1. Outline of the ProjectCountry name: People’s Republic of China

Project name: Model Planning Project for
Water-Saving Measures on Large-Scale
Irrigation Scheme

Fields: Agriculture

Assistance type: Technical cooperation
project

Supervising office: First Group, Rural

Monetary amount of cooperation (at time

Development Departmentof evaluation): Approximately 820 million
yen

Periodof

R/D: June 1, 2001, to May

cooperation

31, 2006 (five years)

Counterpart organizations: Ministry of
Water Resources, China Irrigation andExtension:

Drainage Development Center, Gansu

E/N:

Provincial Bureaus of Water Resources,
Shaanxi Provincial Bureaus of Water
Resources, Hunan Provincial Bureaus of
Water Resources
Cooperatingorganizations

inJapan:

Ministry of Agriculture, Forestry, andFisheries
Other associated cooperation:
1-1 Background and outline of the ProjectIn the People’s Republic of China (hereinafter “China”), water shortages are becoming
increasingly serious as needs for industrial and domestic water are rising in line withsocioeconomic development and a growing population.

At the same time, in the area ofagricultural water, which accounts for approximately 70% of all water use, aging
irrigation facilities and poor water management have led to decreasing water-use
efficiency, and therefore efficient use of water resources in the agricultural sector has
become an urgent issue.

In order to address this issue, the Chinese government

hammered out policies pertaining to diffusion of water-saving irrigation practices, andbegan formulating a national facilities construction, renewal, and improvement plan forlarge-scale irrigation scheme in 1999.
Against this backdrop, the Chinese government submitted a request to the Japanese
government for project-type technical cooperation (Model Program for Water-Saving
Irrigation for Large-Scale Irrigation Scheme) in 1999 for the purpose of promoting morerational and systematic water-saving irrigation projects.

In response, the Japan

International Cooperation Agency ( hereinafter “JICA”) dispatched a first short-term
study team (July 2000), a second short-term study team (November 2000), and an
implementation study team (February 2001) to confirm detailed cooperation content
and the implementation structure, etc., of the Chinese side.

Based on the results ofthese studies, it was decided that the Model Program for Water-Saving Irrigation forLarge-Scale Irrigation Scheme would be implemented as project-type technicalcooperation (currently a technical cooperation project), and that this Project would becommenced from June 1, 2001, to May 31, 2006
1-2 Description of cooperation(1) Long-term Goal
Stable supply of irrigation water and improved water supply and demand will beachieved.
(2) Overall Goal
1) Irrigation efficiency and water-use efficiency will improve in priority model
irrigation schemes.
2) Appropriate water-saving improvement plans will be prepared in at least themodel irrigation schemes.
(3) Project Purpose
Water-saving irrigation technology that can be extended throughout all of China willbe established through verification in the priority model irrigation schemes.
(4) Outputs of the project1) Survey and planning methods will be developed for the preparation of appropriate
water-saving improvement plans.
2) Water management technologies will improve.
3) Paddy field-level water-saving technologies will be developed.
(5) Inputs (at time of evaluation)
Japanese side
Dispatch of long-term experts:

Total of 10 experts

Dispatch of short-term experts:

14 experts

Training of C/Ps in Japan:

49 C/Ps

Provision of machinery and equipment:

Approx. 220 million yen

Assumption of local costs:

Approx. 120 million yen

Chinese side
Allocation of C/Ps:

82 C/Ps

Provision of land and facilities
Assumption of local costs:

Approx. 63.4 million yuan

2. Outline of the Evaluation Team
Members

Team leader:

Takeaki Sato

Chief, First Group, Rural Development
Department, JICA

Planning standards:

Yoshihiro Doi

Director,

DeputyOverseas

Land

Improvement Cooperation Office; Design
Division;

Rural

Infrastructure

Department; Rural Development Bureau;
Ministry of Agriculture, Forestry, andFisheries
Water-saving irrigation:

