MUDA AGRICULTURAL DEVELOPMENT AUTHORITY (MADA)
          STATE OF KEDAH , MALAYSIA

          FINAL TECHNICAL REPORT

          MARCH 2004

          Prepared for

         Mr. Theirry Facon
         Water Management Officer
         FAO Regional Office for Asia and the Pacific
         39, Phra Athit Road
         Bangkok (10200) Thailand

         By

         Director,
         Division of Irrigation and Agricultural Drainage
         Department of Irrigation and Drainage Malaysia
         Jalan Sultan Salahuddin
         50770 KUALA LUMPUR




         ACKNOWLEDGEMENTS

         This training workshop was conducted with close cooperation from the Department of Irrigation and Drainage Malaysia (DID) in particular the Division of Irrigation and Agricultural Drainage and Food and Agricultural Organization (FAO). Funds for this workshop were provided through the Food and Agricultural Organization (FAO) Regional Office for Asia and the Pacific. The invaluable assistance provided by the following individuals for facilitating the organization of the training workshop was greatly appreciated:

         - Ir. Hj. Daud bin Mohd Lep, Senior Assistant Director, Division of Irrigation and Agricultural Drainage,
           DID Malaysia.
         - Kapt. Ir. Anuar bin Yahya, Director of Productivity and Quality, DID Malaysia.
         - Ms. Azaitulnora binti Shamsudin, Engineer, Division of Irrigation and Agricultural Drainage, DID Malaysia.

The Division of Irrigation and Agricultural Drainage, would also like to thank the following individuals for their
support and coordination of the training workshop:

         - Ir. Hj. Keizrul bin Abdullah, Director General, Department of Irrigation and Drainage Malaysia.
         - Ir. Azhari bin Ghazalli, Director of Irrigation and Agricultural Drainage, Department of Irrigation and
           Drainage Malaysia. 
         - Mr. Thierry Facon, Water Management Officer, FAO, Bangkok, Thailand.


         1.0 INTRODUCTION

         The Department of Irrigation and Drainage Malaysia has requested FAO Regional Office of Asia Pacific to
provide technical assistance and guidance in the activities of Rapid Appraisal Process to be held in this country.
This technical completion report is a summary document for the Training Workshop On Irrigation Modernization, Management Improvement , and Benchmarking conducted in cooperation with the Department of Irrigation and
Drainage Malaysia and Food and Agricultural Organization (FAO) Regional Office for Asia and the Pacific.
The training workshop was conducted by Mr. Thierry Facon, Water Management Officer of FAO-Thailand.


          1.1 BACKGROUND

          Two meetings were held to introduce the concept of benchmarking and to disseminate as much information on the subject which were held in Genting Highlands and Langkawi, Kedah. Following which, two DID officers were offered to undergo a Rapid Appraisal Process which was held in Indonesia from 1st to 10th September 2003 to be trained as RAP facilitators for the country. A letter of Agreement was signed on the 21st December 2003 between Department of Irrigation and Drainage Malaysia as a recipient organization and The Food and Agricultural Organization of the United Nations as a donor organization for the contribution of US$25,000.00. It was therefore agreed that FAO would if possible assist DID in organizing this training program.
As part of this agreement, DID will prepare a FINAL progress report.

          1.2 OBJECTIVES

          The objective of this training program is to provide a systematic examination of the hardware and the processes involved
in conveying and distribution of water at all levels within the MUDA Agricultural Development Authority. External and internal indicators are developed to provide baseline information for comparison against future performance after modernization, benchmarking comparisons and making specific recommendations for modernization and improvement of the delivery service.

Each participant of the training workshop is expected to:

          - Understand the principles and processes of benchmarking and the Rapid Appraisal Process ( RAP).

          - Understand the concepts and technical details of irrigation project modernization.

          - Learn how to properly evaluate an irrigation project, using a systematic diagnostic procedure that includes both visits to the Main Office to interview project staff and fieldwork evaluating items such as control structures, operational strategies, communications , and water delivery service.

