r0088 watershed management planning in esp

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WATERSHED MANAGEMENTPLANNING IN ESP :Focus on the Interface of Stakeholdersand ESP project staff

JULY 2005

This publication was produced by Development Alternatives, Inc. for the United States Agencyfor International Development under Contract No. 497-M-00-05-00005-00


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Photo credit: Idham Arsyad, ESP Jakarta.

A paddy field along a small stream that runs down from Ciasem Water Spring, Subang, West Java.


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WATERSHED MANAGEMENT

PLANNING IN ESP :Focus on the Interface of Stakeholders

and ESP project staff

Title: Watershed Management Planning in

ESP: Focus on The Interface of

Stakeholders and ESP Project Staff

Program, activity,

or project number: Environmental Services Program,

DAI Project Number: 5300201.

Strategic objective number: SO No. 2, Higher Quality Basic

Human Services Utilized (BHS).

Sponsoring USAID office and

contract number: USAID/Indonesia,

Contract number: 497-M-00-05-00005-00.

Contractor name: DAI.

Date of publication: July 2005.


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TABLE OF CONTENTS

LIST OF TABLES......................................................................................................................................... IEXECUTIVE SUMMARY............................................................................................................................ I

1. CONSIDERATIONS ON DATA COLLECTION FOR ESP............................................................ 1

2. ESP PLANNING FOR WATERSHED MANAGEMENT REQUIRES A SET OF DETAILEDDATA: ................................................................................................................................................... 2

3. SEQUENCE OF MAJOR ACTIVITIES FOR PLANNING FOR WATERSHED MANAGEMENTACTIONS.............................................................................................................................................. 2

4. GUIDING PRINCIPLES IN THE MANAGEMENT OF A WATERSHED..................................... 3

5. CATEGORIES OF MANAGEMENT.................................................................................................. 3

6. THE WATERSHED MANAGEMENT PLANNING DIMENSIONS FOR ESP REQUIRE TODESCRIBE AND TO COLLECT DATA FOR EACH OF THE FOLLOWING IN THE FIRSTBASIN.................................................................................................................................................... 4

7. STRUCTURE AND PRESENTATION OF A WATERSHED MANAGEMENT PLAN................ 7

8. ESP TO USE WATER ACCOUNTING AS A WATERSHED MANAGEMENT PLANNINGTOOL .................................................................................................................................................. 10

9. FOUR WAYS OF IMPROVING THE PRODUCTIVITY OF BASIN WATER RESOURCES ... 11

10.TERMS AND DEFINITIONS IN WATER ACCOUNTING.......................................................... 12

11.TRAINING ISSUES FOR OF ESP PROVINCIAL TEAMS ............................................................ 13

12.THOUGHTS ON WATER SUPPLY POLICY................................................................................ 15

13.ESP INFORMATION REQUIRED FOR WATERSHED MANAGEMENT AND WATERSUPPLY-WEST JAVA (CIANJUR/CITARUM BASIN) AND EAST JAVA (FOR AREAS IN

BRANTAS RIVER) ............................................................................................................................. 16

14.ESP TEAMS TO ANTICIPATE CHANGE AND THE RESISTANCE TO IT. ............................ 18

15.FORMULATING AN ESP STRATEGY AND IMPLEMENTATION POLICY ............................ 21


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LIST OF TABLES

TABLE 1STEPS IN INSTITUTIONAL CHANGE PROCESS .............................................................................................................20


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EXECUTIVE SUMMARYThis report is written during the early stages of the Environmental Services Program (ESP).As of July 2005, ESP has staffed-up High Priority Province offices, conducted an initialworkplanning process, and initiated early field activities. In the case of ESPs WatershedManagement teams, this includes initial watershed management site selection, introductionof ESP to potential partners, and preliminary development of watershed management forumsor working groups at the community as well as government levels. These early activitiesprovide a foundation on which future activities will build, and key to this is the facilitation ofwatershed management forums as well as the development and implementation ofparticipatory watershed management plans. The purpose of this report is to provide someguidance on facilitation of watershed management planning processes, and development andimplementation of effective management plans necessary to achieve ESP objectives as well as

to ensure long-term sustainability of ESP work into the future.

ESP success with watershed management depends on six conditionsin each of theHigh Priority Provinces:

1) Good and structured data, standardized and processed for Information

2) Trained field teams

3) Tested institutional process

4) Clear message5) Pro-Poor focus

6) Early success.

This requires:

1. A well-documented and data-researched watershed, fully analyzed on problems andpotential for ESP watershed management results (As an example, see WorldResources Institute Maps of Mekong as a starting point)

2. Well-prepared provincial teams, trained in institutional development, and familiarwith the legal basis for resolving land and water issues, and versed in whatparticipation is, especially now that financing of many issues will still need to beobtained,

3. A well-established and tried-out process of interacting with stakeholders whichincludes all aspects of participatory sensitivity, conflict avoidance, control andmanagement,

4. A clear message which from the start states the objectives, such as reducing andreversing watershed destructions and misuse, improved conservation and protectionof biodiversity, of working on cleaner water, with more connections for self-propelled and financial independent PDAMs, and the fact that financing will not beprovided through ESP,

5. A clear focus on those who have marginal income, whether in upper watersheds,tilling land without a title, whether as small farmers in irrigation areas, or whether

living in urban squatter areas without access to clean water, and


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WATERSHED MANAGEMENT PLANNING IN ESP:

FOCUS ON THE INTERFACE OF STAKEHOLDERS AND ESP PROJECT STAFF

6. A clear understand that success and failure are very close over the full course ofproject activities in an area, and that starting in a semi-prepared manner a heateddebate over poor water and land management is the easy part, but resolving this tothe satisfaction of stakeholders is the VERY difficult; but failure at the first attempt

will affect project reputation and staff performance immediately, and may soon takethe project to make the background.

