2000年-世界发展银行全球_Sudan___Options_for_the_Sustainable_Development_of_the_Gezira_Scheme_163页_11mb

Summary, Conclusions and Recommendations

Summary

The Gezira Scheme (GS) is a large and complex irrigation enterprise in Sudan, covering approximately 2.1 million feddans (about 880,000 hectares), making it one of the largest irrigation systems globally. Despite its size, it has become one of the least efficient, with irrigation intensity typically below 50%, and it uses about 35% of Sudan's Nile water allocation. The Scheme is a major contributor to Sudan's cotton exports, which now account for about two-thirds of the country's cotton output, though the value of cotton exports has declined relative to livestock. The GS also faces significant challenges, including a large debt burden, institutional inefficiencies, technical deficiencies, and social inequities.

Major Problems Facing the Gezira

• Large Debt Burden: The Scheme's total debt reached SD8.6 billion (US$34 million) by the end of 1998/99, far exceeding its net revenue from agricultural activities (US$46 million).
• Institutional Weaknesses:
  • Centralized administration and over-staffing of the Sudan Gezira Board (SGB) reduce efficiency.
  • Uniform five-course cropping rotation and mandatory cotton allocation limit tenant flexibility.
  • Centralized decision-making on cotton production affects tenant costs.
  • Uniform administrative charges provide no incentive for efficiency.
  • Limited involvement of water users in irrigation management results in inefficient water use.
• Infrastructure and Technical Deficiencies:
  • Irrigation infrastructure is in serious disrepair.
  • Water distribution is inefficient and wasteful, with low cost recovery.
  • Average crop yields are well below field trial potential.
• Uneconomic Production:
  • Low yields make the Scheme economically unviable for tenants.
  • Research indicates that irrigated agriculture in Sudan has a lower income multiplier than other sub-sectors.
• Social Inequities:
  • Welfare disparities exist between tenant employers and migrant employees.
  • Access to social services is unequal, creating potential tensions.

Sound Prospects for Sustainable Development

Despite these challenges, the Gezira Scheme has sound prospects for sustainable development if the following factors are addressed:

• Positive Attitudes to Institutional and Managerial Change: Stakeholders are increasingly open to private sector involvement and more flexible crop rotation choices.
• Improved Macroeconomic Situation: Sudan's inflation has declined from 150% in 1992 to about 10% in 2000, and the economy is becoming more stable and diversified.
• Encouraging Market Prospects: Gezira's Acala cotton (medium staple) still has strong market potential, and livestock markets are robust.
• Good Prospects for Economic Production: With better technology, improved irrigation management, and appropriate inputs, crop yields can be increased to provide remunerative incomes.
• Skilled Agricultural Research Staff: The Agricultural Research Corporation (ARC) has highly skilled personnel that can support agricultural technology development.
• Opportunity to Address Social Problems: A more inclusive approach to migrant labor rights can improve access to social services.

Conclusions

• The Gezira Scheme's problems can be successfully addressed through a public/private sector partnership.
• A vision for the future is proposed, where the GS becomes a center of increased economic and social activity with private sector investment in agricultural production services.
• The Scheme should transition to a decentralized management system, with the SGB focusing on major infrastructure and core support services, while the private sector takes on more responsibilities such as crop rotation decisions, water distribution, and service provision.
• A private, independent Gezira Authority operating at a profit is envisioned, collaborating with government agencies to ensure efficient and sustainable management.

Recommendations

Establishing Government Policy

• The Government should support the transition to a more efficient and sustainable model by enacting appropriate policies.
• There should be a clear framework for public-private collaboration, ensuring transparency and accountability in the management of the GS.
• Policies should encourage decentralization and flexibility in crop rotation and water use, while maintaining the integrity of the Scheme.

Major Immediate Steps

• Reduce staff redundancy in the SGB to create a core of well-trained personnel for improved management.
• Improve water distribution and recovery by involving water users more directly in the management process.
• Enhance extension services to disseminate research findings and promote improved agricultural practices.
• Promote integrated pest management (IPM) to reduce input costs and increase yields.
• Strengthen the role of the private sector in service delivery, including plowing, fertilizer sales, and water management.
• Ensure access to social services for all members of the Gezira community, especially migrant laborers.
• Revise land tenure arrangements to allow for more flexibility and formal sale of tenancies.
• Encourage formal credit systems and reduce reliance on informal "sheil" credit.
• Improve the financial sustainability of monopoly service enterprises such as ginneries and the Gezira Light Railway.
• Develop a more inclusive approach to address social inequality and promote gender equity in decision-making.

Key Information

• Gezira Scheme is one of the largest irrigation systems in the world but has become one of the least efficient.
• Debt Burden: SD8.6 billion (US$34 million) by 1998/99, with net agricultural revenue at about US$46 million.
• Infrastructure Issues: Irrigation infrastructure is in disrepair, with low cost recovery and inefficient water distribution.
• Social Inequities: Welfare disparities between tenant employers and migrant laborers, with limited access to social services for the latter.
• Market Prospects: Acala cotton has strong market potential, and livestock markets are robust.
• Economic Potential: With improved technology and management, the Scheme can become economically viable for tenants and the national economy.
• Institutional Change: A shift to a decentralized, privately managed model is recommended, with the SGB focusing on core services and infrastructure.

Main Areas of Focus

• Infrastructure: Rehabilitation of irrigation systems, roads, railways, and other facilities.
• Agricultural Technology: Enhancing research, extension, and crop protection methods.
• Economic Performance: Improving yields, cost recovery, and financial sustainability.
• Social Development: Addressing inequality, improving access to services, and promoting inclusive policies.

Annexes and Supporting Data

• Annex 1: Summary of total employees in the Sudan Gezira Board.
• Annex 2: GDP growth and inflation data for Sudan.
• Annex 3: Tables on water flow, sedimentation, and irrigation water rates.
• Annex 4: Tables on crop yields, marketing costs, and tenant accounts.
• Annex 5: Social development issues, including ethnic composition, education, and health access.

Summary of Key Findings

• The GS is a major contributor to Sudan's economy, but its performance has deteriorated over time.
• Private sector involvement is essential for improving efficiency and sustainability.
• Institutional reforms are needed to address centralization, reduce staff redundancy, and improve decision-making.
• Technical improvements in irrigation and crop management can significantly increase yields.
• Social inclusion and equitable access to services are critical for long-term stability and development.