          - Analyze the collected data , both manually and using computers , and arrive at Benchmarking and Rapid Appraisal indicators.

          - Interpret the Benchmark and Rapid Appraisal indicators in terms of the level of water delivery service, including the strengths and weaknesses in the service provided, and to identify best practices

          - Learn how to make specific recommendations and to established priorities for modernization that will result in improved project performance. Performance can be measured by both external indicators ( such as efficiency of water usage and finances) and internal indicators ( such as improved water delivery service to fields.

           
         1.3 TRAINING MATERIALS

          The training materials and conceptual framework used in the workshop, including the Rapid Appraisal Process
(RAP) and Benchmarking tools were developed by Dr. Charles Burt. Presentation materials presented by Mr. Thierry Facon from previous training workshop in Indonesia have been used in this workshop.

Each workshop participant received a manual with all the training materials, including the technical documentation,
Powerpoint® presentations and RAP worksheets . The training materials provided to each participant include:

         1. Rapid Appraisal Process (RAP) and Benchmarking - Explanation and Tools by Dr. Charles M. Burt, Irrigation
             Training and Research Center , California Polytechnic State University.
         2. Paper and electronic copies of the blank RAP worksheets (Excel® spreadsheets) and a completed example.
         3. Powerpoint® presentations and handouts: Among topics covered by Mr. Thierry Facon includes:
                        - Introduction and overview of training workshop
                        - Vocabulary of canal modernization
                        - Evolution of modern irrigation systems
                        - Multiple roles of irrigation system
                        - Irrigation project modernization
                        - The concept of service: equity, reliability and flexibility
                        - Technical terms related to modernization of irrigation systems, hydraulic principles, basic irrigation and
                           drainage structures and structures of hydraulic
                                  * Upstream control (Part 1) - General ideas and water level
                                  * Upstream control (Part 2) -Cross regulation structures
                                  * Upstream control (Part 3) - Flow rate control and measurement in canals
                                  * Upstream control (Part 4) - Turnouts, reservoirs and communications
                                  * Introduction to downstream control
                        - PIM/IMT: International experience
                        - Water balance
                        - Explanation of RAP worksheets
                        - MADA Scheme external indicators
                        - Making modernization plans
         4. Compact Disk (CD) containing all training materials , group presentations of RAP worksheets and modernization
             plan and recommendations, photographs of training workshops.

         1.4 WORKSHOP PROGRAM AND DETAILED SCHEDULE

          The training workshop was held at Hotel Sri Malaysia, Alor Star, Kedah from 27th February 2004 to 3rd March 2004
and in Grand Continental Hotel, Langkawi, Kedah from 4th March to 7th March 2004. The training course covered within 10
days period. A detailed schedule of the training workshop is summarized below:

SERI MALAYSIA HOTEL , ALOR SETAR, KEDAH

FRIDAY, 27 FEB 2004
Travel to Alor Setar, Kedah
         3.00 pm        Check in Hotel Seri Malaysia
         4.00 pm        Registration
         7.30 pm        Dinner

SATURDAY, 28 FEB 2004
         7.00 am        Breakfast
         8.00 am        Arrival of guests
         8.30 am        Opening Ceremony
                                 - Recitation
                                 - Introductory by representative of FAO Regional Office Asia Pacific
                                 - Opening Address by Director General of DID Malaysia
         9.00 am         Introduction to participants
         9.30 am         Introduction and overview of training workshop
       10.30 am         Tea Break
       11.00 am         Vocabulary of Modernization
       12.00 am         Evolution of Modern Irrigation systems
         1.00 pm         Lunch
         2.30 pm         Multiple roles of irrigation systems
         3.30 pm         Irrigation Project Modernization ( Introduction )
         4.30 pm         Irrigation Project Modernization ( continuation )
         5.30 pm         Coffee Break
         7.30 pm         Dinner
         2.30 pm         Multiple roles of irrigation systems
         3.30 pm         Irrigation Project Modernization ( Introduction )
         4.30 pm         Irrigation Project Modernization ( continuation )
         5.30 pm         Coffee Break
         7.30 pm         Dinner