Of course, teams will learn, and subsequent efforts elsewhere need to unfold faster, better,and be done more efficiently. Of all ESP efforts, watershed management is the most complexand difficult one. There is significant difference between watershed management and watersupply, both in what is seen as successful and what is sustainable. This report focuses on theWatershed Management & Biodiversity Component of ESP, and provides specific advice andstrategies for maximizing positive impact on watershed management through an effective anditerative planning process.

This report provides information and tools for ensuring the facilitation of effective

watershed management forums, and the development and implementation of soundwatershed management plans.

ENVIRONMENTAL SERVICES PROGRAM WWW.ESP.OR.ID II


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1. CONSIDERATIONS ON DATACOLLECTION FOR ESP

Water Resources Management is today the acknowledged catch-term for activities in riverbasins that deal with such issues as:

Water Supply (Drinking and Industrial Supply); Water Diversion for Irrigation; Watershed Management and Conservation; Flood Control; Coastal Management;

Fisheries; Water Quality; Wastewater Management.

The largest water user in any river basin in Java and many places elsewhere in Indonesia isirrigation; it is and certainly was, up to 90%. Any water needed for any other purpose willcome from irrigation. Watershed management will not only benefit water supply; irrigationis, through it sheer diversion of massive quantities of water, a direct beneficiary of better andcleaner water that would pass the intakes, along the total course of a rivers as it flows.However, irrigation is also a major polluter as sediment in any systems as well as chemicalpollutants due to use of insecticides, fertilizers and pesticides. Thus, flooding in any area willresult in water pollution, not just from watershed run-off, but also from the proportional

large contribution of irrigation sediment-rich drainage return flow. Water in - water out;sediment in - sediment out. The river system is clogged up and will for years discharge thissediment, irrespective of whether new sediment comes from the top upper slopes or not.

Therefore, watershed management in the upper areas of a river is not the sole factor thatwill provide cleaner water for PDAMs in the downstream lower areas. To rely on theclassic approach of watershed management may thus ignore the truth about a river, howits functions in a complex manner, of many, many mini-watersheds interconnected in a mostintricate manner, with in- and outflows at many points. Significant amounts of sediment maybe returned into the river system during floods and associated return drainage flows fromirrigation systems. Planning for watershed management thus should look at the overallpicture, from where the dirty water comes and what is realistically achievable, with limitedresources, and limited legal power. Otherwise, promises are perhaps made, and resultsexpected, and funds spent, while there will be no tangible and measurable results in waterquality anywhere along the river. This will be so most certainly in Brantas, where anyactivity, however intense and appropriate from Day 1, may not show improved water (bothquality and availability) in downstream, tail-end sections of the river and to the PDAMsextracting their water supply here.


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2. ESP PLANNING FORWATERSHED MANAGEMENTREQUIRES A SET OF DETAILEDDATA:

1. Institutions;2. Critical Areas (Land);3. Water (Accounting and Quality);4. Income levels of various stakeholders;5.

Trends in various (sub-)sectors;6. Budgets of PDAM and present cost recovery/service fee procedures;

7. Conservation and Preservation of Land and Water present advise;8. Land titles;9. Water Licensing, Fees, Permits;10. GIS Mapping in Thematic Maps for progress and monitoring and discussion

purposes;11. Monitoring Information System.

3. SEQUENCE OF MAJORACTIVITIES FOR PLANNINGFOR WATERSHEDMANAGEMENT ACTIONS

1. Survey Conduct watershed boundary delineation using GIS basedgenerated maps;2. Information and Education Campaign Disseminate information to thecommunity through printed media, billboards and video documentation;

3. Community organizing - With assistance from local government, this aims toform and strengthen each village, as well as provide training to selectedstakeholders;

4. Nursery operation Establishment of community based nurseries andseedling production areas;

5. Watershed rehabilitation and protection Management strategy to controlsoil erosion, which aims to reforest degraded watershed and prevent illegalcutting of vegetation;

6. Monitoring and Evaluation Keep track of the progress of the project inrelation to the approved management plan.

ENVIRONMENTAL SERVICES PROGRAM WWW.ESP.OR.ID 2


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4. GUIDING PRINCIPLES IN THEMANAGEMENT OF AWATERSHED

1. Holistic, integrated and following the watershed continuum approach. Anymanagement and development activity will have an immediate or long-termimpact on the soil, have an immediate or long-term impact on the soil, waterand other watershed resources on the three environments; mountain,lowland and sea;

2. Multiple-use oriented management. Based on the premise that thewatershed can be managed to provide several goods and services essential

to society;3. Multi-sectoral and interdisciplinary planning. Emphasize multi-dimensional

and participatory nature of watershed management and developmentplanning by providing multiple goods and services for the benefit of variouspublics and stakeholders;

4. Sustainability. Provide continuing benefits to most if not all stakeholders forboth present and future generations;

5. Participative and equitable. Promote and recognize the "sense of belonging"among the stakeholders in various aspects in the management of thewatershed;

6. Efficiency in resource use. Maximize benefits (socio-economic,environmental) and minimize cost as well.

5. CATEGORIES OFMANAGEMENTThe three categories or types of management that ESP should considered for

watershed management practices:

1. How does ESP foresee the (selected basins) Watershed EnvironmentalManagement:1.1. Ecological sustainability;1.2. Environmental health;1.3. Environmentally sound technologies;1.4. Incentives for sound management;1.5. Pollution reduction;1.6. Resource management.



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2. How does ESP suggest that Land Use Management is to occur in awatershed, using:2.1. Geographical information systems;2.2. Land development;2.3. Land-use planning;2.4. Open space conservation;2.5. Urban/suburban renewal.

3. What is the ESP suggestion with respect to Watershed Governance:3.1. Decentralization;3.2. Institutional reform;3.3. Legislation;3.4. Openness and transparency;3.5. Partnership development;3.6. Public policy.

