488.9 845,297.0 488,422.4 495,169.4 462,769.4 Total Vol. Delivered Main Canal Bas Service Outlets (19 m6l 84,857.5 427,820.4 295,049.5 889,488.2 874,879.7 845,418.1 Surface Irrigation (199 *) 190,66.4 212,169.6 148,999.1 150,819.8 161,084.6 175,667.? Sprinkler Irrigation (1469 a ) 182,06.9 191,292.0 124,878.4 164,488.6 189,886. 156,897.9 Industrial Supply (1I is) 28,140.2 28,858.8 27,577.0 25,212.9 28,964.8 24,750.5 Convoyance Efficiency 9.788 9.754 9.854 0.774 0.758 0.778 Average Continuous Flow (a8/sec) 14.9 16.0 10.9 18.9 15.7 14.7 a/ Aro served by the Lower Service Canal, i.e., a total of 58,999 ha. 3.11 Based on net water demand of different crops and cropping patterns of the last two years, the field efficiency of the Zemamra district (Douk- kala I) and the Tnine Gharbia district (Doukkala IT) can be estimated at 57% and 79% (Table 3.2) respectively. As the norm for field efficiency is considered to be 75% for sprinkler irrigation, that of Doukkala II can be termed more than adequate while that of Doukkala I is clearly unsatisfac- tory, reflecting a more pronounced wear and longer utilization period of hydrants and mobile equipment than in Doukkala II. This decrease in water efficiency illustrates the waste of water resulting from the farmers' lit- tle adherence to the Trame B cropping pattern and their inability to organ- ize a collective irrigation system at the block level. With the de facto division of land and the increasing narrowness of individual plots, many DIR Focap/o morocco impact og:e 18:04:00 13-JU-8n - 23 - Table 3.2 'TIELD EFFICIENCY ZEW" ~TNME CA91 now 198L86 1984185 1985/88 Net Demand Not Area Net Volume Net Area Net Volume Net Area Net Vol ume Not Area Met Volue Higg f0/haiyear) b) f. h) M bl 0N fe 6 Sugarbeet (average) 4055 8945 16.00 4418 17.89 8258 A/ 12.08 8870 g/ 12.61 Wheat 1 780 7 049 12.19 7 285 12.60 6 286 jt/ 8.88 6 520 g/ 9.19 Maize Grain 4010 856 8.48 690 2.77 1 928 ?.78 1 820 6.09 Summer Veg. & Tomatoes 5 080 2 844 11.91 2 678 18.60 812 4.12 999 5.07 Winter Vegetables 1 800 1 72 2.68 2 148 8.88 422 0.76 581 0.98 Alfalfa 10 660 425 4.58 478 5.04 241 h/ 2.48 810 S/ 8.25 Bersees 3 880 1 18 4.47 1 265 4.91 182 h/ 0.82 820 g/ 1.14 Maize Forage 4 780 892 1.85 881 1.57 6 0.08 20 0.09 TOTAL CROPPED AREA 17 785 19 278 18 066 18 900 TOTAL IRRICATIOM AREA 15 822 15 622 12 819 12 819 Crop Intenaity 1.12 1.22 1.02 1.06 Annual Net Demand 57.21 62.24 88.50 86.60 Annual Vol. Delivered 106.72 111.58 48.88 49.69 at Pumping Station. Annual Vol. Del. at tydrants a/ 108.80 105.90 48.90 49.80 FrELD EFICICY 0.55 0.59 0.78 0.80 I/ Dietribution Efficiency 0.95 for Zesar District and 0.97 for Thine Charble District. hIt No irrigation in December 1984 and February 1985. g/ No irrigation in February 1986. fields are over-irrigated as the sprinklers, with their predetermined 18 m intervals, while watering one plot, often water the neighbor's field. As shown by the survey, about 90% of interviewed farmers in the Zemanra Dis- trict complained about the frequent breakdowns of hydrants and the poor operation and maintenance of the portable sprinkler system, both resulting in considerable losses of water, which they ultimately have to pay for under the existing water charge system (para. 3.19). The over-use of water is reflected in the average consumption per cropped hectare over the 1982-87 period (Table 3.3), noticeably higher in Doukkala I (6,456 m3), where division of land is more pronounced than in the more recent Doukkala II (4,382 m3), despite the similarity of the operating conditions of the networks. It is worth noting, however, that the Doukkala I and II overall water use efficiency of 49% is significantly higher than that prevailing in most gravity irrigation schemes in developing countries (2.5-30%), reflect- ing the advanced technology used in these two projects. DIR: Moroop/se morocco impact eng:no 18:04:00 18-JUN-89 - 24 - Table 3.3: ANNUAL WATER VOLUME DELIVERED AT THE FELD LEVEL 1981/82-1986187 (m3/ha) Lower Doukkals Doukkal& I and II Year SLidi ennour SLid Smal I Zeasare Cherble (Qravlty) (Gravity) (Sprinklers) (Sprinklers) 1981/82 6.877 8.848 7.881 - 1982/88 7.557 7.882 8.289 6.6059 1988/84 4.788 4.874 5.260 8.810 1984/95 5.098 4.988 8.860 8.780 1985/88 8,242 6.825 7.118 8.850 1988/87 8.814 7.859 10.888 6.970 Ave. volume per equipped ha 8.444 6.878 7.702 4,812 Ave. cropping Intensity 110.8 102.5 119.8 109.8 Ave. volume per cropped he 6.818 8.228 8.48 4.882 3. Flexibility in Water Distribution 3.12 The water distribution has proven highly flexible in both Doukkala I and II because oft (a) downstream control in the lower part of the main Low Service Canal; (b) the somewhat oversized pumping capacity of the pumping stations; (c) the adequate sizing and layout of the distribution network and the geometric layout of the land consolidation; and (d) the possibility of lengthening the daily application duration from 20 to 24 hours, and increasing the number of mobile ramps in a number of irrigation blocks. During the 1983-84 drought and subsequent water shortage, a water rotation system instead of the prevailing on-demand system was successfully intro- duced. Project design also proved flexible enough to cope with drastic changes in land tenure and cropping pattern. The Doukkala projects demon- strated that on-demand systems are significantly more flexible than other systems, such as rotation and system control which prevail in irrigation projects in many countries. It is worth noting, however, that the flexi- bility in water distribution has been adversely affected by the increasing fragmentation of land. The existing sprinkler system, which results in overwatering and water losses at the field level, needs to be adapted to the land tenure now prevailing in the project area. 4. Equity of Water Distribution 3.13 The project was designed to ensure an equitable water distribution due to the predetermined rotation and operation timing of the mobile equip- ment. Common ownership of the mobile equipment within each block was also expected to lead to self-discipline whereby a longer application time or a larger number of sprinkler positions on the part of some farmers was almost impossible. The survey has shown, however, that co-ownership of mobile DIR: Horoipp/s& arcco imct en:no 18:04:00 18-JM-89 - 25 - equipment is rejected, or found impractical, by 782 of the farmers. A number of cases of abuse have been mentioned (542 of interviewed farmers), some of which were severely punished by ORMVAD in the form of heavy fines. The farmers also stated that only ditchriders were able to solve conflicts for lack of organization and self-discipline of most of the water users. Some farmers have purchased their own equipment. Some others have split up the portable equipment among members of the group. 5. Reliability and Timeliness of Water Distribution 3.14 The overall reliability of the Doukkala I and II irrigation sys- tems has been satisfactory. Pipe breakages and water lossec at joints have not been detrimental, so far, to agricultural production, although some delays have been experienced in replacements or repairs performed by the pipe manufacturers and installers. The timeliness of the systems, ensuring the availability of water in response to the demand, has been particularly good, due to the automation of the water flow both by the Low Service Canal and the pumping stations. Because of the above-mentioned water losses at the farm level, average annual water demand at headworks has been slightly higher (10,550 m3/ha) than anticipated (10,130 m3) for Doukkala I despite a lower cropping intensity, and smaller area under forage and summer crops than expected. D. Operation and Maintenance 3.15 The operation and maintenance (O&M) of the irrigation systems is the responsibility of the Service de la Gestion des Reseaux (SGR) of ORMVAD, consisting, for the whole Doukkala area, of 291 persons, of whom 77 are assigned to Doukkala I and II, as follows: Chiefs of Subdivision (Zemarsa & Tae Charbla) : 2 Chiefs of Subdistricte : 7 Clerks S 5 Water Charge Collection Agents : 2 Pumping Station Agents : 17 Dltchrlders :33 Maintenance Agents 11 Total 77 (Ave. 372 ha per staff) 3.16 Even taking into account that the irrigation system is equipped with automatic flow control at all levels and the water distribution within the blocks is the responsibility of the farmers, SGR is not adequately staffed due to the growing number and poor organization of the farming population. At the field level, in particular, the area (868 ha) and the number of farms (435) controlled by each ditchrider are too large to permit both resolution of conflicts among farmers on water use as well as replace- ment and repair of mobile equipment. As a matter of comparison, the area per ditchrider is not much smaller than that (963 ha) of California's (USA) main districts where farms are much larger and better organized for irriga- tion. The number of farmers per ditchrider is also much higher in Doukkala than in the Bas-Rhone Lantuedoc in France (about 160 farms), which is equipped with a similar irrigation system. In addition, the permanent staff for maintenance is too small, even considering that maintenance and repair of the hydro- and electromechanical equipment of the pumping sta- DIR: Noroinapls =roco ifaPct eng:o 18:04:00 18-JUf-89 - 26 - tions and of large diameter pipes are carried out by contractors and sup- pliers. Au a result, preventive and systematic maintenance of project works is Inadequate and repairs of small diameter pipes, a responsibility of SGR, is only belatedly carried out. A preliminary estimate indicates that a staif of 105, an increase of 28 (or 36%), would be necessary for adequate OiM of the two systems. 