Mitsuaki Suzuki

Planning Director; Kiso River WatershedLand

Improvement

Management

Office;Agricultural

Office;Planning
Tokai

and

Regional

Ministryof

Agriculture, Forestry, and Fisheries
Planning evaluation:

Taro Izumi

Senior Program Officer, Paddy Fields
Based Farming Area Team Ⅲ , GroupⅠ , Rural Development Department,
JICA

Evaluation analysis:
Evaluation

Atsushi Tokura

November 8, 2005, to November 26, 2005

Consultant, IC Net Limited

Evaluation type: Final evaluation

period3. Outline of Evaluation Results
3-1 Confirmation of achievements
The Project Purpose states that “water-saving irrigation technology that can beextended throughout all of China will be established through verification in the priority
model irrigation schemes,” and one of the indicators for evaluating achievement of the
Project Purpose is “the Ministry of Water Resources will prepare a ‘manual for
preparing water-saving improvement plans’.”

A trial version of this manual is alreadybeing distributed to large- and medium-scale irrigation schemes throughout China.
Although a final version of the manual must be completed and a collection of casestudies to accompany the manual must be prepared during the remaining Project
Period, it is felt that the Project Purpose is attainable at the present time.
The first indicator for Output 1 (survey and planning methods will be developed for the
preparation of appropriate water-saving improvement plans) is “verification ofwater-saving effects in the priority model irrigation schemes is possible.”Thus far,data are being observed and analyzed, and verification of water-saving effects is being
conducted.

The second indicator is “developed methods (manual) are being utilized in

the model schemes.”

Here, a trial version of the manual is already being distributed tolarge- and medium-scale irrigation schemes nationwide.
“farmers’ awareness of water saving improves.”

And the third indicator isHere, pamphlets have been preparedand distributed and explanatory meetings have been held, and thus it is recognized thatawareness of water saving among farmers themselves is improving.
The first indicator of Output 2 (water management technologies will improve) is“appropriate water management methods that are based on facilities improvement andsystem reinforcement and their water-saving effects will be compiled.”

Appropriate

water management methods and their water-saving effects are already compiled in the
manual.

The second indicator is “the amount of water lost for each area unit will be

reduced within the scope of the model project.” Here, it is thought that water loss isbeing reduced based on improved results in “water-saving efficiency” in the priority
irrigation schemes.

And the third indicator is “compiled methods are incorporated into

the model irrigation schemes.”

Here, methods that were compiled in the manual are

expected to be reflected in water-saving improvement plans for each model irrigation
schemes in the future.
And the first indicator of Output 3 (paddy field-level water-saving technologies will be
developed)is“water-saving

methods

atwater-conservation effects will be compiled.”thepaddy-field

level

and

their

In the Shuangpai irrigation scheme,

water-saving effects are being compiled based on comparisons with conventional
methods. The second indicator is “net water requirements per unit area are reduced in
the model paddy fields.”

Here, it is confirmed that the net water requirement isdecreasing based on the results of verification in model fields of the Shuangpai
irrigation scheme.

And the third indicator is “compiled methods are incorporated intothe model irrigation schemes.”

Here, methods that were compiled in the manual are

expected to be reflected in water-saving improvement plans for each model irrigation
scheme in the future.
Based on the above, it is expected that Outputs 1, 2, and 3 will be largely achieved.
3-2 Outline of evaluation results(1) RelevanceThe basic direction of the Project adheres to China’s 10th five-year plan, which wascommenced in 2001, and its water law that was revised in 2002.

Moreover, Japan’s

ODA Charter, “medium-term ODA policies,” and “Economic Cooperation Program for
China” each contain “efforts to deal with global issues,” which include support forenvironmental problems and the water sector, among their priority aid fields for China.
And JICA’s country program for China lists “cooperation for dealing withenvironmental and other global issues,” which includes “sustainable use of water
resources,” as a priority field in aid to China. From the above, it can be determinedthat the objective of “establishment of water-saving irrigation technologies” as pursued
by the Project remains relevant.
Furthermore, because agricultural water makes up 70% of all water used in China, theestablishment of water-saving irrigation technologies and efforts to increase theefficiency of agricultural water use were relevant as means of resolving water
shortages.