6. THE WATERSHEDMANAGEMENT PLANNINGDIMENSIONS FOR ESP

REQUIRE TO DESCRIBE ANDTO COLLECT DATA FOREACH OF THE FOLLOWINGIN THE FIRST BASIN1. PHYSICAL AND ECOLOGICAL ENVIRONMENT DIMENSIONS

Physical and climatic setting:Rainfall, ET, temperature, etc.;Soil, geology, topography;Drainage network, flood regime, mean and probable seasonal flows;Risk analysis (drought, floods, pollution);Past extreme events;Underground water resources.

Main ecosystems:Forests, grassland, wetlands; agricultural ecosystems;River and estuary ecosystems;Wildlife and biological resources.



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Water resources development:Reservoirs, canals, tube wells, etc.;Flood protection, dikes;Hydro-power; navigation;

Water treatment and desalinization;Irrigated areas (all sizes; "official" or not; Characteristics andmaintenance status).

Infrastructures:Roads, power generation, electricity, etc.

2. SOCIETY, PRODUCTIVE ACTIVITIES AND USE OF WATERDIMENSIONS

Population, demography:Growth rates, age pyramid, life expectancy;Migrations (internal and international, long term and seasonal);Occupations, education.

Social structure, political/power structure:Political shock events;Social system, leadership; religion, customs;Relationships between the power structure and access to water.

Socio-economic stratification, poverty and health:Income distribution;Gender issues;

Food production and security;Proportion of households with incomes below poverty line;Access to sanitation and drinking water;Incidence and prevalence of water related and other infectiousdiseases.

Political, institutional and macro economic context and economicsectors:Relative importance of economic sectors;Income differentials;Job opportunities in different sectors;Sectoral policies; decentralization policies;

Political life, civil society (NGOs present and active in the basin, etc).

Agricultural sector (distinguish irrigated and non irrigated agriculture):Land use; cropping techniques and calendars, yields, input useintensity;Farm size, land tenure, land market;Credit;Labor force in agriculture (by gender);Marketing, price system;Crop/husbandry linkages;Farm, off-farm and overall income composition (by source, amount

and gender);Cost/return of main farm activities.



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3. WATER MANAGEMENT AND ALLOCATION Water uses, water flows within the basin and water accounting:

Relative importance of different water uses: hydropower, agriculture,

livestock, fisheries, domestic uses, industry, wild life, environment,navigation;Recreation and aesthetics;Efficiency, consumptive use and water productivity of different uses;Surface water-underground water relationships and use;Run-off, erosion;Relative Water Supply and demand/supply analysis;Water balances and accounting.

Water pollution and environmental issues:Sources (agri., industrial, urban, natural source);Stalinization, water logging, eutrophisation;

Nutrient transport and cycling;Impact on fauna and biodiversity.

Water allocation:Management actors: users, Water User Groups, basin authorities,administrations, water suppliers, etc. (their role, power, attitudes, etc);Priority in use, water rights or entitlements, legal framework;Formal and effective allocation processes (normal and deficit years);Satisfaction of human basic needs;Responses to extreme events;Conflicts and conflict management;

Equity;Political interventionism.

Water management:Patterns of water distribution;Conjunctive use in agriculture and farmers' strategies;Performance;Flood management;Mitigation of pollution;Environmental services;Equity;O&M responsibilities and costs;

Risk management;Water management in irrigation areas.

Regulation and incentives:Taxation and subsidies, water pricing, markets, andpolicies for domestic, industrial and agricultural use;Past and on-going policies for the irrigation sub-sector.



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7. STRUCTURE ANDPRESENTATION OF AWATERSHED MANAGEMENTPLAN

This Plan should be recorded for the first major basin where ESP plans to make correctivesuggestions (ESP Provincial Teams to be required to write this point-by-point down and useit in a PowerPoint Presentation in Bahasa Indonesia). ESP Management should use the NIKE

slogan by stating to the Provincial teams: Just Do It!: At least Once!

1. INTRODUCTION

1.2. Describes the purpose of the Watershed Management Plan (i.e.sediment reduction, land titling/ownership, etc. reduce nutrientloadings, sediment);

1.3. Indicate/Explain who this plan is being prepared with (i.e. Describethe targeted audience?) This may be the same group as identified in2.1 below;

1.4. Explain intended use or objective of the plan and the ESP approach;1.5. Briefly describe how the planning process is being used beginning

with the initial planning session through an evaluation of the

implemented resource plan.

2. WATERSHED AGREEMENT OR MEMOS OFUNDERSTANDING2.1. Identify participating landowners, agencies, organizations and

describe any agreements that may have been and need to bereached by the stakeholders;

2.2. Describes any formal approval or adoption process beingconsidered by local stakeholders.

3. DESCRIBES THE WATERSHEDBriefly describes the landscape to include a broad range of watershed

characteristics and attributes impacting the planning process. To the extentpossible, this information can be displayed in graphic or tabular format.

3.1. Physical and geographic landforms, hydrologic, climatic andecological features (i.e. annual precipitation, soils, important geologicfeatures);

3.2. Land use (i.e. cropland, hayland, pastureland, rangeland, forest land,other farmland, barren land, other rural land, urban and built-upareas, rural transportation land and water areas;

3.3. Land cover types and data (i.e. cropland, grassland, forest land,urban/transportation, percent residue cover, erodibility factor, slope

and length of slope and common management practices andcropping rotations (3 to 5 Years);



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3.4. Water body use, classifications, and standards (streams, lakes,ground water, wetlands);

3.5. Fish and Wildlife Resources;3.6. Economic base (i.e. primary income sources);3.7. Population demographics (i.e. density, distribution);3.8. Farm demographics to include a list or table-including:

Number of farms in project area; Number of low income or minority farms; Number of farms, by type; Average size of farm operation, by type.

3.9. Brief summary of involved local units of government;3.10. Cultural and other resources.

4. INVENTORY THE RESOURCES IN THE WATERSHED4.1. Surface Water;4.2. Ground Water;4.3. Fish and Wildlife;4.4. Habitat / Special Ecosystems (e.g. wetlands, forests);4.5. Cultural Resources;4.6. Other Resources (Air).