3.17 Funds disbursed for operation and maintenance have been US$21.20 per 1,000 =3 on average from 1983 to 1986, or the equivalent of US$116.40 per hectare, of which US$87.94 is accounted for by energy costs and the remaining US$28.46 by personnel, supplies and services (details in Annex 1). It is clear, however, that the latter have been kept at a low level because of the financial constraints of the country and the insufficient budget allocated to O&M. It is estimated that adequate O&M of the irriga- tion system would raise the current expenditures for personnel, supplies and services by about 50%. E. Cost Recovery 3.18 Government policy is to recover, through water charges and a bet- terment levy, the full cost of O&M and up to 40% of all investment costs chargeable to irrigation. The water charges, including basic water charges and additional charges where pumping is necessary, are expected to be applied on a volumetric (m3) basis, and the betterment levy is charged on a per-hectare basis. However, farmers with 5 ha or less and the first 5 he of holdings of less than 20 ha are exempted from paying the land betterment levy. Payment of the betterment levy is planned over a period of 20 years, with a grace period of 3 years and a 4% annual interest rate. 3.19 Since most of the water meters installed on the delivery hydrants have been damaged and cannot be used for billing farmers, water charges are not actually calculated, as planned, on a volumetric basis for each water user. ORMVAD first routinely charges a minimum of 3,000 m3/ha to each farmer to encourage the use of irrigation water, then determines the volu- metric water use on the basis of the running hours of the pumping stations together with the area farmed by each farmer, regardless of the type of crop and cropping intensity. Therefore, water charges, in effect based on a pro-rata system, are closer to a per-hectare charge rather than the volu- metric one initially envisaged. Water charges include both a basic price for water delivery and an additional cost for pumping. Statute has required the water charge, identical throughout the Doukkala area, to be increased by 20% per year in current terms over five years from the first irrigated crop year. The additional pumping charge varies from one dis- trict to another according to actual cost. 3.20. The following table shows the progress of water charges for the past six years: DIR: Ioro11pee N0cco Impact eaO:e 18:04:00 18-J-89 - 27 - Table 3.4: WATER CHARGES FOR DOUKKALA I AND II SPRINKLER IRRIGATION PROJECTS (DH/1000 m3) Irrig. Basic Water Charge Pumping Charge Total Water Charges Campaln (011/188 M3) Zemnra Tnine Charbia Zemamra Tnine Charble (a) (b) (a) (b) (a) (b) (a) (b) (a) (b) 1981/82 47.0 69.0 56.0 85.8 - - 155.4 118.6 - - 1982/88 64.0 74.5 S.0 89.0 58.9 89.0 154.5 124.7 94.9 - 1903/84 89.0 197.7 149.4 189.9 168.2 180.9 277.6 268.1 174.0 - 1984/85 89.0 97.9 14k;.4 154.4 108.2 119.0 252.8 252.8 177.7 188.6 1986/88 108.0 19.0 210.0 210.0 180.0 180.0 810.0 810.0 240.0 200.0 1986/87 110.0 -- 220.0 - 170.0 -- - -- -- - (a) Current Prices. (b) Constant 1988 Prices. In (1986) constant terms, water charges have actually increased by 43% in four years. During the same period, the additional pumping charge has increased in constant terms by 140% in Doukkala I and has doubled between 1982/3 to 1986 in Doukkala II. Total irrigation water charge in 1985/86 was DH 31011000 m3--or about US$232/ha--in Doukkala I, and varied from DH 200 to DR 260/1000 m3--or an average of US$94/ha in Doukkala II.6/ A further 5-6% increase of both water charges and additional pumping charges was applied in 1986-87. 3.21 Water and pumping charges are calculated by ORMVAD and by sugar mills, which deduct the requisite amount from the farmers' revenues on sugarbeet. Since almost all farmers produce sugarbeet, a quite profitable crop, the collection rate is high, about 97%; the highest of all irrigation schemes in Morocco. On the basis of the actual water charges and collec- tion rate, the total amount recovered in 1986 surpassed the actual cost per delivered volume by about 100% and contributed to 94% of total operating expenses of ORMVAD (Chapter IV). 3.22 The amount of betterment levy, on the other hand, is small in the two Doukkala projects, due to the high proportion of holdings below 5 ha. Only about 9,200 ha, or 29% of the total area is subject to the betterment levy, which varies from US$15/ha/year in the Zemamra district to about US$83/ha/year in the Tnine Gharbia district. On the basis of the area subject to the betterment levy, the amount of the levy and the actual cost of the projects in 1986 terms, it can be estimated that only about 5% of project investment costs will be recovered. 3.23 The ORMVAD's success in cost recovery is the result of the delib- erate government policy, supported by the ongoing Bank-supported Large- Scale Irrigation Improvement Project to achieve full financial autonomy of ORMVAs. When compared to other Bank-financed projects in other countries, the cost recovery rate of the Doukkala projects is among the highest. 6/ On the basis of a water delivery of 7,049 m3/ha and 3,876 m3/ha respectively. DIR: 14oromp/se morocco ipact eng:no 18:04:00 18-JM-89 - 28 - 3.24 Recent project experience, however, shows that the objective of financial independence, although sound in principle, may have some inherent risks, as illustrated by the following examples of the Doukkala projects. (a) As water revenues are by far the most important source of reve- nue of ORKVAs, the latter tend to become essentially water sellers, with little or no concern for the manner in which farmers use and save--or do not save--water. It is already apparent in the Doukkala projects that for lack of monitoring of water use, the volume of water delivered on the pro-rata basis tends to be overestimated by ORMVAD. In addition, there is no incentive under the present system for careful farmers either to save water by improving irrigation practices or bet- ter maintain their mobile equipment as they are, in their view, billed on a per-hectare basis and not on actual water use. According to the survey's findings, none of the interviewed farmers knew the volume of water used on his farm in any given year. Two thirds knew the total amount deducted for water charges from their sugarbeet account, but only about a third was aware of the per hectare billing cost. Moreover, 87% of interviewed farmers stated the price of water has become exces- sively high and expressed dissatisfaction with such rapid price increase. (b) Contrary to the projects under review in Mexico, where research has been developed to assess better the real water needs of the main crops and review potential water savings under the pedo- logiclclimatic conditions of the region, no such effort has been made by ORMVAD. (c) Financial independence may also encourage some ORMVAs to reduce O&M expenditures, and therefore 0&M quality, when their incomes are too low, as well as expenditure on other services such as agricultural extension and applied research. F. Impact on Environment 3.25 No adverse impact on environment has been noted, so far, in the Doukkala project area. The drainage system successfully accumulates excess water in existing natural depressions ("dayas") where water elimination is obtained by evaporation and deep infiltration. The water table is quite deep (40-80 m) in the Doukkala area and no elevation in its level has been noted. 3.26 The waters of the Oum Er R'bia are known to be slightly saline, mostly in summer. Some increase in soil salinity has been observed in a few sites. A study on soil fertility, which is expected to be carried out shortly, will ascertain the extent of the salinization problem and propose remedial measures if found necessary. No negative impact on the environ- ment has been noted from sugar mills as their decanting system has been adequately designed and operated. The dry foam, resulting from decanta- tion, is rich in calcium and could be used for fertilization, but for lack of demand is stored in an open space. DIR: Horoomp/se eorocco impact eg:no 18:04:00 18-.IN-89 - 29 - 3.27 The project provided for bilharzia control, to be carried out under the responsibility of the Ministry of Health. However, loan funds were not used for this pu-pose as the Ministry of Health has established a national program for bilharzia control financed from its own resources. Although colonies of bilharzia snails have been observed in the waters of the project area, the Ministry has kept the situation under control both by carrying out diagnostic surveys of bilharsia among the population and by treating stagnant waters. G. Performance Comparison between Sprinkler and Gravity Systems 3.28 The sprinkler irrigation system of Doukkala I and II undoubtedly proved satisfactory in terms of flexibility, equity, reliability and time- liness of water distribution. Shortcomings in water use efficiency are mostly due to poor O&M, changes in both land tenure and cropping patterns, and the lack of organization among water users. The water use efficiency achieved in the Doukkala projects, however, compares favorably with most of the Bank-supported irrigation projects in other countries. The excellent cost recovery is another major achievement of the projects. The question arises whether and to what extent the sprinkler irrigation system of the Doukkala I and II projects performed better than the gravity system previ- ously used in the Lower Doukkala region, and more particularly, the Sidi Smail and Sidi Bennour projects, which are served by the same diversion and conveyance systems. 