Moreover, Japan’s agricultural water use efficiency is high due to theestablishment of irrigation facilities (including management facilities) and formulationof various standards that support these facilities.

Consequently, provision ofcooperation that utilizes Japan’s technologies and experience is highly significant.
(2) EffectivenessUp until the time of this evaluation, the operational structure for the Project and inputs
by both Japan and China have been extremely well executed, and the necessary
Outputs are being achieved; thus, it is expected that the Project Purpose will beachieved. However, while the indicator for the Project Purpose stops at formulation ofa “manual for preparation of water-saving improvement plans in irrigation schemes,”
one of the indicators for the Outputs goes so far as to mention use of the manual inmodel irrigation schemes.

The relationship between these two indicators is unclear.

Nonetheless, despite the existence of some problems with the indicators, it can bejudged that the Project has effectiveness.
Three Outputs have been established toward achievement of the Project Purpose; i.e.,“water-saving irrigation technology that can be extended throughout all of China will beestablished through verification in the priority model irrigation schemes.”

Judgingfrom the relationship between the development of water-saving technologies throughthe achievement of Output 2 (water management technologies will improve) and
Output 3 (paddy field-level water-saving technologies will be developed) andgeneralization of technologies that can be used in other regions through achievement of
Output 1 (survey and planning methods will be developed for the preparation of
appropriate waters-saving improvement plans), it can be said that the planned outputs
are adequate as means for achieving the Project Purpose.
(3) Efficiency
Inputs from the Japanese side―dispatch of long-term and short-term experts, trainingof counterparts (hereinafter “C/Ps”) in Japan, provision of machinery and equipment,
assumption of local costs, etc.―have been provided smoothly, efficiently, and essentiallyaccording to plan.

The Chinese side allocated C/Ps in accordance with details agreed

upon in the Record of Discussions.

The Chinese side is also working to bear basic

expenses that are its responsibility and to provide facilities, etc., needed for Project
implementation.

Consequently, it can be said that the Project is efficient.

The Project established priority model irrigation schemes in three provinces having
different climatic conditions.

It has since then sought to establish water-saving

technologies that can be spread throughout China through verification in each priority
model irrigation schemes.

Although simple comparison with similar projects in othercountries is difficult, the fact that the Project has established water-saving irrigation
technologies capable of being spread throughout China’s vast territory by dispatching
five long-term experts―the same number that similar projects dispatch―shows that
the Project has excellent cost effectiveness.
(4) Impact
1) Expectation of achieving the Overall Goal
Looking at the Overall Goal that states “irrigation efficiency and water-use efficiency
will improve in priority model irrigation schemes,” this goal has already beenachieved at least temporarily.

A major reason for this is that facilities andmanagement frameworks have been established based on water-saving improvement

plans.

Accordingly, it is highly possible that irrigation efficiency and water-use

efficiency will continue at their current levels after the end of the Project, and further
improvements can be expected depending on how water-saving improvement plans
progress.

Looking at the Overall Goal that states “appropriate water-saving

improvement plans will be prepared in at least the model irrigation schemes,”
problems with existing water-saving improvement plans have been organized inalmost all irrigation schemes, and strategies to revise these plans are being
formulated.

Therefore, it is expected that this goal will be achieved in the future.

2) Ripple effects
a. Extension of systems for disclosing water charge
In the Jinghui-gu irrigation scheme, a tough panel-type system for disclosing water
charge was developed and installed.