5. IDENTIFY THE PROBLEMSDescribe the specific water resource management problems by analyzing thedata and identifying the sources and causes of impairment mentioned in theassessment focusing on a discussion of documented ground water/surface

water problems.5.1. Point Sources (only if commonly known);5.2. Non-Point Sources;5.3. Identify Accepted Physical/Chemical Pollutants:

Include actual data or known estimates for key parameters,including, where appropriate, conventional pollutants (e.g.,biochemical oxygen demand, nutrients, and fecal coliform bacteria),agricultural pesticides, and toxic substances (e.g., metals andorganics), and sediment.

5.4. Related Known Problems or Impediments: Degraded Physical Habitat (i.e. sheet, rill, ephemeral erosion,

wetland & fisheries, etc.);

Hydrological Modifications (i.e. land use changes, increasedimpervious areas, channelization, etc.);

Endangered Species; History of Agricultural Pesticide Use; Local Concerns (i.e. known human health hazards, wildlife

concerns, community development, agricultural economics,etc.).

6. FORMULATE ALTERNATIVE MANAGEMENT STRATEGIESConsider and evaluate alternatives to address the environmental problemsdescribed above. Strategies need to consider not only solutions to the

problems, but also economic impacts from implementing or failing to



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implement identified alternatives. Identify available incentives which may beuseful in selecting alternatives.6.1. Use of appropriate Best Management Practices to protect the

watershed (include a listing of practices);

6.2. Describe other management alternatives considered;6.3. Identify any proposed land use changes;6.4. Identify permanent or structural solutions considered;6.5. Describe financial incentives available.

7. DRAFT A WATER RESOURCES AND WATERSHEDMANAGEMENT PLAN

7.1. State project goals and objectives (derived from #1.3);7.2. Describe planned improvements in the watershed (derived from

#6.0);7.3. Describe any current or proposed monitoring and/or evaluation

efforts within the project and the likely changes in water quality that

can be expected from the monitoring and/or evaluation efforts;7.4. Establish project milestones established by local project participants;7.5. Review the "draft" plan with local stakeholders and make any

modifications to gain acceptance from the community thatimplementation of planned practices will adequately address thewater resource problems.

8. ESTIMATE PLAN IMPLEMENTATION BUDGET & IDENTIFYSOURCES OF FUNDINGDescribe known or estimated costs to implement the plan as well as knownand/or potential funding sources. Develop an annual budget over a 5-year

time period. Utilize graphics or tabular data when possible.

9. APPENDIX9.1. Maps of the Watershed:

Hydrologic Unit Boundary;Soils and Land Use;Location of Wetlands;Property Ownership;Aerial Photography.

9.2. Supporting Technical Documentation;9.3. Letters of Support (i.e. include letters documenting problems,

decisions and commitments made by local, provincial and national

government agencies and others;9.4. Information and education campaign which explains the Watershed

Management Plan and planning process.



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8. ESP TO USE WATERACCOUNTING AS AWATERSHED MANAGEMENTPLANNING TOOL

The new phrase in use today in many best practices in water resources planning (whichincludes watershed management) isWater Accounting (WA), defined as to make adetailed inventory of water resources in a river basin, specifying flow, use, allocated,unused/unallocated, in order to reveal the reality of availability and use. WA will show

where water is being used and can thus provide a framework for assessing its productivity.

Water Accounting will help quantifying the ESP initiative in its three key areas:

Access to clean water and sanitation services; Improved watershed management; Increasing the productivity of water.

by

Pinpointing areas where water can be transferred from lower - to higher-valueuses;

Evaluating the scope for improving productivity of water and targetinterventions;

Identifying opportunities to reduce non-beneficial evaporation, pollution, or theflow of water into 'sinks' (deep aquifers or other areas where it can't berecovered).

Policy makers, planners and resource managers can use this information to:

Identify opportunities for saving water and/or increasing water productivity; Conceptualize and test interventions in the context of multiple uses of water; Develop effective strategies for allocating water among different users; Assess the scope for the development of additional water resources.

Water Accounting shows all users of water in a basin, including unacknowledged users,and should be considered in water resources planning. Water accounting helps watermanagers take a more integrated approach that more accurately reflects the reality of wateruse. To show decision to all stakeholders if water is allocated/committed to a certain type ofuser; WA is to become the basis for economic pricing and social preferences. As more ofthe river basins in key provinces become 'closed,' with all their available water used, itbecomes increasingly important to plan water resources development, allocation, andmanagement in the context of multiple uses of water. Policy makers and water resourcesplanners can use Water Accounting to make decisions based on the actual amount of wateravailable in a basin and with an understanding of the potential impacts on all users. Policy

makers and water resources planners can use Water Accounting to make decisions based



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on the actual amount of water available in a basin and with an understanding of the potentialimpacts on all users.

Water planners have two basic options for increasing the amount of water available for

beneficial use without building additional infrastructure: 1) Reduce non-beneficial depletion,or 2) Produce more crop per unit of water beneficially depleted. Improving the productivityof water and reducing waste are appealing options compared to developing new storage anddiversion facilities, which often carry high financial, social and ecological costs. Wateraccounting gives planners and policy makers a clear view of their options and the scientificinformation necessary to effectively plan development and management efforts.

Being able to clearly communicate how water is being used and the rationale for allocationcan help avoid or minimize conflicts over water. This is especially important in cases wherethe competition for water is intense and giving more water to one user necessarily meanstaking it away from another. The Water Accounting System provides a common language tounderstand and describe the use and productivity of water. One of the most valuable

applications for Water Accounting is in identifying opportunities for saving water andincreasing its productive use. ESP is concerned with the drought and flood parts of thewatershed management.