3.29 The main features of the Sidi Smail and Sidi Bennour gravity sys- tems are the following: (i) the system of water allocation and distribu- tion is based on pre-arranged demand with a combination of upstream and downstream control (not on demand with downstream control as in Doukkala I and II), with an average peak water requirement at the headworks of 0.67 1/sec (0.62 for Doukkala I and II); (ii) the distribution system consists of concrete flumes (34 m/ha) and earth quaternary channels (104 m/ha), with one turnout for 4.3 ha; (iii) the flume distribution system is under up- stream control, with automatic control of water level and flows through long crested weirs, calibrated distributors ("modules") which deliver a constant flow without requiring adjustment or resetting of gates. Another advantage of these modules is that they can be used as volumetric meters by annotating the opening time of the gates. These simple hydromechanical devices are easy to operate and facilitate the farmers' understanding of the payment of water on a volumetric basis; (iv) the drainage network is slightly less dense (37 m/ha) than in Doukkala I and II (40 m/ha); (v) the land consolidation system is based on Trame A in Sidi Smail and Trame B in Sidi Bennour; and (vi) the total cost per hectare (in 1986 terms) was about 40% lower (US$3,040 versus US$4,988) than that of Doukkala I and II. 3.30 Taking into account that the irrigation network is now 16 yearn old in Sidi Bennour and 22 years old in Sidi Smail, the following observa- tions can be mades (a) the field channels need remodeling and the smaller size flumes need remedial works due to the porosity of pre-stressed con- crete resulting in frequent breakdown of prefabricated elements; DIR: SNrolap/se werosco Npat eno:no 18:04:00 18-JW-0 - 30 - (b) the status of the pumping stations, farm outlets and hydro- and electromechanical equipment is fairly good; (c) the drainage system is badly eroded, but still operational; (d) the conveyance and distribution efficiency, now estimated at 72% (versus an overoptimistic 852 expected at appraisal), is about the same as that of Doukkala I and II (74%), a remarkable achievement for a project of this nature and this age. The field efficiency is about 582, similar to that of Doukkala I, but lower than in Doukkala II (61%). This field efficiency is slightly lower than anticipated (60%), but remains satisfactory despite the water losses due to the deterioration of initial land levelling, absence of maintenance of the quaternary chan- nels and poor respect of the Trame B irrigation system. The overall efficiency is 42% (50% estimated at appraisal), lower than in Doukkala I and II (49%), but still higher than in many irrigation schemes. (e) flexibility and equity of water distribution remain satisfac- tory, partly due to a larger size of land holdings (3 ha in Sidi Smail and 3.5 ha in Sidi Bennour) than in Doukkala I and I, and partly to the efficiency of the modules for measuring water delivered at the field level; (f) the water distribution has proven timely and reliable due to the adequate design of the distribution system resulting in simple and easy operation. But although the breaks in prefab- ricated canals have been quickly repaired so far, only a pro- tective coating program can ensure the long-term reliability of these canals; (g) the average cropping intensity for the past six years (111% for Sidi Bennour and 1032 for Sidi Smail was lower than in Doukkala I and II (1192 and 1102 respectively). While yields of sugar- beet are about the same in the four areas, those of cereals and forage are about 20% lower in Sidi Bennour and Sidi Smail than in Doukkala I and II, illustrating the better efficiency and easier handling of the sprinkler system for these crops than the gravity irrigation. The cropping pattern is characterized by a significantly higher proportion of forage (212) in Sidi Bennour/Sidi Smail than in Doukkala I and II (12% and 4% respectively) and a slightly lower proportion of vegetables (14.5% versus 17.5%); (h) no waterlogging and salinization have been noted; (1) while 0&M is no better than in Doukkala I and II, the expendi- tures on personnel, supply and services for O&M of Sidi Bennour/Sidi Smail are almost twice (US$50.80 per hectare) those of Doukkala I and II (US$28.46), due to the larger labor requirement for pre-arranged demand with upstream control than for the sprinkler system. When the additional cost of pumping (US$87.94) is included, however, the total O&M expenditure per DIR: torolm/se moreco 1aact eng: 18:04:00 8-JLU-8 - 31 - hectare of Doukkala I and II Is more than double that of the Sidi Bennour/Sidi Small gravity system; and (j) water charges are about half of those of Doukkala I and II, as additional charges for pumping are limited to the lift pumping station of Sidi Bennour. As in Doukkala I and II, the cost recovery rate is excellent. 3.31 When the water productivity of Zemamra (Doukkala 1) and Sidi Ben- nour, now both at full development, is compared, it can be concluded that% a) the volume of water diverted at headworks for the past six years on a per-equipped-hectare basis, has been almost 20% larger for Zemamrs than for Sidi Bennour, mostly due to a higher cropping intensity and the lower than expected field water efficiency of Zemamra (Table 3.2); b) the irrigated area per 100,000 i3 diverted at headworks was on average 11.33 ha for Sidi Bennour and only 9.48 he for Zemamra (Table 3.5); but c) due to the higher cropping intensity and better yields of Zemamra, the net value of produc- tion per irrigated hectare is about 141 higher there than in Sidi Bennour. However, when O&M costs are accounted for, the not value of production in Zemamra is only about 62 higher than that in Sidi Bennour. Table 3.5: COMPARATIVE WATER PRODUCTIVITY OF DOURKALA I AND SIDI DENNOUR Net Production Value Per 100,000 m 3 diverted at headworks Irrigated Area Crop lag 1ist Crepped Crop Yields Produolom Gras Value Total Net per 100.000/3 Intealt Area Diatribution per ha (t) of Produwt Production Value at headvarkee (19812-7) (1902-87) (198-7) (4) (4) Comb (ON) of Pro m > "nIsa ducti Donmals I ZSOeraI 9.48 119.3 11.81 Whest 4.07 8.6 15.47 80.940 9.227 21.718 s. 0.7o 2.o 1.96 *.*4 2.2 0 1864 sme.et 2.49 63.0 16.67 sa.sn 12.o00 21,071 Says 0.11 1.8 0.13 388 198 aU? Sumer Veg. 1.47 28.0 41.10 89,102 9,871 29.881 Winter V*@. 1.02 19.0 19.38 24.z2 11.2B9 12,988 Forage 1.86 80.7 109.75 18.967 6.400 _UAR 9.589 oAN est. (7.7W .l a 9.48 h. a 0.200 L4 , s4.9s idi Bannour 11.83 106.7 12.09 Wheat 4.64 8.1 18.00 80.000 10.978 19.027 limie 0.a6 1.9 0.66 1.22 1.002 Sugarbe*t 2.42 68.0 18.48 82.628 12.148 20.476 cotts 0.a6 1.8 0.84 2.970 1.a00 1.170 SUANSr Veg. 0.97 853.6 82.79 31.151 8,316O 24.6ft Winter Veg. 0.00 17.8 10.80 18.1S G.$41 6.484 Farae 2.84 61.2 18-5.4 26.8"6 11.9a5 U-Mi 67,186t oil cos.t ( e. a .s a h. . .94 omi :.Ma 80.0610 Based on the following diverted volume et headworke per ha: Zeeara : 10.880 us, and di 9MMnour : 8.027 a 3.32 In conclusion; the assumption made at appraisal that the sprinkler system would permit 332 more area to be irrigated than in gravity irriga- tion with the same amount of water proved erroneous. While sprinkler irri- gation undoubtedly generated a higher productivity per equipped bectare, this benefit was almost entirely offset by the high operating cost of sprinkler irrigation, and the lower than expected water efficiency due to fragmentation of farms. As the investment cost of gravity irrigation was about 401 lower than the sprinkler system, it can be concluded that the latter was not economically justified. Finally, the level of water char- 03R: oroIMp/e8 moresco iapact eng:ae 18:04:00 18-J489 - 32 - ges, much higher in sprinkler irrigation tha in gravity, has generated increasing frustration among farmers in Doukkale I and II. The fact that the soils and the topography of Doukkala I and II did not permit land lev- elling for installation of gravity irrigation remains the only, but Impor- tant factor in favor of the sprinkler system. 3.33 Finally, when compared with water delivery systems prevailing in a number of Bank-supported projects in other countries, the demand and arranged demand systems introduced in the Doukkala region have proven highly efficient and well adapted to arid conditions. The slightly higher construction cost has been largely offset by the durability of project works, -he high water efficiency, the equity and reliability of water dis- tribution and the sustainability of project benefits despite poor mainte- nance. IV. ECONOMIC AND FINANCIAL IMPACT A. Economic Impact 4.01 At completion of both projects, the economic rate of return for full development was reestimated significantly higher than had been calcu- lated at appraisal: 20.5% for Doukkala I vs 11.4% at appraisal and 18.7% for Doukkala II compared with 11.6% forecast at appraisal. 4.02 Principal reasons given for these higher than estimated recalcula- tions were: (i) the rapid transfer of technology to farmeri in the respec- tive project areas which in turn resulted in significantly highet yields in the initial years; (ii) changes in the cropping pattern from that origin- ally proposed by ORMVAD with the introduction of more remunerative crops such as vegetables and fruit trees; and (iii) the increase in expected cropping intensity from 133% to 146% in the case of Doukkala I and from 141% to 144% for Doukkala II. 4.03 Since project completion, however, various internal and external factors have affected these assumptions. As noted above (Chapter II), the cropping intensity has not progressed as expected, fruit tree cultivation has been discontinued while small farms--which constitute the majority of the project area--have not benefited from improved livestock production. External factors essentially comprise a fall in international commodity prices of the major crops grown in the project area--between 1980-84, sugar declined by more than 60% in constant terms, wheat by 36%--and an effective devaluation of the dirham vis-a-vis the dollar. 4.04 Taking these factors into account the revised economic rate of return for Doukkala I is now 11.71, slightly more than that estimated at appraisal. For Doukkala II, the revised economic rate of return, using the same assumptions as for Doukkala I, is 10.51 (Annex 5). 4.05 At full development of both Doukkala I and II net savings in for- eign exchange are estimated to be US$3.8 million for sugarbeet and about US$7.0 million for wheat and maize. I: Morolop/s morao lpct eng:o 18:04tOD 18-AW-9 - 33 - B. Financial Returns to Farmers 4.06 At appraisal of both projects, farm incomes were calculated for farm models ranging between 2 and 25 ha. At project completion, the models were expanded to include smaller farm sizes while the net farm incomes for all models were revised upwards on the basis that yields and cropping intensity were expected to be higher than forecast at appraisal. Recal- culations at impact evaluation to full development (Annex 3) show the following: - not farm incomes at full development for all models are (Douk- kala I) or are expected to be (Doukkala II) below the revised PCR estimates but above appraisal estimates; - net farm incomes are estimated to be between 5 and 8 times higher than the without project situation; - net farm incomes on a per-ha basis vary substantially by farm size with the smallest providing the highest returns: about US$1,735/ha for farms smaller than 1 ha to US$5001ha for farms 25 ha and over; - based on average family size of 6.7 on small farms and 10.2 on large farms,j/ per capita farm incomes similarly vary from US$150 on farms of 0.5 ha to US$1,499 for farms of 25 ha and over; and - per capita incomes are above the rural poverty level only in respect of farms 2 ha and over.81 4.07 Factors since completion which explain variations in net farm incomes are: (i) lower than expected cropping intensity--although projec- ted net farm incomes for the small farms, which have the higher cropping intensities, are more in line with PCR estimates; (ii) producer prices which have generally kept pace with inflation except for sugarbeet and alfalfa, both of which, however, have considerably higher yields than fore- cast at either appraisal or completion; and (iii) the relative unimportance of livestock--compensated in small farms by vegetable production. 