Bolivia’s government considers irrigated agriculture as a major contributor to "better quality of life, rural and national development." After a period of social unrest caused by the privatization of water supply in Cochabamba and La Paz, the government of Evo Morales is undertaking a major institutional reform in the water resources management and particularly in the irrigation sector, aimed at: (i) including indigenous and rural communities in decision making, (ii) integrating technical and traditional knowledge on water resources management and irrigation, (iii) granting and registering water rights, (iv) increasing efficiency of irrigation infrastructure, (v) enhancing water quality, and (v) promoting necessary investment and financial sustainability in the sector. Bolivia is the first country in Latin America with a ministry dedicated exclusively to integrated water resources management: the Water Ministry.
Impacts of irrigated agriculture on rural development Bolivia is one of the poorest countries in Latin America. In 2006 the annual income per capita reached to 1,153 dollars and almost 40% of the population lived in extreme poverty. In addition, Bolivia is one of the most unequal countries in the continent with a Gini coefficient of about 0.6 and 10% of the population obtaining over 40% of the total income and indigenous and rural populations in particular suffering the effects of social and economic marginalization. Real per capita income has barely changed over the past fifty years, while increasing in 350% in Brazil, 200% in Chile and 75% in Argentina. Poverty in rural areas stands at 83 percent, compared to 54 percent urban areas, and there is an even greater gap in terms of unsatisfied basic needs (91 percent versus 39 percent). Despite recent improvements in living conditions nationwide, benefits have continued to accrue disproportionately to urban areas.
During the 2000-2004 period agriculture contributed an average of 14% to GDP and employed 40% of the population. However, in the rural area agriculture employs up to 80% of the population. In 2001, the agricultural sector generated US$432 million and 30% of national exports. According to the Irrigation Vice-Ministry, the agricultural sector in the eastern part of Bolivia generated US$2,160 million exporting soya, sunflower and sugarcane products. The agricultural sector of the western part of Bolivia is mostly focused on subsistence agriculture and local markets.
In addition, frequent government changes over the last five years and social tensions have undermined progress in poverty reduction. The Government of President Morales—Bolivia’s first indigenous President—who came into power in January 2006, has prepared a Plan Nacional de Desarrollo: Bolivia Digna, Soberana, Productiva y Democrática para Vivir Bien (PND).
Irrigation is a major component of the PND since it "plays a fundamental role in increasing agricultural production and diversification, rural employment, and food security in Bolivia" . Particularly, and according to the Water Ministry, irrigation contributes to rural development since it (i) decreases climatic risks providing water for ensure production; (ii) increases food security and supply to local and national markets; (iii) increases productivity generating export capacity and agricultural revenue; (iv) intensifies land use; (v) generates income and reduces migration; (vi) allows diversification of crops including high value cops; and (vii) generates productive investment.
Irrigation development
Irrigation infrastructure Bolivia has approximately 226,500 irrigated hectares (ha) or about 11% of the total agricultural land 2,100,000 ha. There are about 5,000 irrigation systems in Bolivia, most of them located in the South and Southwestern areas (Valles and Altiplano). These irrigation systems consist of rudimentary web of canals supplied by rainfall with few regulatory schemes such as dams, which makes them very vulnerable to seasonality of rain. Overall efficiency of irrigation systems varies from 18 to 30% in traditional systems to 35-50% in improved systems.
Irrigation systems by Department, size and area Department Micro (10ha) Small (100ha) Medium (500ha) Big (>500ha) Total Chuquisaca 1,653 11,370 4,261 3,884 21,168 Cochabamba 1,938 22,225 27,403 35,968 81,925 La Paz 1,703 21,047 6,052 7,192 35,994 Oruro 940 3,638 440 9,021 14,039 Potosí 3,240 10,146 2,254 600 16,240 Santa Cruz 269 5,456 8,434 1,080 15,239 Tarija 785 12,755 17,101 5,710 36,351 Total 10,528 86,638 65,944 63,454 226,564 Source: Ministerio del Agua
Linkages with water resources
Irrigation accounts for 94% of water withdrawals or about 2,000 million cubic meters annually. Bolivia can be divided into three areas, which correspond to the eastern area (a tropical and subtropical region), the western area (the arid, semi arid and sub-humid dry region), and the Titicaca basin. The hydrographic system consists of three large basins: the Amazon Basin which measures approximately 724,000 km2 and covers 66% of Bolivia’s territory; the closed (endorheic) basin, which measures 145,081 km2 or 13% of the territory; and the Rio Plata Basin, which covers 229,500 km2 or 21% of the nation’s territory. The Amazon basin has a high flow of water and it is prone to floods. The quantity and quality of hydrological information is very poor.