9. FOUR WAYS OF IMPROVINGTHE PRODUCTIVITY OF

BASIN WATER RESOURCES1. Increasing the productivity per unit of water consumed

Changing crop varieties. Developing new crop varieties can provideincreased yields for each unit of water consumed, or the same yieldswith fewer units of water consumed.

Crop substitution. Switching from high- to less-water-consuming crops,or switching to crops with higher economic or physical productivity perunit of water consumed.

Deficit, supplemental, or precision irrigation. With sufficient watercontrol, higher productivity can be achieved using irrigation strategiesthat increase the returns per unit of water consumed.

2. Tapping uncommitted outflowsImproving the management of existing facilities to obtain more beneficial usefrom existing water supplies. A number of policy, design, management, andinstitutional interventions may allow for an expansion of irrigated area,increased cropping intensity, or increased yields within the service areas.Adding storage facilities and releasing water during drier periods. Storagetakes many forms including impoundment in reservoirs, groundwateraquifers, and in small tanks and ponds on farmers' fields. Reuse of returnflows through gravity and pump diversions to increase irrigated area.



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3. Reducing non-beneficial depletionNon-beneficial depletion can be reduced by decreasing....

Evaporation from water applied to irrigated fields through specificirrigation technologies such as drip irrigation, or agronomic practices

such as mulching, or changing crop planting dates to match periods ofless-evaporative demand;

Evaporation from fallow land, decreasing area of free water surfaces,decreasing less beneficial vegetation, and controlling weeds;

Water flows to sinks (ocean or deep aquifers) and by reusing returnflows, or by interventions that reduce deep percolation or surfacerunoff that flows to sinks;

Flows through saline soils, or through saline groundwater to reducepollution caused by the movement of salts into irrigation return flows;

Preventing saline or otherwise polluted water from reentering thesystem by shunting it directly to sinks.

4. Reallocating water between usesReallocation of water: between sectors-from lower- to higher-value uses, orbetween upstream and downstream uses. Reallocation can have seriouslegal, equity, and other social considerations that must be addressed.

Water accounting uses a 'water balance' approach to quantify the amount ofwater entering a system (through precipitation and river and groundwaterflows) and the amount leaving a system (through evaporation, planttranspiration and river and groundwater flows). The amounts depletedwithin the basin are then classified according to use, whether or not the useis intended and whether or not it is beneficial. The amount of unused water

flowing out of the system is classified according to whether or not it iscommitted for downstream use. Non-committed outflows are furthersubdivided into water that is currently utilizable and water that is notutilizable without additional infrastructure.

10.TERMS AND DEFINITIONS INWATER ACCOUNTING

1. Water depletion is a use or removal of water from a water basin thatrenders it unavailable for further use;

2. Available water represents the amount of water available for use. Availablewater includes process and non-process depletion, plus utilizable outflows;

3. Net inflow is the gross inflow plus any changes in storage;4. Non-process depletion occurs when water is depleted, but not by a

human-intended process. Non-process depletion can be either beneficial,or non-beneficial-for example, evaporation from fallow land wouldgenerally be classified as non-beneficial, while evaporation from forestswould generally be considered beneficial. Classification as beneficial or

non-beneficial requires a value judgment and is a good entry point fordiscussions with stakeholders;



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5. Process depletion is that amount of water diverted for use that is depletedto produce a human-intended product;

6. Gross inflow is the total amount of water flowing into the river basin ordefined area from precipitation, rivers and subsurface sources

(groundwater);7. Committed water is that part of outflow from the basin or defined domain

that is committed to other uses such as downstream environmentalrequirements or downstream water rights;

8. Uncommitted outflow is water that is not depleted, nor committed and istherefore available for a use within the domain, but flows out of the basindue to lack of storage or sufficient operational measures. Uncommittedoutflow can be classified as utilizable or non-utilizable. Outflow is utilizableif it could be used by improved management of existing facilities;

9. Depleted Fraction indicators reveal how much scope remains for waterresources to be developed, how close they are to being fully committed,and how sustainable the system is;

10. Beneficial Utilization relates the amount of water depleted by all beneficialprocesses to the amount of water available for use. This indicator offers amore accurate view of basin efficiency than traditional indicators, becauseit takes into consideration the water consumed by valuable naturalecosystems as well as the water consumed by human activities (such asagriculture);

11. Productivity of Water quantifies the value derived from the water used. Inagriculture, it can be expressed as the yield (in kilograms) produced percubic meter of water consumed by crops. More generally, it can beexpressed as the economic value of production per unit of waterconsumed. These productivity values can also be related to the amount of

water available, depleted or diverted.

11.TRAINING ISSUES FOR OF ESPPROVINCIAL TEAMS

Planning for watershed management can be achieved by making those charged with doingthis, go through a series of questions on what the Project documents repeatedly and

repetitiously state. ESP Provincial teams should consider the following suggested datacollection and recording of answers for each of the High Priority Province to:

1. Are there data on Provinces and Selected key areas on % of people withlack of access to clean water?

2. What are income levels in the target areas?3. Are there data on water quality? When and how collected and analyzed?4. Who is increasingly accessing land and water in target areas in provinces,

and what are the stressed water distribution systems?



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5. What are the poor watershed management practices?6. What is the expansion target in access to clean water?7. What are legal requirements/procedures on preserving land and waterquality, and what are reasons for slack enforcement?8. In what is the legal arrangement different today in the decentralized

management at District level: Does it really improve how Bupatis /Bappedas can handle the vested interest of major players in logging,mining, or with respect to land titling of poor farmers in upper watershed.In what way is this different from circumstances, say, 10 to 15 years ago?

9. How to measure that the provision of quality services at the district levelis provided and the local government capacity to manage and deliver theseservices and to provide transparent and accountable governance of

resources is improved.

10. What is the ESP role in generating strong advocacy and pressure fromcitizens and organizations at the local level to ensure adequateinvestments are made and high quality services are provided.