4.08 Another important factor which explains variations in net farm incomes has been the considerable and continuous increase in water charges. At their current level and based on the cropping intensity estimated for each farm model, water charges are equivalent to about 9% of the gross production value of the smallest farms and about 21% of the largest. Undoubtedly, the present water charge recovery system (para. 3.19) consti- tutes a powerful incentive towards high cropping intensity, which charac- terizes the smallest farmers, and strongly penalizes large farmers with low cropping intensity (Annex 4). ,J Average size based on survey findings. 8/ US$240 p.a. being 30% of GDP per capita or US$222 being the absolute rural poverty level estimated by the Bank in 1981. DIR: t*Iroa* morocco Iapact engtno 18:04:00 18-JN-89 - 34 - C. Financial Returns to ORMVAD 4.09 In 1987, overall staff of the ORMAD comprised 1,204 of a budgeted total of 1,249 compared with a total of 1,055 at appraisal and 1,250 at completion of Doukkala I. There has been a steady reduction in field level staff over the project period as evidenced in the following table: Table 4.3: RATIO OF DITCHRIDERS AND EXTENSION AGENTS BY HECTARE AND NUMBER OF FARMERS At At Project Completion At Impact Appraisal Doukkala I Doukkala II Evaluation Ditchriders/ha 1:470 1:718 1:819 1:868 Ditchriders/turnouts 1:30 1:68 1:60 1:71 Extension agents/ha 1:300 1:565 1:727 1:669 Extension agents/farmer 1:65 1:278 1:302 1:320 4.10 These ratios compare favorably with irrigation systems in neigh- boring countries--for example, in Tunisia and Algeria where the water man- agement staff intensity is much lower, but less favorably in respect of extension; in India for example, the ratio of extension worker to farmers in irrigated areas is about 1:400-500. The low level of field staff in respect of operation and maintenance activities is in part due to the nature of the irrigation system which by virtue of being a fully automated on demand system requires little technical management. Furthermore, the survey has shown that much of the ditchrider's time is taken up with resolving socio-economic issues since land consolidation and adherence to the Trame B system are less than expected at appraisal; each farmer main- taining individual rights both in terms of access to inputs and demarcation of land. In part the light level of management is also due to the budget- ary situation facing the ORMAD in recent years. The following table illustrates that the overall recurrent budget in constant terms has declined between 1983-86. Within the Agricultural Production Department the decline is 8% between 1983-85 and 16% over the same period in the Oper- ation and Maintenance Department. Staffing comprises 87% of the recurrent budget. DIR: am0lop/se mocco Impact eng:ao 18:04:00 18-JU-89 - 35 - Table 4.4: ACTUAL OPERATING EPENSES OF OPMVAD Current M OH 1986 Conate& M MCH 1n 1996 Consts"t USsi.000 Ib IL .1. M. ImL S UL. L 1L ..19. JSL C.hane . .aags Rauct83-ft 83-88 Management 0.85 0.28 0.38 0.48 0.34 0.42 (*) 60.96 86.09 44.S9 -121 (*) Planning 0.81 0.88 0.67 1.12 1.00 0.74 (a) 118.90 100.18 78.56 -848 (o) Administration 1.48 2.74 8.25 2.04 8.34 8.56 () 216.586 857.75 377.92 .751 (o) General Services 7.03 7.65 8.69 4.70 4.26 6.26 (a) 1,029.72 983.01 664.54 *855 (a) Conatruction 4.16 8.78 8.82 6.74 4.67 4.20 (a) 609.84 485.14 445.86 -27% (o) 0MH 0.60 8.19 9.10 11.87 9.91 10.01 (a) 1,260.08 1,062.02 1,062.68 -163 () Agricultural Prod. 11.07 11.84 12.78 16.28 14.88 14.06 (a) 1,622.08 1,521.28 1,492.52 -81 () Livestock 6.55 3.93 4.19 4.90 4.76 4.61 (a) 520.18 504.26 469.38 -41 (1 ) SUTOTAL 37.05 39.29 89.68 61.16 47.64 48.86 50.80 5,421.81 6,046.71 4,656.05 -141 8.392.78 -is Personnel 82.25 88.88 84.64 44.f1 40.89 80.10 85.01 4,726.05 4,287.66 4,044.69 8,716.56 Supplies and Service* 4.80 6.91 5.24 6.62 7.16 5.76 15.79 702.76 759.08 611.46 1,676.22 O0ther Energy Comte -- - - - - - 8,568.19 2,800.66 8.409.72 -4% 6,260.73 -95 a Current expenses adjusted by the following wholeale price index: 1986. 100; 1985, 1.10; 1984. 1,21; 1988, 1.88. 1k Exchange Rate US81.00 - 0R 9.42. (*) Not available. 4.11 Examination of the ORMVAD budget reveals the following: (i) almost all departments have experienced a decline in expenditures between 1983-85 ranging from 6% in Livestock to 35% in both General Services and Planning, expenditures in the Administration Department have, however, increased by 70% from a low base; (ii) the overall budget declined in constant terms by 14% between 1983-85 and by 1% between 1983-86; (iii) until 1986 energy costs were not included in the recurrent budget and (iv) although energy costs have declined slightly in constant terms (9%) since 1983, they con- stitute an additional 55-73% to the recurrent budget. Thus in 1986, the recurrent budget totalled US$5.4 million while energy costs were an addi- tional US$3.3 million. 4.12 Incomes of ORMVAD are derived essentially from water charges, the betterment levy, occasional revenues and other sources. Any shortfall is covered by government appropriations. The most important source of income, as the following table shows, is water charges, providing between 80-92% of ORMVAD revenues, if government subsidies are excluded. At the same time it is evident that the increased incomes from water charges over the past four years, in constant terms, from US$3.1 million in 1983 to US$5.0 million in 1986 has enabled government subsidies for the recurrent budget to be stead- ily reduced and by 1986, eliminated altogether. In the past, energy costs, however, have been paid mainly under the ORMVAD's investment budget; they were only partially reflected in the 1986 and 1987 budgets (US$1.1 million and US$1.8 million respectively) but are expected to be fully included in the 1988 recurrent budget. OIR: Morolep/ae eorocco impact ewg:no 18:04:00 18-M111-89 - 36 - Table 4.5s REVENUES OF ORIAD (constant 1986 US$) 1983 1984 1985 1986 Revenues Water 3,134 4,306 4,557 5,042 Betterment Levy 146 194 314 447 Occasional Revenues 79 183 86 471 Other 61 59 53 290 Subtotal 3,420 4,743 5,010 6,251 Government Subsidy for Recurrent Budget 1,301 970 236 0 4.13 Achievement of financial autonomy constitutes a striking success of ORMVAD and one of the very few obtained in Bank-supported irrigation projects. Contrary to other LSIs in Morocco, highly dependent on govern- ment's financial support, ORMVAD has been able to gain financial autonomy, a government objective, by reducing operational costs while increasing considerably its revenues. It is worth noting, however, that ORMVAD's balanced budget currently implies two anomalies: first, 0&M expenditures are artificially kept at a low level, thus endangering the sustainability of the irrigation system; second the cost of all services, including agri- cultural extension and ORMVAD's overheads are supported by the farmers. There is a need for a more transparent allocation of operating costs between the farmers, who would support the full cost of adequate O&M, and the Government which would continue to assume its financial responsibility for public services and technical assistance to farmers. V. INSTITUTIONAL EFFECTIVENESS A. Project Organization 5.01 The principal project implementing agency is the regional agricul- tural development office of Doukkala (ORMVAD) which is one of nine such regional authorities responsible for agricultural production in designated irrigation areas reporting to the Ministry of Agriculture and Agrarian Reform (MARA). Originally established in 1966, these authorities are state owned enterprises with a separate legal entity and financial autonomy. Their mandate stems principally from the 1969 Agricultural Investment Code, and includes responsibility for land consolidation; the design, construc- tion, operation and maintenance of the irrigation system and the promotion of crop and livestock development. 5.02 At appraisal of both projects it was expected that the management structure of ORMVAD would be considerably strengthened. The project provi- ded for the appointment of consulting engineers to support its engineering staff at headquarters in El Jadida and, at the field level, for the estab- lishment of subdivisional and zonal offices (CMs) in the respective proj- ect areas. ORMVAD management has seven departments: - construction, responsible both for hydraulic and rural infra- structure including unclassified project roads, and land con- solidation; DIR: Hrola/se morocco ipact enro 18:04:00 138-AJ-89 - 37 - - operations and maintenance, which undertakes all such activi- ties of the irrigation system and until recently was respons- ible for cost recovery; - agricultural production, which with its eight bureaux and sub- divisionallzonal offices is concerned with all aspects of the integrated agricultural technical package for the principal crops9l which is the heart of the development strategy; - livestock, comprising both animal health and husbandry and which similarly operates through the subdivisional offices/CNVs at the field level; - three support departments of planning, administration and gen- eral services. 