SUNDAY , 29 FEB 2004
         7.00 am         Breakfast
         8.30 am         The Concept of service
                                    - Equity, reliability and flexibility
        10.30 am        Tea Break
        11.00 am        Technical terms
                                    - Modernization of irrigation systems
                                    - Hydraulic principles
                                    - Basic irrigation and drainage structures
                                    - Structures of hydraulic infrastructure
          1.00 pm        Lunch
          2.30 pm        PIM/IMT : International experience
          4.30 pm       Water Balance
          5.30 pm       Coffee Break
          7.30 pm       Dinner
          8.30 pm       Detailed review of RAP worksheets
                             Interview with MADA officer
                             Discussion of fieldwork activities

MONDAY, 1 MARCH 2004
          7.30 am       Breakfast
          8.30 am       Travel to MADA Headquarters
          9.15 am       Briefing by MADA Management
        10.30 am       Field work activities: Split into 3 groups
                                    - Track down main canals and stop at main structures ( inspection ) and interview operators
          7.30 pm       Dinner
          8.30 pm       Results of external indicators
          9.30 pm       Review of RAP field work activities

TUESDAY, 2 MARCH 2004
          7.30 am       Breakfast
          9.00 am       Split into 3 groups: Each Group travel to specific Meeting Place - Discussion and Interview farmers
                                     - Track down secondary canals and stop at structures (inspection) and interview operators.
                                     - Visit tertiary canals and interview farmers
          7.30 am       Dinner
          8.30 pm       RAP field work activities

WEDNESDAY, 3 MARCH 2004
          7.30 am       Breakfast
          8.30 am       Data entry by each group
        10.30 am       Tea Break
        12.00 pm       Check out from Hotel
        12.30 pm       Lunch
          2.00 pm       Travel to Langkawi Island

GRAND CONTINENTAL, LANGKAWI ISLAND

THURSDAY, 4 MARCH 2004 ( SOCIAL TOUR)
          7.30 am       Breakfast
          1.00 pm       Lunch
          8.00 pm       Dinner

FRIDAY, 5 MARCH 2004
          7.30 am       Breakfast
          8.30 am       Data entry & complete RAP worksheets
        10.30 am       Tea Break
        11.00 am       Data entry and complete RAP worksheets
        12.30 am       Lunch
          1.00 pm       Friday Prayer
          3.00 pm       Group presentations of internal indicators
          7.30 pm       Dinner

SATURDAY, 6 MARCH 2004
          7.30 am       Breakfast
          8.30 am       Technical terms
          9.00 am       Modernization plan
                                       - Developing a modernization plan
                                       - Typical actions taken for modernization
         10.30 am      Tea Break
         11.00 am      Start the modernization plan by each group
                                       - Short - term recommendations
                                       - Long  - term recommendations
           1.00 pm      Lunch
           2.30 pm      Modernization plan activities
           4.30 pm      Tea Break
           7.30 pm      Dinner
           8.30 pm      Modernization plan activities

SUNDAY, 7 MARCH 2004
           7.30 am      Breakfast
           8.30 am      Presentation of modernization plan from each group
         10.30 am      Tea Break
         11.00 am      Discussion of modernization recommendations
         11.30 pm      Final recommendations for modernization
         12.00 pm      Closing ceremony and distribution of certificates
         12.30 pm      End of training workshop
           1.00 pm      Lunch
           2.00 pm      Check out Hotel

          
          2.0 KEY MODERNIZATION CONCEPTS

The key concepts of modernization that were presented in the training workshop can be briefly defined as follows:

Rapid Appraisal Process (RAP) is a process that allows qualified personnel to systematically and quickly determine
key indicators of irrigation projects. The RAP can be generally be completed within two weeks or less of field and office
work- assuming that some readily available data on the project have been organized by project authorities in advance
of the RAP.