11. What is the participatory approach that will be used to ensure meaningfulinvolvement of poor and marginalized groups, including women?

12. How will professional associations, local universities, and NGOs beapproached so that they can be used and interested to help foster local

demand and pressure for high quality services and democratic governanceof resources?

13. So far, which private sector, NGOs and community groups have signedup? How did they sign up, and why? What are their expectations? Whatare their roles? Who in ESP determines the appropriate technologies,innovative financing, environmentally sustainable best practices andsustainable market oriented activities. How to involve PDAM in what way?What is expected? Who trains whom? What incentives are provided?

14. ESP states that depending on specific need, local government staff will betrained to design and implement key watershed management interventions

such as forest conservation, use of agro-forestry to restore watershedfunctions, reforestation, and stopping illegal logging as well as addressingagricultural, mining, and industrial practices which negatively impact watersupply and quality. In what way is this different and better if compared topast efforts?

15. ESP documents state that where ever possible, the ESP project will assistin the creation of district or multi-district watershed management boardsin order to promote better coordination, management, and developmentplanning of watersheds that span several district jurisdictions. Why createnew boards, when in many areas there will already be Integrated RiverBasin WMB?



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12.THOUGHTS ON WATERSUPPLY POLICY

Importance of Policy Elements - Learning from others - for consideration by

NWRA. Learning from others who went through similar experiences is worthwhile. Manyhighly developed countries have only recently faced up to developing the policies associatedwith water resources management. The OECD (Organization for Economic CooperationAnd Development) conducted a survey in 1989 among its member countries1 to identifywhat managers of water utilities and resources considered important elements in a policy.Below are an interpretation and a ranking on importance, based on the survey of a largenumber of water resources projects. The managers and project administrators were askedwhich of a list of 12 criteria below they considered most important to be included in aWater Resources Management Policy. The results show that they felt that clear objectives(Policy Statement) and the issues associated with Public Administration (Jurisdiction,Enforcement, Decision Making and Administrative Structures) are most crucial. If there isambiguity, or procedures are not specified, a Policy will fail. These issues are within therealm of institutional development but require the political will to make them work.

Crucial Policy Elements

1. Objectives - The presence of a formal Policy Statement;2. Administrative Jurisdiction and Coordination - Clarification between

agencies;3. Enforcement Powers - Legal arrangements available to agencies;4. Decision Making - Process by which specific measures are formulated andagreed upon;5. Administrative structures - Organization and structure of agencies.

Very Important to Important (scaled)

1. Data availability - Speed and quantity and quality of data needed fordecision-making;

2. Financial and Fiscal Resources - Includes role of public/private sector aswell as cost recovery;

3. Administrative Flexibility - Capacity for new ideas and informationbetween sectors;

4. Staff Quality - no explanation needed;5. Public Accountability no explanation needed;6. Performance Evaluation;7. Administrative discretion.

It should be evident that elements listed from 10 to 12 are also important, but that in caseany of the elements 1 through 5 and from 6 through 9, is unclear, is subject to discussion, isnot enforceable, or cumbersome with respect to decision making, then a policy losses itsappeal and its applicability.

1(Survey in OECD countries Australia, Belgium, Canada, Denmark, Finland, France, Germany, Greece,

Italy, Japan, Netherlands, New Zealand, Norway, Portugal, Spain, Sweden, Turkey, UK, and USA).



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13.ESP INFORMATION REQUIREDFOR WATERSHEDMANAGEMENT AND WATERSUPPLY-WEST JAVA(CIANJUR/CITARUM BASIN)AND EAST JAVA (FOR AREAS

IN BRANTAS RIVER)1. Rainfall/distribution over basin areas;2. River hydrograph over year (average and standard deviation 80% reliability);3. Relevant existing storage and potential storage as identified or estimated

today;4. Cropping intensity as achieved in recent years from records;5. Actual use/application of agreed rules for sharing water in scarce situations;6. Degree of competition for a limited supply of water by farmers and urban

residents;

7.

Trends in urbanization and industrialization over last decade;8. Groundwater development (by location and withdrawal);9. Sources of water pollution;10. Sanitation and sewage disposal in urban areas along river and tributaries

pilot areas;11. Existence of pipe-borne water distribution schemes, and percentage of these

schemes with the capacity for providing a 24-hour water supply;12. Location and trend (last decade) of saline intrusion;13. Recent actions/plans of relevant agencies, government and private, in

exploitation of water;14. Recent Investments made in water resources and budgets in place for O&M;15. Costs sharing mechanism of provider/users now in place;16. Actual conflicts recorded or existing between legitimate competitive users;17. Reservoir Maintenance (Effective Live Storage);18. In-River Structural Maintenance;19. Irrigation Supply system O&M (main system);20. Water Treatment Facilities;21. Irrigation areas Tertiary system completion;22. Flood Control Levee & Structural Maintenance;23. Prevention of River degradation;24. Volumetric Measurement Capacity;25. Water Quality Monitoring;26. Hydrological Network;27. Irrigation Area Consolidation and Trend;



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28. Drainage system maintenance;29. Ground water monitoring;30. Soil conservation;31. Industrial waste treatment;32. Sewage treatment;33. Domestic supply Intake facilities;34. Public pumping facilities maintenance;35. Water supply system maintenance;36. Urban flood control facilities maintenance;37. Location Waste Management sites;38. Priority Allocation Mechanism;39. Monitoring Capacity;40. Land Use Management;41. Industrial licensing;42. Urban sewage disposal licensing;43. Waste disposal sites licensing ;44. Role of private sector and agreements;45. Allocation enforcement;46. Drought water use measures enforcement;47. Role Public Administration;48. Role Line Agencies;49. Role River Basin within various policies;50. Environmental protection standards;51. Cropping Calendar;52. Pollution Remedial action;53. Funds required by sector;54. Emergency funding;55.