5.03 The remaining supporting services: agricultural research, power and water supply, roads, schools, and bilharzia control were the responsi- bility of the respective line agencies; credit of the national agricultural credit bank (CNCA). A Board of Directors approves the operating plan and budget, a Technical Committee provides a liaison between lines agencies at the regional level, and the Director is responsible for implementation. B. Institutional Performance 5.04 At project completion, the necessary institutional strengthening was successfully achieved: two field subdivisions were established at Zemamra and Tnine Gharbia each with 4 CMVs. Five engineering consultants assisted in project implementation during the first project but the second project was implemented entirely by ORMVAD staff. The PPARs concluded that ORMVAD's performance in implementing the project was highly satisfactory. Moreover, success of the projects overall was attributed to (i) the mana- gerially integrated farm services whereby all the key productive services required by farmers and not just water for irrigation were under one man- agement structure and (ii) continuity in senior management and staffing generally. The PPAR of Doukkala I noted the dynamism of O14VAD staff in organizing and managing the supply services, monitoring production and assisting with commercial marketing. Conversely, the PPAR noted that the project coordination committee had met only during the first year of proj- ect implementation and that a more active commIttee may have assisted in respect of strengthening of the agricultural resarch station at Zemamra and construction of primary schools within the village centers. 5.05 At the impact evaluation stage, ORMVAD remains an efficient and well managed organization; its staff is competent and highly motivated. As in the other large irrigation schemes in Morocco, ORMVAD's development strategy was based on promotion of a cash crop (sugarbeet) with guaranteed 2/ Comprising mechanization of land preparation, annual irrigation schedules established each autumn within the guidelines of the Trame B system and in consultation with the irrigation services; supervised credit for seeds, fertilizer, pesticides; repayment of credit and assistance with marketing. DIR: Morelapas morocco irpact engtno 18:04:00 1W-JAW-89 - 38 - price and marketing. Sugarbeet has undoubtedly been the motor of develop- ment and largely contributed to the move from the previous subsistance economy to the now prevailing market oriented economy of the Doukkala popu- lation. The introduccion of sugarbeet has also been instrumental to a more modern and intensive agriculture, based on the use of inputs and irrigation water, resulting in high yields. With the sugarbeet production increase, and the larger number of producers, coordinating harvest and transportation of beetu has become cumbersome, yet is successfully handled by ORMVAD. As a result, ORKYAD extension services have been increasingly involved in administrative and commercial activities. At the same time, ditchriders have increasingly been prevailed upon to resolve conflicts among water users, and the O&M service is clearly understaffed to cope with its obliga- tions. Finally, as noted in Chapter III, the objective of financial auton- omy has led ORMVAD to reduce its expenditures, and, in the view of this impact evaluation, at th- expense of the quality of its services. In line with the new policy for che irrigation subsector, ORMVAD has now started disengaging from a number of commercial activities and restructuring its organization and work program (Chapter VI). C. Farmer Involvement 5.06 Although the integrated agricultural package assumes an intensive management input, some degree of farmer participation was also envisaged at appraisal, principally through newly established farmer organizations, which would engage in short- and medium-term credit, bulk marketing and co- ownership of mobile sprinkler equipment. Farmers were also expected to be responsible for operating and maintaining the mobile sprinkler equipment. 5.07 At project completion and at impact evaluation it is evident that there is in fact little farmer contribution to the operation and mainte- nance of the irrigation system, while their involvement in agricultural decision making is similarly embryonic. The irrigation system design has in effect precluded the need for water users groups, since each landowner is guaranteed access to water with the exact flow of water and the availa- bility being distributed according to individual requirements. Thus in an on-demand system there is little need for such associations to assure farm- ers of timely, reliable delivery. Water users groups would, however, play an important role in maintenance of the mobile equipment, deemed at impact evaluation to be inadequate, a finding first recorded at completion of Doukkala I. This is largely due to common ownership which frequently leads to disagreement over the necessary repairs and replacement. At completion of Doukkala I, the PPAR noted that farmers complained of shortage of spares and high prices in the two shops--one in El Jadida and one in Zemamra. The PCR for Doukkala II, however, pointed out that retail outlets in the proj- ect area had to close down due to lack of sales and also noted that in Boulaouane, a fifteen-year-old irrigation perimeter, the mobile irrigation equipment is in such a poor state of repair that operation of the pumping stations is being affected but farmers refuse to replace the equipment. 5.08 At the same time, it is likely that the close control exerted on farmers by the Trame B System and the integrated package for commercial crops has resulted in few producer organizations being established for bulk purchase of inputs or for marketing. Some producer associations have been established, notably for milk production, but have remained under strict DIR: Moroimp/ae morecco impact eag:nO 18:04:00 18-AX4-9 - 39 - ORMVAD control. The question has to be raised as to the extent to which such a management practice--while efficient in production terms--inherently stifles development and participation at the farmer level, a factor of importance for future sustainability of project operations (Chapter VI). D. Farmer Perceptions of Institutions 5.09 Farmer perceptions of institutions are closely related to their attitude toward agricultural credit and their ability or willingness to borrow from CRCA.101 The survey indicated that until 1987, about 50% of interviewed farmers had borrowed from CRCA. While the proportion is 100% for landholders of 10+ ha, it is only 32% for farmers with less than 1 ha. Two thirds of the borrowers had never had any contact with CRCA before the projects started, which illustrates that borrowing is a relatively new practice in Doukkala. 5.10 The main reasons given by non-borrowers are, by order of impor- tance: (1) the small size of the farm (29%); (ii) the joint ownership of land andlor absence of land title (25%); and (iii) the reluctance to get into debt (23%). Moreover, among borrowers about half expressed their dissatisfaction with credit, mostly because of complexity of CRCA proced- ures and insufficient size of the loan in relation to investment. Farmers who expressed the wish to develop contact with CRCA only constituted 23% of the sample, most of them in the 5+ ha farm category. The women's survey has shown an even more widespread reluctance of the female population toward credit. Most farmers reported that they prefer to sell one or two animals rather than borrow from CRCA. Livestock is both the main use of savings and the main source of credit. 5.11 Farmers' attitude toward credit partly explains their perception of ORMAD, whose role, in their view, is essentially the supplier of goods and services. In this respect, farme.s appreciate ORMVAD's involvement in the distribution of inputs under tb credit-in-kind system, mostly seeds and fertilizers, although 40% of toa interviewed farmers complained that quantities are limited and prices are higher than those of the private sector. As noted above (Chapter III), ORMVAD's role in water distribution is mostly perceived as problem solving by ditchriders when conflicts arise among water users. When asked about ORMVAD's extension service, 46% of Doukkala I and 722 of Doukkala II farmers said they are regularly visited by extension agents. The main concern of farmers is by far crop protection (about 80% of the interviewed farmers sought ORMVAD's advice in this respect). 5.12 In conclusion, farmers' perceptions of ORMAD is a combination of a "father figure" and a tough leader. For the farmers, ORMYAD undoubtedly represents the Government, the power, but also the problem solver. Although its technical assistance is not considered important, farmers appreciate ORMVAD's role in organizing agricultural production, from the provision of inputs to the marketing of products, and in resolving con- flicts among themselves. 101 Regional Agricultural Credit Bank/Caisse Rigionale de Cridit agricole. DIR NOp/Se morco impeat Onge 1:04:00 1U-JlW-09 - 40 - VI. SOCIAL IMPACT 6.01 The separate surveys of both male and female project beneficiaries carried out for this impact evaluation made an attempt to measure for each project and different farm sizes the project impact on beneficiary welfare, the role of women, the distribution of work among family members and the status of children. A. The Family Unit 6.02 A typ:tcal farming family in Doukkala comprises 7.7 persons, vary- ing from 6.4 in small farms (less than one hectare) to 10.2 in the largest (more than five hectares). More than half the families surveyed have a married child residing at home indicating continuation of the traditional extended family. For each family with children (90% of the total), 7.4 children were born on average (from 1 to 16). The average infant mortality rate was 23%, lower than the national average, resulting in 5.4 living children per couple. Almost all children are born at home, often in poor hygienic conditions; waterborne diseases are another common cause of infant death. Fifty-two percent of the survey sample was male and 48% female. Girls usually get married at 12-14 years and leave their family to join their husband's household. Agriculture is the principal activity for the majority of the beneficiaries, but handicrafts are widespread and 41% of the interviewed families reported occasional off-farm activities. 