This clarified the grounds upon which water

charge are collected and improved the charge collection rate.
b. Improved response to floods
Remote control of gates and improved operational methods at the Shuangpai
irrigation scheme made appropriate and swift gate operation possible and reduced
damage when floods occurred.
c. Diffusion of the project cycle management (hereinafter “PCM”) method
Instruction on the PCM method was provided in mid-level technicians’ training for
employees of local governments’ water-resources agencies and large-scale irrigation
schemes. This resulted in recognition among the trainees of the effectiveness of
the PCM method and the method’s application in everyday operations.
d. Impact on environmental aspects
In the Jingtaichuan irrigation schemes, implementation of irrigation activities led
to improved average rainfall and average wind-speed figures, and turned an areathat had been a desert into an environment in which agriculture is possible andpeople can live.
e. Participation in technical exchanges and international conferences with third
countries
Technologies and operation and management know-how that were obtained
through the Project was shared with other countries, international organizations,etc., through technical exchanges and participation in international conferences.
f. Collaboration with the Japan Bank for International Cooperation (hereinafter“JBIC”)
Mutualsupplementationofproject

content

wascollaboration with projects being implemented by JBIC.

made

possiblethrough

Further extension of the

Outputs of this Project can be expected in the future.
g. Impact on the projects of other donors
The Irrigation and Drainage Development Center is also a C/P in projects
implemented by other donors, including the World Bank. Therefore, utilization of
the Outcomes of this Project in the projects of other donors can be expected to makea contribution to these projects.
(5) Sustainability
1) Organizational and financial aspects
The importance of the Irrigation and Drainage Development Center roles in terms oftechnical guidance and guidance in formulation of plans in the area ofwater-conserving irrigation is acknowledged, and its position as a public project
implementer is recognized by the Ministry of Finance. Thus, enhancement of thecenter in terms of personnel allocation and finances can be expected. Moreover,fact-finding surveys, evaluations, and other studies by large-scale irrigation schemes
are moving forward.

Plans call for appropriate budgeting of expenses that

contribute to the preparation of water-saving improvement plans by large-scale
irrigation schemes is scheduled to take place based on the results of these studies.
Thus, it is expected that the personnel and funds necessary to diffuse water-saving
irrigation technology will be secured by the Irrigation and Drainage Development
Center even after the Project is completed.
2) Technical aspects
The Ministry of Water Resources’ Department of Rural Water Management
recognizes the effectiveness of the “‘manual for preparing water-saving improvement
plans” that was created through the Project, and it has clearly stated its intention todiffuse the manual throughout China.

Furthermore, the C/Ps of the Irrigation andWastewater Development Center have already reached a level that allows them toprovide guidance in the PCM method, and thus they can be expected to play a central
role in efforts to diffuse the method for preparing water-saving improvement plansthroughout the country.

The technical level of facilities established in the priority

model irrigation schemes is appropriate and the importance of their management issufficiently understood; therefore, the evaluation team believes that these facilities
will continue to be properly managed into the future.
3-3 Factors contributing to emergence of effects(1) Factors pertaining to planning content
The fact that the Project does not exist as an independent undertaking but rather islinked to other Ministry of Water Resources activities not only raised the Project’s
relevance but also contributed to stronger Chinese ownership and Project promotion.
(2) Factors pertaining to the implementation process
A “committee for instruction and organization for water-saving improvement inlarge-scale irrigation schemes” was established in the Ministry of Water Resources.
This committee was positioned as an official body of the ministry, with the head of the
Rural Water Use Agency serving as chairman, and this made efficient preparation of
the manual with the cooperation of concerned organizations possible.
3-4 Problem areas and factors leading to problems(1) Factors pertaining to plan content
Some logical inconsistencies were evident in the project design matrix (PDM).

Amongthem was the fact that, while the indicator for the Project Purpose stops at formulationof a “manual for preparation of water-saving improvement plans,” one of the indicators
for the Outputs goes so far as to mention use of the manual in model irrigation schemes;
the relationship between these two indicators is unclear.

Moreover, with regard to

Activity 4-3 (information input and building of a database), the notation pertaining to
the level to which the database should be built was ambiguous.

Consequently,

information on Project progress was not shared between the experts and the C/Ps. For
example, activities that the experts thought were already achieved were seen as
incomplete by the C/Ps, and therefore some C/Ps felt that the Project needed to beextended.
(2) Factors pertaining to the implementation process
At the time the final evaluation was conducted, neither the experts nor the C/Ps
recognized the abovementioned problem with the PDM.