Funding arrangements by source;56. Subsidy arrangement and Phase-Out;

57. Cost recovery Procedures and Plans;58. Collection and Accounting;59. Contracts with Private Sector;60. Incentives structure.



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14.ESP TEAMS TO ANTICIPATECHANGE AND THERESISTANCE TO IT.

ESP should be aware that the planned activities will without question involve efforts tosignificantly change the management of water resources with respect to:

1. Watershed and Water User contribution in funding the management andO&M, and where appropriate, further development;

2. Watershed and Water User direct involvement in management, with anincreased role for any form of local control and actual day-to-daymanagement;

3. Watershed and Water User desire and need for improved water quality;4. Flood control measures extended to watershed;5. Increased focus on water use efficiency and economic values, contrasted for

need of priorities and agreed and required subsidies in water supply to thepoor. This includes pricing of and contribution to services and bulk volumes;

6. Reduction and possible elimination of subsidies, unless justified on eithersocial or economic grounds;

7. Transparency and accounting in funds collected and overall governmentsubsidies and budgets.

No matter what priorities ESP will identify in actions and investments, a considerablenumbers of preparatory actions related to water use profiling and data base development,user organization and institutional arrangements can be launched immediately, withoutchanging any given present laws and regulations or awaiting approval of new ones. Theactions are concerned with creating the necessary basis for any water resourcesimprovement program in the High Priority Areas, based on whatever decision or directionthat may ultimately be selected and for which funds will be made available. Wheneverpayment for any services, previously free or not enforced, becomes a major focus, thegovernment at every level should prepare and expect users to demand insight in funding, inservice structure and timing, in decision making and priority allocation, to name just themajor issues.

ESP should help the government at all levels to anticipate and to prepare to answer thefollowing questions from all type of users in great detail:

1. What are the costs of services now that users have to pay? Are they realcost and will they guarantee the services? If not, why not?

2. What is the role of the any type of water users, how are they to beorganized, and how is effective voice included and guaranteed?

3. What are the new future institutional arrangements in restructuring andredistributing responsibilities among institutions and stakeholders?

4. How is the preparation to be structured for increased financial contributionof users (under the concepts of the User Pays and the Polluter Pays)?

5. How will enforcement of payment be organized and executed?



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Irrigation will remain the main water use sector in all the basins; it has been like this, it is likethis and it will be like this for the foreseeable future. Irrigation therefore will, without doubt,be the water supplier to all other present and emerging requirements in the non-irrigationwater use sectors, such as industrial and urban water supplies. All new water distribution

and use arrangements, and all new entitlements in water abstraction will be controversial,and need a sound data base and set of arrangements to be manageable. This potentiallyconflict-rich situation will require details on water availability under various scenarios, andwill need ESP teams equipped and tested for Conflict Management.

Irrigation Farmers are powerful and will reject paying for water, and giving up water right.Why should they be altruistic and softhearted, and not egoistic..? They view water from ariparian viewpoint, and they know they were there first! So, they object, in this era ofdemocracy. Irrigation is the most powerful and volatile partner that ESP haswhether itrecognizes this or not The demand for water as a Commodity has increased tenfold inlast 15 years, but the supply is well, fixed. It often seems to be in excessive supply, only tobe followed (at unpredictable) moments by droughts. The watershed of Indonesia,

especially on Java and in selected areas of other provinces, are like ATM Water BankAccounts, with irregular deposits, non-frugal withdrawals, random and uncoordinatedaccess, and everyone having the PIN! The accounts are often empty!

Thus, water access not improved by focused actions, supported by a new legal framework,but is informally (and in principle illegally) adjusted to the new realities of water needs, itsdistribution n time, and its quality. Making well-meant but simple, even to the extentsimplistic suggestions that ESP will renovate part of a watershed (Hulu) into nice-and-green, and make sure that this watershed will transport its now cleaned (cleaner) water toa PDAM somewhere downstream somehow (Hilir) somehow contradicts the realities ofwater, of pollution, in the myriad ways that water flows downhill... But to entertain the

option of Doing Nothing is also unacceptable. Thus, the issue is of how ESP is to findways to be part of renewal, in fact be the essential engine, the core creative force, in makingthings work at the District level.

Therefore, ESP Team in each province needs to be

1. Well-informed (see Data Needs, Watershed Plan Development):2. Understanding of the psychology of Lying, Stealing and Cheating, a human

trait that underlies the Water Sector also, and which each user group willuse to defend their predicament;

3. Appropriately prepared, almost cunningly, in its approach (as in how tomediate, how to find money, etc.);

4. Realistic in its objectives (none in first 3 years just get one District on theRoad of Change, and keep the momentum going);5. The Number 1 supporter of the District and of the Poor.

Objectives of ESP Provincial Teams during Meeting process with Stakeholders:

1. To Assure Fair Hearings, and to work towards Dispute Resolution andConflict Avoidance/Management;

2. Assure the No Victims - No Culprits Approach in Limited ResourceAvailability and readjustment in access and preservation procedures;

3. Think Common Pasture and Overgrazing Issues;



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4. Test Law 7/2004 in preliminary and semi-informal ways, to help GOI set theguidelines on Implementation which still need to be formulated and whichmay vary by District (Petunjuk Teknis);

5. To understand and continuously assess the Institutional Change Process, andto proceed carefully.

The Steps listed below serve only as a guideline to make ESP provincial teams understandthat institutional development occurs as a process, and that recording of agreement is thechange sought.

Table 1 Steps in Institutional Change Process

Step in the

Institutional

Change Process

Considerations Success or NOT!? Comments

1 Select Watershed Triage (Take aMiddle-of-the-Road

problem): Stay awayfrom complex issuesinitially, but tacklesomething serious)

Not too big, not toosmall.

It better workout wellthe first time so all

resources are broughtin here. Coordinateteam again and again.Strong leadership withONE Voice within ESP.