6.03 The literacy rate of the adult population is low: only 19% on average varying from 372 for men and 7% for women. The discrepancy is also marked among children, with 63% of the boys and 24% of the girls currently attending school. School attendance is slightly lower in Doukkala I, the older project, than in Doukkala II suggesting that the introduction of irrigation has not resulted in any significant progress in children's edu- cation. School attendance is higher in the largest farms. Reported rea- sons for not sending children to school were by order of importance: remoteness of the school, high costs, frequent absence of the teacher, and home labor requirements (mostly for daughters). Although with the intro- duction of irrigation, more vegetables are cultivated in the irrigation perimeter, bread and tea remain the staple diet. 6.04 About a third of the interviewees report that one or several mem- bers of their family have migrated out of the project area, most (74%) before the project. The number of migrants is higher among small families than in the largest. Relations between migrants and their families remain strong: about 43% of the migrants contribute to family resources, while 36% draw some revenue from the family farm, often in kind (wheat) and mostly in the smallest farms. This interrelation between farmers and their emigrant family members is an important feature of the project. It illu- strates that the total number of project beneficiaries is significantly larger than estimated as it includes a high proportion of non-residents. It is worth noting also that some of the project farmers were formerly farmer emigrants to Europe who came back to Doukkala when irrigation was introduced. DIR: Moroimp/ee morocco impact eng:no 1:04:00 18-JW-89 - 41 - B. Work Distribution and Role of Women 6.05 Most agricultural work is carried out by family members. Among male family members above the age of seven, 732 are working full time, 22Z part time. However, hired labor is important for land preparation and harvesting in all farm sizes. Among family members, men undertake the majority of field work. Although about 272 of women and a significant proportion of children also work in the field, mostly for weeding and harv- esting, women are reluctant to engage in agricultural activities and their contribution to the total agricultural workload remains low (Table 6.1). Most working women, however, reported a higher contribution to field work than before the project, due to irrigation development and higher cropping intensity; work on sugarbeet is the principal agricultural activity of women. The larger the farm, the more labor is hired and the less women and children of the family work in the field. Livestock/poultry activities are handled by women. This is their principal source of revenue, which is largely used for the purchase of small consumption items: foodstuffs such as oil, mint, meat; fabrics and soap. These purchases are, however, like all others, made by men. Married women seldom leave the home; young women not at all. When married women do visit the souk, they are always accompa- nied by a male family member. Handcrafts, mainly spinning and weaving was reported by 70% of the women, but are a declining activity due to low prof- itability and increased agricultural work. Women have generally recognized that irrigation has improved the family living standards, and provided much better access to water. Most of them, however, have reported an increasing workload for themselves and their daughters both at home, through increased food preparation for hired labor and for agricultural tasks. DIR: oroap/ew morocm apset g:no 18:04:00 18-45-J9 - 42 - I*WZJA%L DDVSWA 14 3I WOW Work Distributioen (I)* Hired Pastly Ptaul Labor Hired Labor Pamilyabor and Hired Han Voeen Children Han end Man And iosen and Han. Useen men 1dekn MSn. Woen .A L W OWUt 2n.. Gnv Wman. Childme Chl den and Children gal& RalY. and chlIdren Land preparation 18.8 35.5 71.8 84.8 0.7 0.7 1.8 12.4 0.0 0.7 98.7 0.0 1.8 Peat control 62.0 10.1 91.9 76.8 0.0 8.5 8.1 158.0 0.0 0.9 94.2 0.0 5.8 maintenance 86.4 i8.5 80.1 69.6 0.9 4.8 10.4 18.0 0.0 1.7 91.4 0.0 8.6 Irrigation 84.5 7.7 7.7 78.4 2.4 8.6 8.0 12.0 0.8 0.0 100.0 0.0 0.0 Harvest 14.4 14.9 70.7 88.1 1.8 1.8 8.2 9.1 0.0 1.9 49.1 0.0 1.9 Fodder Crops Lend preparation 81.8 14.5 84.2 81.2 0.9 0.9 0.9 135.2 0.0 0.9 98.9 1.1 0.0 Peast oontrol 77.4 138.2 9.4 75.0 0.0 5.4 5.4 13.0 0.0 1.1 91.7 0.0 8.8 malntenance 80.4 7.1 12.5 69.2 0.0 5.8 15.4 7.7 0.0 1.9 90.9 0.0 9.1 Irrigation 66.8 8.4 5.8 77.5 1.7 8.0 1.7 12.5 0.0 0.9 100.0 0.0 0.0 Harvest 80.2 8.8 16.0 s6.8 2.4 6.8 14.8 e.7 0.8 11.1 s.5 7.7 a.6 Land preparation 6.9 17.2 7S.9 81.2 0.7 1.4 5.6 11.1 0.0 Q.0 90.1 0.8 9.8 Post control 85.4 18.9 27.7 78.9 0.7 2.2 7.2 15.2 0.0 0.7 98.2 0.0 6.8 Maintenance 24.1 16.7 89.2 69.7 2.1 0.7 18.1 12.4 0.0 2.1 78.8 1.5 19.7 Irrigation (A.8 8.0 8.0 80.6 8.1 1.8 8.1 11.8 0.6 0.0 96.6 0.0 8.4 Harvest 5.2 32.1 82.7 68.2 2,0 1.8 16.4 18.8 0.7 2.0 68.9 1.2 29.9 Yeakis Land preparation 28.8 0.7 68.0 79.6 0.0 0.0 0.4 12.8 0.0 1.1 92.4 1.8 6.8 Peat control 51.0 14.0 28.0 77.9 0.0 1.2 4.7 14.0 0.0 2.8 85.7 0.0 14.8 Maintenance 41.2 17.0 41.2 70.2 0.0 1.2 9.5 17.9 0.0 1.2 76.7 8.8 20.0 Irrigation 82.5 9.7 7.8 00.6 0.0 8.2 2.2 14.0 0.0 0.0 88.9 0.0 11.1 Harvest 2o.2 10.7 8.1 6a.0 1.1 2.2 15.2 18.0 0.0 5.4 as.0 7.9 85.a Agmtok Cleaning stable 92.5 8.7 8.7 9.4 85.0 4.4 26.8 7.2 10.0 8.8 100.0 0.0 0.0 Feedine 92.1 8.2 4.7 16.8 15.2 8.8 82.8 8.2 7.0 15.8 100.0 0.0 0.0 KeepIng 94.0 8.0 2.4 17.5 15.8 19.4 18.9 18.1 7.5 10.0 100.0 0.0 0.0 * Based on the survep of 200 farmers. C. Housing and Social Infrastructure 6.06 The population lives in scattered, small, traditional villages. As stated above, project objectives to relocate farming families to new villages (UREFs) has failed. The survey showed that only 7% of the sample has accepted resettlement in a UREF, where power and potable water facili- ties were constructed. The large majority of the interviewed farmers have preferred to stay in their former villages despite the lack of infrastruc- ture, mostly because they would not have had stable for their animals in the new villages. Living conditions in the old villages are generally poor, with a severe water supply problem and related diseases. The irriga- tion canals constitute the principal source of potable water. The project illustrates the difficulty common to many projects in relocating popula- tions to better equipped villages without radically disrupting the tradi- tional way of life. 6.07 The typical house includes three rooms and a kitchen with no pota- ble water or electricity, and an adjacent stable. More than a third of the houses in the Doukkala I sample have been improved since irrigation started, and only 6% in Doukkala II, illustrating that the benefits of irrigation are often invested in home improvements. Improvements consist mainly of additional rooms and new roofs, with an average investment of about US$1,350 per family. DIRs strolep/se m.o. laet egsue 18:04:00 18-JW-9 - 43 - D. Farmer Perception of Project Benefits 6.08 About 51 of the interviewed farmers, all from the largest farm size, reported that irrigation had only negative effects on their welfare. Thirty percent expressed entire satisfaction and more than 602 had mixed feelings. Reduction of climatic risks, improv4d living standards and bet- ter food supply are the main reasons for satisfaction. The smaller farms are those where both satisfaction and dissatisfaction are the most expres- sed. Crop diseases, difficulty in financing production costs and increased work resulting from irrigation are mentioned as negative factors. Most (851) of the project beneficiaries stated that the major benefit of irriga- tion was employment generation at the village level. Induced effects --trading, housing construction--were also mentioned by a number of inter- viewees. 6.09 In summary the project's social impact is relatively difficult to measure in Doukkala. Employment generation and stabilization of the rural population are undoubtedly the major social benefits of the projects. Family incomes have increased substantially, but so has the workload. More importantly, the number of people depending upon these incomes is increas- ing continuously. Social infrastructure remains poor. Health and educa- tion are relatively underdeveloped. VII. FUTURE PROSPECTS 7.01 In reviewing the twelve year experience of the Doukkala irrigation projects, it is clear that project success has been due primarily to the efficiency of the project authority and suitability of the development approach. Specifically this has enabled a decentralized Implementation agency to assume full responsibility for the construction and O&M of the irrigation and drainage systems as well as for supporting services for agricultural development, including: agricultural extension, provision of inputs, and marketing of the main cash crops. Despite this success, ORMVAD's staffing and functions are changing, in line with government and Bank strategy in helping Morocco improve the policy framework and manage- ment of the irrigation subsector. 7.02 Under the Bank-supported Large-Scale Irrigation Project, approved in 1986, the following main changes are being made: - transfer of responsibility to the sugar refineries and to the private sector for distribution of inputs, control of sugarbeet harvesting operations and marketing of output, while at the same time, ORMVAD to charge a commission of 9% for such serv- ices which it still provides to farmers; - other services currently supplied by ORMVAD to be provided on a charge-back basis; - revision of the cropping pattern; - divestiture by ORMVAD of collective borrowing for seasonal credit from CRCA on behalf of farmers; DW: aroimp/as morocco impact engno 18:04:00 18- 0t-9 - 44 - - animal health to be provided by the private sector; - disengagement from the provition of financial management of cooperatives once such organisavions have been in operation for five years; - decentralization of responsibility from headquarters to the subdivisional and local levels with the respective responsibil- ity for coordinating all OR4NVAD activities resting at the field level rather than with the individual technical departments at headquarters; - agricultural extension to be reorganized under the Training and Visit (T&V) system and extension staff to be increased by 100%; - establishment of water users associations to take increased responsibility for O&M of hydraulic equipment. 