Environmental impacts of irrigation The main impacts of irrigated agriculture in Bolivia are soil erosion and pollution due to agricultural runoff. Nearly 41% of Bolivia’s national territory has lost its production capacity due to soil erosion. For example, in western regions of Oruro, Potosí and Tarija, close to 45,000 square kilometers have low soil productivity on account of erosion. The highland minifundios accelerate soil degradation processes. In the northern highlands, the production area of family agricultural production units is three to five hectares. Excess grazing and other agricultural activities have contributed to salinization and soil compression.
Agricultural runoff is one of the main contributors to water pollution in Bolivia, together with domestic municipal wastewater and dumping by industries and mines. The greatest percentage of the pollution load is due to diffuse dumping from agricultural and fishing activities and runoffs of urban areas. There are no regulations or controls over major dumping from non-specific sources, despite its volume and toxicity.
History of the irrigation sector
Agricultural land past and present trends
The Spanish colonists, soon after their arrival in the central Andes in the 16th century, appropriated the best farmlands on the coasts and valleys and pushed the indigenous population to the more inhospitable highlands. The highlands had been grazing grounds for llamas and alpacas, but had not been used for agriculture because of their low productivity and high climatic risks. Under the new circumstances, the highlands became the center of Bolivia’s subsistence agriculture.
Traditionally Bolivia has been dependent on the mining sector as a source of fiscal revenue and foreign exchange, and directed few resources towards the agricultural sector. Following the 1985 economic reform, the government of Paz Estenssoro aimed at moving towards a distortion-free market economy that would attract private investment to the agricultural sector. The World Bank considers that some of the reforms undertaken at that time were ill-informed, especially “the lack of constructive governmental intervention to provide needed public goods such as land titling, agricultural research and extension, and irrigation infrastructure.” As a result, the agricultural sector has lacked the underpinnings in both human and physical capital that facilitate development. The absence of new production and irrigation technologies left farmers with limited opportunities to raise their productivity and income discouraging investment. In 1999 the total area equipped for irrigation added up to 128,240ha. The irrigated area has almost doubled since. More than 50% of the irrigated area is concentrated in the provinces of Cochabamba and La Paz in the center of the country.
Institutional development During the 1990s, water management was characterized by a sectoral approach with multitude of actors and legal approaches and overlapping of responsibilities. The Ministry of Rural Affairs and Indigenous People, the National Water Authority at the time, together with the Inter-Institutional Committee, the National Office for Irrigation and Drainage, and the National Secretary for Rural Development contributed to the mosaic of institutions in charge of water resources management for irrigation at the national level.
In 1998, the government approved a Resolution establishing the Water Intendancy as the authority for granting water user rights. In 1999, two major concessions for water and sanitation were granted to the private sector in La Paz and Cochabamba. The increase of water tariffs and the consequent limitation of access to water were followed with social upraising in 2000. After what is known as the "Water War," water user associations, national and municipal government, NGOs and international research organizations engaged on intense negotiations aimed at redefining public water policies. This process is known by the Project for Water Rights (Proyecto Derechos de Agua – PDA). Irrigation organizations worked with PDA in creating a national irrigation strategy combining both traditional irrigation practices with technical and scientific knowledge. This participatory process informed the 2004 Irrigation Law No.2878 among others.
Evo Morales administration is currently reforming the water institutional framework attributing competences to the newly created Environment and Water Resources Ministry as well as to municipalities and departments accordingly to the Decentralization Law No. 1654, and water users associations. The National Irrigation Plan has included as a challenge the still overlapping responsibilities of different institutions at the national and local level. (See institutional framework below)
Legal and institutional framework
Legal framework The 2004 Irrigation Law No. 2878 aims at managing irrigation water resources through a decentralized institutional framework as well as securing water user rights through registration. The Irrigation Law 2878 also transfers operation and maintenance of irrigation infrastructure to local farmers and establish participatory mechanisms to promote investment on irrigation systems. The previous law dated from 1906 and was considered obsolete. through
The Irrigation Law specifically prohibits the transferring of water rights, hence the creation of water markets, and gives priority to collective users rights over individual users. Users are granted water rights through registries or authorizations. Registries are granted to the indigenous and local families or communities and are aimed at securing water access for domestic or traditional agriculture use respectively. Authorizations are granted to other farmer organizations for agricultural or agro-forestry use for a maximum of 40 years.
The Irrigation Law recognizes the Water Ministry, previous Ministry for Agriculture and Campesino Issues, as the national water authority and created the National Irrigation Service (Servicio Nacional de Riego – SENARI) and the Local Irrigation Service (Servicio Departamental de Riego – SEDERI).
Institutional framework