2 Collect All Dataand Analyze

Benchmark/InformationBookkeeping/Profile

Think Future (Mid-Term or Post)Evaluation of ESP

Standardize for all HighPriorityAreas/Provinces

3 Design PreliminarySolution (s)

Options in case ofsevere watershortage

No Problem Scenariodoes not exist, butavoid setting sensitivegroups

Fear of Losing Accessto presentand/or havingto Pay for Access toResources

4 Present these toBappeda II Do they understand? Are they willing totake tough positionand put water usersin-line.

Who will be thePermanent Staff ofBupati/Bappeda II whowill be the ESPcounterpart?

5 Discuss Solutionsand Partners

Make friends, butspeak the truth.

Let them explain toESP in their words..

Bappeda II key toconvincing Bupati andDPRD II

6 Contact Partnersand Discuss 1-on-1

PADM, Forestry,Irrigation, Tourism,Industry, etc,.

7 Decide on Meetingand Participants

Steps. Options. Allin the first meeting?

What and How topresent the issues.

Message is not one ofGiving but one ofEffort and Energynow.

Not needed to achieveharmony and

agreement on Day 1.

8 Meet with Bupati Key Round. Discussend-product. Obtainhis agreement. TalkMoney

Bring theHeavyweights fromJakarta (USAID, GOI,ESP COP/DCOP)

Decide on Successcriteria in Year 1 andYear 2.

9 Decide onParticipation ofHulu and Hilirin field assessmentof Field Findings/

Truth.

See the viewpoint ofthe Other . Leteach see the issuesfacing the other.

One District, OneFuture, OneResourcesManagementApproach

Money should beintroduced.



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Step in the

Institutional

Change Process

Considerations Success or NOT!? Comments

10 MEET! Strong Moderator

Record in DetailedM-o-Meeting.

Opening by Bupati Invite Key Speaker from

Province and Central.

11 Do Field Work. Create opportunityfor finding ofminds.

Promote Awareness Not too many.

12 Sub-Meetings WaterLandMoneyProtection/Production

Prepare GroupLeaders.

Set Goals andObjectives.

13 Interim InternalESP TeamMeetings.

Central to guideProvince

14 Follow-up Generalmeetings

Do not waste timeof stakeholders; theyare busy enough.

Focus onAgreements

Record all opinions

15.FORMULATING AN ESPSTRATEGY ANDIMPLEMENTATION POLICY

1. How to implement the ESP Strategy and Policy? To establishcooperation and communication, as well as consensus, institutions will test itin a FIRST Case. Once evaluated, the First Case approach (modified strengthened detailed) would then be made effective nationwide asappropriate;

2.

How to introduce the ESP Strategy and Policy to the users and thepublic? The water users, the private sector and public will requireinformation, and some may not want the ESP Strategy and Policy at all. This isbecause the ESP Strategy and Policy will bring with it costs for users, andhence its resistance;

3. How to fund ESP Strategy and Policy? A market mechanism should beapplied. Wherever the government feels that subsidies are justified it shouldsay so openly. The issues of the User pays and the Polluter pays shouldhowever govern the funding;

4. How to use the media in support of the ESP Strategy and Policy? InIndonesia, the government has a considerable interaction with the media. As



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long as the government is convinced of the correctness of the ESP Strategyand Policy and when users and public at large have been involved informulation, the government should not hesitate to lobby the cooperation ofthe media for ESP Strategy and Policy dissemination;

5. What stages in ESP Basin Strategy and Policy introduction can berecognized? The Level II Government should recognize that any strategy andpolicy development and implementation will have stages. This recognition isimportant in planning a time frame for medium and long-term. The stages(overlapping and recurrent at times) are: Formulation - Approval Preparation Finance - Introduction Implementation Administration Enforcement Monitoring - Review/Update;

6. Can a complicated ESP Strategy and Policy be avoided? In view of theinteraction in society today, with an increasing free market orientation,increasingly deregulated, in combination with the multitude of sector

development programs it will be difficult to avoid complexities to policies. TheGovernment will need political resolve and may have to accept initialdifficulties, but this should not be seen as weakness and should not be allowedto last too long;

7. Can new legislation be avoided for the ESP Strategy and Policy towork in a District? New regulations shifting responsibility betweeninstitutions and creating new innovations can probably not be avoided. But therenewal or additional work in the legal process is not what should perhapsmake the government afraid. Modifying or dropping old legislation is verymuch required to remove anomalies and overlap. Next, it is more the

willingness to apply the agreed ESP Strategy and Policy and to enforce it.Legislation in itself is possible, even if complicated. But to enforce payment,shift water rights, formal or informal and cancel subsidies will test thegovernment resolve;

8. When can the ESP Strategy and Policy be considered functional?Part of the ESP Strategy and Policy formulation work is to describe theexpected output and to monitor whether this is being achieved. This will beassociated with water quality, trends in area remaining under irrigation,efficiency in water use, the general environmental performance and theacceptance of improvements by the public-at-large;

9. What are the most crucial elements of a ESP Strategy and Policy?First, there is the political will at introduction of the ESP-generated conceptsand as expressed in willingness to apply sanctions and enforcement. Second,realistic water resources and environmental objectives. Third, the willingnessfor institutional coordination, if necessary, enforced, and involvement of thepublic administration sector. Fourth, training in conflict management anddispute resolution, based on socio-technological aspects;

10.Will the new ESP Strategy and Policy not lead to many newconflicts? The purpose of the ESP is not the avoidance of conflict per se. Thepurpose is to set quality standards, in view of equity, efficiency andeffectiveness. Enforcing this will have its share of new legal battles, complaints,

non-compliance and confrontation, with community or special interest groups.



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ENVIRONMENTAL SERVICES PROGRAMRatu Plaza Building, 17th. Fl.

Jl. Jend. Sudirman No. 9

Jakarta 10270Indonesia

Tel. +62-21-720-9594

Fax. +62-21-720-4546

www.esp.or.id

r0088 watershed management planning in esp

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