7.03 The rationale for ORMVAD's disengagement is three-folds (i) the private sector is able to carry out commercial operations at a lower cost; (ii) by disengaging from its commercial activities, ORMVAD will be able to concentrate its efforts on improving 0&M of the irrigation system and extension services to farmers; and (iii) strong and permanent assistance to farmers tends to reinforce the dependence of the farming population upon the project authority. 7.04 A three-year (1987-1990) contract program between the Government and ORMVAD has been drawn up, specifying ORMVAD's work program, development objectives, performance targets based on specific indicators, and new investment in irrigation and drainage infrastructure. Chan,es are now in process of implementation. Farm mechanization by ORMVAD has, in 1986, been phased out, only 10% of preparation of the sugarbeet crop is now done with OREVAD equipment; ORMVAD is now charging 7-9% to farmers to act as interme- diary with CRCA for access to credit, distribution of inputs, recovery of debt and repayment to the credit agency; calculation of water charges as well as their recovery are now the responsibility of the two sugar refine- ries in the project area. 7.05 Expected benefits from the contract program are an increase in cropping intensity and yields of the main crops and an increase in forage and milk production due to the rehabilitation and better 0&M of the irriga- tion network and improved extension services. The financial autonomy of ORHVAD is also expected to be strengthened by changes in budgetary proced- ures: public services (extension and works supervision) would receive full compensation from the Government while the cost of irrigation activities and other services to farmers would be fully borne by the beneficiaries. Doukkala has been the first of the nine LSIs where all the above structural changes are being introduced on a pilot basis. 7.06 In the view of this impact evaluation, this policy change, which appears sound in principle includes a considerable amount of risk, as it will inevitably weaken the integrated development approach which has been precisely the main reason for project success. The following problems are likely to be encountered when the policy changes are applied2 DIR: toroiap/aa morocco impact eng:no 18:04:00 18-AW-9 - 45 - (a) ORMVAD's disengagement from provision of inputs and credit means that farmers will have to rely exclusively on private traders and individual loans from CRCA to purchase their inputs. While this will not create problems for the medium and large farms, small farmers, who are the majority of project beneficiaries, and who are often not eligible for credit, will be penalized. Adverse effects of government disengagement in provision of inputs has already been observed in a number of projects where similar measures have been adopted.11/ In the Doukkala area, purchase of fertilizers from Fertima and self-- ted seeds from Sonacos has been significantly lower in 1987 than during the previous years. (b) Organization of sugarbeet harvesting and cost recovery collec- tion by ORMYAD has been extreme!: successful despite the large number of producers (14,310 for the whole Doukkala area). ORMVAD's sound accounting and control system has also permitted rapid payment of sugarbeet to farmers after deduction of water charges, betterment levy and input costs. ORMVAD's efficiency was greatly facilitated by the fact that it represented the Government in the eyes of farmers and therefore had full autho- rity for handling these complex operations and arbitrating conflicts. It is doubtful that private sugar factories will be able to take over such activities without the strong support of ORMVAD, which may slow down the disengagement process. (c) Reinforcing extension services and introducing the T&V system is desirable. However, the main reasons for shortcomings in agricultural production today are rather more the results of inadequate research (lack of alternative summer crops, unsuit- able varieties of maize) marketing problems (soya, milk) and the evolving land tenure situation (lack of interest of small farmers for forage crops) rather than inefficiency of exten- sion. Strengthening extension and improving extension method- ology in the absence of suitable technical packages to be transferred to farmers may quickly lead to poor efficiency of extension staff. (d) Establishment of producer cooperatives has been planned to help surmount some of the above problems. Creation of water user associations to take increased responsibility for O&M of the irrigation schemes is also recommended by the LSI project. The survey shows, however that there is a low literacy rate and a strong sense of individualism among project farmers with a weak sense of cooperation. There is undoubtedly a need to promote farmers' responsibility, reduce ORMVAD*s assistance and encour- age cooperation among farmers. This is a high priority, but it 11/ See particularly Pakistan Punjab 'Extension and Agricultural Development Project and Sind Agricultural Extension and Adaptive Research Project PPAR (OED Report No. 7288, dated June 13, 1988), Senegal Debi-Lampsar Irrigation Project PCR (OED Report No. 7149, dated March 2, 1988). DIR: Noroimp/sa meroco impact enw:no 18:04:00 18-JAt-89 - 46 - is not certain that it will be easily and quickly attained in a context of ORMVAD's disengagement. Promoting a system whereby farmers would take over part of ORMVAD's O&M activities will require innovative formulae--such as the bonus paid to irriga- tion associations for undertaking similar services in the Phil- ippines--and this will in turn require a major effort on the part of ORMVAD during the coming years; (e) Farmers' participation is unlikely as long as they perceive water charges as a tax unrelated to the quality of the water service. Although water charges have increased continuously and now largely exceed O&M expenditures, O&M has remained poor resulting in farmers' dissatisfaction. There is a need to revise the use of funds collected through water charges, including a better allocation for maintenance, provision for major repairs and rehabilitation, and a more open dialogue with farmers in this respect. 7.07 Finally, the question arises why Doukkala was selected for a pilot disengagement operation. ORMVAD was the first LSI to achieve financial autonomy and to disengage progressively from a number of commercial opera- tions (land preparation, provision of some inputs, veterinary activities) in favor of the private sector. Because of its success, ORMVAD was consid- ered a model for other LSIs. In these conditions, is there really a need to accelerate the disengagement process when a gradual evolution is likely to be more successful and less hazardous? It is the opinion of this impact evaluation that the Bank's and Government's insistence for rapid changes reflected a fashionable and widespread trend toward quick structural adjustments, privatisation and government disengagement without considering whether a slower pace and a more flexible approach would not be more appro- priate. Acceleration of the disengagement process could also have an adverse effect on the morale of ORMVAD's staff who could feel penalized for having been too successful. DM: "6roimp/ea Mrocco impact engto 2304:00 8-JlN-9 - 47 - A AIN FEATURES ØF THE OUffl AA IRRIGATIOM PROJECTS Doukkala I ad U Sid Smalt and Sidi ennour Sprinkler Irrigation Gravity Irrinatlon L*catlon Country Morocco Morocce oographIc coordinates 120 wc, 8N 12# WO, 36N Climtø Classification Tprate, seml-arid Teperate, sol-*rid Averagennual r ainfe I l Mnu 3" mS Average annual temperature 169 16O Average annual pen-Ovaporatlon 1,135 1,18" ff ater Supply Source Ou. er Rbla River Oum er Rbla River Type Regulated water Røgulated water Average annual tvailablilty $u lma 5mg uma Water QuelIty Rivera1de clasølfleatlon C Sl C 51 Storag* Das Number 1 1 Total lifo capacity 2,320 Mm$ 2,820 tm Pur~pose IRR/ENE e_ Ill/EN af Convoyanc. Syste Total length 128 km 128 km Type Lined tunnel Lined tunnel and earth canal and earth ean*l Max. discharge capacity 6 ow/sec M3 Flow control Automatic upstream Automatic uperea and downs6eet a and donstream OistrIbuton Network Sy~t.. Sprinkler Sur-faco Type Und*rground aabetos Lined or precat ce~ent pipes canle Irrigatlon Area 82,123 ha 18,645 bo So.11 Brown calcareous Brown calcareous (limited depth) and deep vertIsol* vertisols DWr:MrIap/wnneo 1-MY-ff -48 - Annex 1 Page 2 MOROCCO MAIN FEATURES OF THE DOUKKALA IRRIGATION PROJECTS Doukkala I and II Sidi Small and Sidi Bennour Sprinkler Irrigation Grevity Irrigation Main Crops Sugarbeet, wheat Sugarbeet, wheat vegetables, forage vegetables, forage Land Tenure Land ownership Private (95) Private (9) Collective (15) Collectlve (185) Average farm sixe 2 ha 8 ha aM Service Public Administration Public Administration Water Users' Groups No No DOsign Operational Procedures System of water allocation and distribution Demand Arranged demand Conveyance and distribution efficiency 88 s6 Field efficiency 75X 6ON Overall efficiency 64% 5O Average annual demand at headworke 10,18m k/ Average peak demand at headworks 9.88 L/sec/ha 0.67 L/ec/he Specific design flow 0.68-1.11 L/sec/ha 9.85-0.72 L/sec/ha Concept of operation Downstream control Upstream control Water measurement system Controlled volume Controlled volume Water measurement device Modular Mters Rate of flow 8 L/sec 89 L/sec Pro*ct Description Pumping stations 19 1 (lift) Conveyance network (m/ho) 2.5 2.5 (lined) (88) (88) (unlined) (S7) (671) Distribution network (i/ha) 27.5 84 (lined) - (15) (underground) (15) - Area served by farm turnout 12.6 ha 4.8 ha Drainage canals (a/he) 49.0 87.9 Linkage between Irrigation and farm layout Ye* Yes (land consolidation (land consolidation Traem 8) Trae A end 8) Present Status Dam Good Good Pumping stations Good Fair Conveyance network Good to fair Good to faIr Dir:Mbolas/anneses:oe 1-MY49 - 49- Anex Pag 3 MAIN FA1URES mF THE 00IKALA IMIGATIM PROJECTS Doukkala I and II Sli Small and Sidi oenneur Srlakler Irrialon Gravl16 Irrlgatlon Underground dlwtrlbutlon neork Fair Concret lined or precast nteork Po*r Farm turne t*0 PoFl r Mob le equlpent Poor Nydroechanlcal equipaent Fair Fa;r E*rth dIstrIbutIon «an*le Falr *reinag canale God Fair Need for rehabilitatlon Par4ial High Need for laprov*ment LOw LOV Actual Pro~ec6 Performance later allocatlon/distribution sysema Oemand Arranged dmmand Conveyance/distrlbutlon *ffi cl*ncy 74% 72% Fleld ef lclency 675 s8 Overall offlclency 49% 