It is thought that if thisproblem had been recognized by both sides at an early stage and if necessary

countermeasures were taken, the Project might have been able to come to a smootherend.
3-5 Conclusion
As was mentioned above, it is expected that the desired goals of the Project will belargely achieved, and that the achievement process is appropriate.

Moreover, theeffects of the Project have been verified from the standpoints of the Five Evaluation
Criteria.

Accordingly, the Project will conclude in accordance with the initial plan on

May 31, 2006.
3-6 Recommendations(1) Activities during the Project Period
1) Preparation of a collection of case studies
A collection of case studies that presents actual examples in the priority model
irrigation districts and examples of regulating reservoirs in Japan should be
prepared as a material to accompany the “manual for preparing water-saving
improvement plans in irrigation schemes.”
2) Trial operation of facility information management systems
At the present time, work to input sample data is being conducted in each priority
model irrigation scheme.

Trial operation should be completed within the Project

Term with technical guidance from Japan.
3) Formulation of an activity plan
An activity plan should be formulated for diffusion of the “manual for preparing
water-saving improvement plans in irrigation schemes,” improvement of technicallevels pertaining to “facility information management methods,” and extension ofwater-saving technologies at the paddy-field level.
4) Clarification of the process for revising the manual
The procedure that must be followed when revising the manual as circumstancesdemand and the organizations to participate in this procedure should be clarified.
(2) Activities following the end of the Project1) Diffusion of the “manual for preparing water-saving improvement plans in
irrigation schemes” throughout China

Activities to diffuse the “manual” throughout China based on the activity plan(scheduled to be formulated during the Project Period) must be pursued after theend of the Project.

At the same time, work to enhance the collection of case studies

should also be continued.
2) Enhancement of “facility information management methods”
Even after the end of the Project, work to raise the technical level of personnel incharge as well as to enhance the database must be undertaken toward full-scale
operation of systems in each priority model irrigation scheme.
3) Utilization of model paddy fields
Using the model paddy fields that were established in the Shuangpai irrigation
scheme, efforts must be made to exhibit and diffuse water-saving technologies toother schemes based on the activity plan (scheduled to be formulated during the
Project Period).
3-7 Lessons learned(1) Effective selection of C/Ps
Having a full understanding of JICA’s technical cooperation projects, the Irrigation andDrainage Development Center contributed to the smooth implementation of the Project.
Particularly when there are many concerned parties—such as the Ministry of Water
Resources, the provincial water resources agencies, and priority model irrigation
schemes in this Project—having a mobile organization such as the Irrigation andDrainage Development Center to take charge of project operation makes efficient andeffective implementation possible.

Furthermore, many C/Ps were allocated to the

Irrigation and Drainage Development Center, concerned water resources agencies, andpriority model irrigation districts.

This built a framework for smooth collaboration

among the various organizations and contributed significantly to achievement of the
Project Purpose.
(2) Establishment of an organizing committee
At an early stage of the Project, a “committee for instruction and organization forwater-saving improvement in large-scale irrigation schemes” was established in the
Ministry of Water Resources to handle organization of the ““manual for preparing
water-saving improvement plans in irrigation schemes.”

Chaired by the head of the

Rural Water Use Agency, this committee was positioned as an official ministrycommittee, which allowed it to steadily pursue the work of organizing the manual withthe cooperation of concerned organizations.

The committee’s status also allowed it to

implement the Ministry of Water Resources’ policies and to quickly reflect these polices
in the manual.
(3) Revision of the PDM
Consistency among the indicators was not maintained in the Projects’ PDM.

For

example, it is more difficult to achieve the Output indicators than it is to achieve theProject Purpose indicators.

Moreover, PDM notations that pertain to facilities

management activities were unclear, which has led to differences in awareness among
Project personnel.

Because similar PDM-related problems may occur in other projects,

revisions should be made to the PDM as necessary based on agreements among project
personnel.
3-8 Follow-up situation
No comments in particular.