42% Average annual watør demand at headorke (198/86) 7,31"s/ha 9,8/h* Average peak vater dømand at headworki (1g6/86) 0.35 L/sec/ha G.456 L/eec/ha FlexIbIllty In ater distributlon Satløfactory Satlafactory EquIty la water dIstrIbutlon Satilsfactory Satlgfactory Rellablllty In *ater dIstrIbutlon Satlsfatory Fair TImallnss In vater diotribution Satlefactory FaIr water asurosent sytem Estimated volume Control led volue Negativ. environent lapa Water logging No No Sallnlzatlon No No SI ltatlon Lo* Medium Operatlon and maintenance OAm etaff (no.) 77 121 Additlonal ~6aff needed for adequate 0M 29 19 Ne~ Irrigated arøa per 0AM staff 417 ha 164 ha Net Irrlgated area per ditchrider 868 ha 478 ha Fare turmouta per dltchrider 71 118 Operatlon Satiafctory Satisfactory Mai ntenanoe Insufflelent Insufflclent 0Ml total expendlture US84, US*780,ø00 A~6ual expndlture on 0M IncludIng energy Per ne Irrigated area (ha) USS116.48 .c USS6.88 Per diverted volume (1,sma) USS7.41 _c US*7.2* Per delivered volume at farm turnoute (1,0SS) US15.12 c/ USS9.9 ExcludIng energy Per net Irrigated area (ha) US1128.46 US86.88 Per diverted volume (1,60m3) US~4.12 US97.28 Per delivered volum at fars turnouta (1,6~8) USSS36US59.98 01 r:Moroim/eexS:nb 1-MAYe - 50 - Annex 1 page 4I MOROCCO MAIN FEATURES OF THE OUKKWAA IRRIGATION PROJECTS Doukkala I and II Sidi Small and Sidi Bonnour Sprinkler Irrigation Gravity Irrigation Water charges (1086) Per delivered volume US324.26 TO 82.91 US816.86 to 10.98 Per Irrigated bectare USM94.0 to 282.0 USUS6.9 Water charge recovery rate >05X >95 Investment cost recovery rate (S (S Water charge/OM costs >105 >106 Water Users' Groups No No Actual Construction costs (USS 1980) (per irrigated hectare) Dam (sunk cost) - - Conveyance canal Improvement 214 110 Distribution network 4,076 2,809 General infrastructure and equipment 578 425 Engineering 128 145 Total construction cost/ha 4,988 #/ 8640 Average cost per beneficiary 10,488 9,126 Agricultural Production Cropping Intensity 1253 115 Gross value of production (USS/he) 1,893 1,295 Water charges:grose production value lo S / IRR a Irrigation; ENE = Energy / Not available g/ Doukkla I only. ,/ Doukkala It US115,519; Doukkela II: US84,882. Di r:mroip/armesa 1-MY40 -51 - Annex 2 Page 1 MOROCCO SOCIO-ECONOMIC SURVEY OF THE DOUKKALA PROJECT BENEFICIARIES Objectives As part of the impact evaluation of the Doukkala I and II projects, a socio-economic survey was commissioned to Institut Hassan II, Rabat, Morocco, with the following objectivest (i) determining the economic and social impact of the projects on farming families; (ii) reviewing changes in land tenure since irrigation started; (iii) analysing the perceptions of beneficiaries on services provided to them by project institutions; (iv) analysing the perception of beneficiaries on their current and future welfare and quality of life; and (v) determining if and how the projects have changed the status and role of women in the project area. Sample Design Two surveys were conducted simultaneously by Institut Hassan II from September to December 1987. The first survey conducted by Messrs. Larbi Zagdouni, Farouk Alioua and Dries Benatya, assisted by a team of twelve, interviewed 196 farmers, or about 1.5% of project beneficiaries selected randomly with a representative distribution among the three main project areas, 32 villages and six farm sizes, as shown below: Farm Sise/Area Zemamra Tnine Gharbia Extensions Sidi Smail (ha) and Fareah 0 - 0.5 25 13 7 0.5 - 1.0 28 9 5 0.5 - 2.0 21 25 1 2.0 - 5.0 17 22 3 5.0 - 10.0 7 3 3 > 10.0 1 5 1 Total 99 77 20 The second survey conducted by Mrs. Charifa Alaoui and her team interviewed 152 women, of whom 114 were the wives of the above interviewed farmers, with a view of collecting possibly different opinions and perspectives on project social impact, 28 were family heads and 10 were other women. Dir:Nmrop/anneeema 1-MY-8t - 52 - Annex 2 Page 2 Institut Hassan II issued its final report in four volumes in February 1988. Questionnaires The farmers and women questionnaires were based on the following subject headings: Farmers Women Identity, composition of the family Family health Work distribution Water and fuel supply Housing and buildings Children education Land tenure House equipment Agricultural and livestock production House and field work Investments since irrigation Status Perception of supporting services Perception of irrigation benefits Perception of irrigation benefits Perception of future status 0ir:Mraip/Manexe:a 1-NMY-M -53- Апмх 8 Рsяв 1 FAR1t �10�1' в.б ha Far�rь (Croppiep Iniмsity 1ьв� toial Unit tiгosa Produet Тоi,ь1 Nвt Агы Yielд Ргодис. Рг`iов Ув1w Cost hs год� 9 t. s Уа1ие (hai (8} (ai (8H/tj ФМ� iвHi (� (8� whest в.2в 8.е в.Тв 2,в� 1,42в в,2вТ 4ь8 1,ве7 SияагЬиt в.2в 7в.в 14.в 214 2,в96 б,в2в 1,вв4 1.992 W i se � .,- � � � -- .� � Sиаsвг Vвяв8аЫа в.2в 2в.в т.в кв в,вьв а,ьц 1,в2в ь,в22 Wiпt�вг УвавtsЫеs в.1в 19.0 1.9 1,2ьв 2,8т6 11,в88 1,1в7 1,288 Fоддвг Crops � -- _� Tots1 в.Т8 18,641 4,192 9,849 11аfi.вг Chsгgм 8,861 тг8 х 81в ОН/1в8в е� -1,184 8,166 FAR1�# BUOtiET 1.в hs Fsгm tcгoppiпg lпtепstву 1в8� тоtа! uпit вгор Ргодис6 тоiв! Net Агеs Yie1d Ргодис. Price Ys1ue Cost s Prod.Cost Уа1ие (�� (t� с�� (он�t� т!n сон� (�n (а+� wh.at в.4в в.в 1.62 2,вев 8,в�в 2,2вт вв� 2,1ве Sи9агьеев в.4в 7в.в 2в.в 214 6,9s2 ь,в2в 2,вве е,sв4 W i ae � �. .� » � � � -- Swапвг YegetaЫ es в.88 2в.в 9.24 flSO в,Л'8 6,ь11 2,148 8,88в Winiвг Va�stsbвs e.2s 1в.в 8.в 1,2ьв 4,тьв 11,вва 2,214 2,ь8в Fодд.г сгор. .� � Totet 1.88 22,ь80 7,2т7 1ь,288 1Маtлг Chargвs 7,тв? т8 х 81в ОН/1вв0 а� -2.8в8 12,89Ь Оiпlbroiвp/aпnsвos:no 1-W�Y-64 -54- Аnмх Е РаSв г FARY 8ИlСЕТ 2.@ ha Fsгms (сгоррtер Ietвпs:tr 1г6� Tota1 цnit Сговs Ргодиеt Totat Nst Агм Уiв1д Ргодие. Рг- i� Уа{ив Cost а Рrod.CosO Уа1ив (ha) (ti it� (�н/�i N� (�� (�i Фнi w{►ваt е.9в в.8 8.4г 2,ем в,84s г,г8т г,в4в 4,ви SugsгbesE @.88 8А.0 87.88 214 8,889 6,0� 8,012 6,877 Msizв О.г0 2.8 8.62 1,8N 988 2,786 667 879 Su®твг УвавtаЫвs 8.8i 28.В 8.48 96@ 7,9М 8,611 1,968 8,Qi27 @intвг Увавtа�lр 0.гВ 19.8 8.8 1,280 4,7� 11,068 4,414 г,688 Fоддвг Crops 0.80 88.8 26.60 178 4 41 4.788 1�412 8.В80 Tota1 2.60 88,В8Т 11,188 ц,819 Bstsг Сhагяеs l8,4@4 е� к 81�! ОИ/18N w8 -4.776 17,@44 п Cгopping рsttвгп Ьsид on svвгарв 1982-87 Zeawmra егоррiпВ psttвгn. FAR!! BUOQET 8.8 bs Fагтвп (Cropping lntensity 1178j Tota1 Unii Cгoss Ргодисt Tots1 Nst Агеа Yis1d Ргодие. Ргiев Уа1ив Cost s Prod.Costi Va1ue (h•) (�) (�) roH�t) Ф� (�) (� Фн) �ваt 2.бе в.е 9.68 2,� 19,86в 2,�7 в,вве 14,18г Sugsгbeet 1.60 88.@ 94.68 214 �,г28 6,82А 7,688 12,898 Maizs 8.60 2.8 1.88 1,8� 2,840 г,788 1,892 948 Sитаиг YegsZsЫq 8.98 28.В гб.� 968 28,94А 8,611 6,880 18,88@ �lintsг YegatsЫ � 8.80 19.® 11.48 1,260 14,26@ 11,В88 8,841 7,8@9 Fоддвг Сгорп 1.8@ 86.8 86.� 178 14.706 4.7@8 4,788 9.999 Tota1 7.00 96,288 81,797 88,481 lйаtег Chsгgм 48,г12т8 к 81В 0{i/1ВВВ о8 -14.826 49,188 ва 0оге tofa�s апд (ps vвQetaЫ es thaп аvвгаQе егоррiпр раttвга. Dir:Moroiap/мпеаеа:iю 1-FNY-89 Ann« a FARM 25.0 ha Fa (Cropplag I~lty 110Q Tou l Uni% Gr~ Pro~ ToM l Ar« Yteld Pr~ . Pricc Väl" ~ 9 PC2Lged VRIM 00 (t) (t) 01,11t) (M m (014) (M w~ O.N 3.8 34.29 290M 88,4m 2,287 29,403 47,997 smrb«t 9.w 60.0 "@.o 214 115,5W 6,9m 48,1m 70,389 Mal» 2.w 2.8 O.M 1,8m 11,789 2,786 8,982 4,738 ~ V Cropa 6.00 85.0 425. _173 73.626 4.768 28. 49.995 Tomt 27.60 278,40 98,776 177,625 %ur chem~ 192,86u13 x 310 OR/OM ma -59.891 20 ha x 16 DR 300 117,8N v~bl~ Prod=Mon Valuo per Fam (DN) Farm Ikt val«* ofter pa~ Tator Charg« Ikter Char~ len % of of ~ Chaw- Gr~ Volug ~ Val uo 0.6 ha $~ 1,194 8.8 14.8 1.0 ha 12,= 2,8W 10.6 18.8 2.0 ha 17,044 4,775 14.6 28.0 8.6 ha 49,188 14,325 16.6 29.6 26.0 ha 117,934 69,691 21.5 51.0 ofr~loplm~mo I-MY-" - 56 - Amoxw 4 Doukkala I Ent1aated Ne- Returns por hafper Crop by Farm $Ix* In 1986 Beor* «ater h*rg=s Farm S 1 Sularbee het, Malze §WWr V in2.r Födder 0.6 1,689 567 - 2,187 1,849 - - 1.0 1,659 667 - 2,137 1,849 -- -- 2.0 9m 567 202 2,187 1,849 1,01 - 6.0 800 667 202 2,137 1,349 1,061 - 26.0 81 667 202 - - 1,061 820 After Mater chars (Cropplng Farm Sugarbeet fhe, M e W So Intenelty) SIa (1501) 0.5 904 484 - 1,825 1,152 - - (188%) 1.0 868 462 - 1,742 1,099 - - (1251) 2.0 64 408 145 1,539 971 784 - (171) 6.0 64 482 148 1,517 98 758 - (N0) 26.6 407 278 99 - -- 620 181 DN 9.48 = US*1.00 Di r:Norolmp/annexe:no 1-MY-O9 - 57 - Annox 5 MOROCCO: DOUKKALA I AND II IRRIGATION PROJECTS ECONOMIC RATE OF RETURN ANALYSIS (MILLION om, 1988) DOUALA I DOUKKALA II INCREMENTAL INCREMENTAL YEAR BENEFITS MBENEFITS 1978 48.2 -19.5 - - 1977 81.0 -19.5 4.8 -8.1 1978 62.0 -19.7 4.1 -8.1 1979 82.9 -4.4 7.7 -.1 1980 51.9 -5.1 14.4 -.1 981 44.1 10.ø 129.ø -8.1 1982 18.2 48.5 10.6 -8.1 1988 17.6 68.7 87.3 -0.1 1984 18.8 78.8 146.8 -7.8 1985 18.8 81.9 125.7 -28.8 1988 24.8 89.3 88.2 8.7 1987 18.8 98.8 28.8 89.9 1988 78.8 101.8 23.7 84.8 1989 18.8 184.8 28.7 182.4 1990 68.9 107.8 83.8 182.0 1991 18.8 110.7 30.4 178.0 1992 18.8 113.0 29.8 178.0 1998 67.2 118.0 29.8 178.0 1994 28.4 118.0 43.4 178.6 1996 17.8 113.0 29.8 178.5 199 17.8 118.0 29.8 178.6 1997 17.8 118.0 29.8 178.6 1998 82.9 118.0 29.8 178.5 1999 17.3 118.0 29.8 178.5 280 81.9 113.0 86.9 178.6 2881 81.9 118.8 85.9 178.6 2082 31.9 118.0 35.9 178.5 2008 81.9 113.0 86.9 178.6 2884 81.9 118.8 85.9 178.8 2005 81.9 118.0 36.9 178.6 2006 81.9 118.8 8M.9 178.5 2887 81.9 118.8 35.9 178.6 11.7% 10.6% 0ir:Morolap/annexe:no 1-MAY-89 *eeg 1 jj,} LU s 1 *sI b2 用口口口 個口 寫 口口勵 16RD I óZ ro El Jadida ro Elkdidø ro Et jaddø MOROCCO DOUKKALA I IRRIGATION PROJECT PROJECT DEVELOPMENT WORKS PkOJEr P"IRRIGAU0N 00UKKALA I SIDI SMAIL C' "'0 rRAVAUX DAMENAGEMENr DU PROJEr u sebt sois i øl 0 2 4 <5 8 10 D. el Hamamma l ý l l I KILOMETERS 0 N Project areo Zone du~ Pe-imeter bourdaries L, 4. binites du perimetne \NZ 2 Sector boundøries N SIDI BENNOU limites d*$ sec.#~s CT 1345 Main conal (enlarged) conal ~cpal Feeder conol ( ZO secitof (consiruted) RS126 conal adducteur Isecteu, Z0)1 IL ---- n, % ' ZEMAMRÅ CT 1350 large diameter pipes 3 Condwies grand dametre Collector drains and depressions finisscires dessatnissement et dayos, Pumping stations Stations al- ~~ C(ossificd roods ýconstructed) kautes classees tconstrumes)I Trine Rhorbic Classified roads (reinforced) 1339, Route$ classées c r ý341 Feederroads Pistes encaillassdes RS 123 Classified roods Rocites classeýes Commune headquorters. Cheir 4ý?v de ~mune