Key performance indicators from the RAP help to organize perceptions and facts, thereby facilitating informed
decisions regarding:
         - The potential for water conservation within a project.
         - Specific weakness in project operation, management, hardware and resources.
         - Specific modernization actions that can be taken to improve project performance.

A parallel activity to the RAP is called Benchmarking. As defined in primary IPTRID (International Program for Technology and Research in Irrigation and Drainage) documents, benchmarking is a systematic process for securing continual improvement through comparison with relevant and achievable internal or external norms and standards. The overall aim of benchmarking is to improve the performance of the organization, as measured against its mission and objectives. Benchmarking implies comparison - either internally with previous performance and desired future targets, or externally against similar organizations, or organizations performing similar functions. Benchmarking is in use in both the public and private sectors.

Benchmarking incorporates various indicators, many of which are developed from the RAP. Both the RAP and the Benchmarking Technical Indicators (BMTI) are still evolving, so the indicators found in this RAP document will not always be identical to those in IPTRID documents. Tables 2 and 3, discussed later in this report, show the results of the Muda Irrigation Scheme using IPTRID indicators.

The RAP of irrigation projects was introduced in a joint FAO/IPTRID/World Bank publication entitled Water Report 19 (FAO) - Modern Water Control and Management Practices in Irrigation -Impact on performance (Burt and Styles, 1999). That publication provides an explanation of the RAP procedures and also provides detailed RAP results from 16 international irrigation projects. The results of the external and internal indicators from the MUDA irrigation scheme were compared to the results from the Water Report 19 (see attachment).

External indicators for irrigation projects are expression of various forms of efficiency, whether the efficiency is related to budgets, water or crop yields. These expressions are ratios or percentages that generally have forms such as:

                                      Water Required
                                      ------------------------
                                  Total water Available
or
                                        Crop yield
                                     ------------------------
                        Irrigation Water Delivered to the Fields


External indicators provide a general analysis of a project's performance, and can be derived quickly because they only required knowledge of the project's inputs and outputs. The BMTI indicators fall into the category of " external indicators" and the RAP also generates a long list of external indicators.

By themselves, external indicators do not provide any insight into what must be done to improve performance or efficiency. The identification of what actions must be taken to improve these external indicators comes from an examination of internal indicators, which examine the processes and hardware used within the project.

Broad goals of modernization are to achieve improved irrigation efficiency ( an external indicator), better crop yields (another external indicator), less canal damage from uncontrolled water levels, more efficient labor, improved social harmony, and an improved environment by reducing a project's diversions or increasing the quality of its return flows. In general , these goals can only be achieved by paying attention to internal details, or the internal indicators. The RAP addresses these specific internal details to evaluate how to improve water control through out the project, and how to improve the water delivery service to the users.

When one analyzes a project by levels (office, main canal, second level canal, third level canal, distributaries, field) a huge project can be understood in simple terms. The operators of the main canal only have one objective - everything they do should be done to provide good water delivery service to their customers, the second level canals ( and perhaps a few direct turnouts from the main canal). This "service concept" must be understood and accepted by everyone, from the chief engineer to the lowest operator. Once it is accepted, then the system management becomes very simple. Personnel on each level are only responsible for that level's performance.

Main canal operators do not need to understand the details of that day's flow rate requirements for all the individual fields. Of course, in order to subscribe to the service concept, operators generally need to know that their ultimate customer is the farmer. But the details of day-to-day flow rates do not need to be known at all levels.

Rather, the main canal operators have one task to accomplish - to deliver flow rates at specific turnouts (off takes) with a high degree of service. Water delivery service is described in the RAP with three indices:
                          a. Flexibility, composed of frequency, flow rate and duration
                          b. Reliability
                          c. Equity

For very simple field irrigation techniques, reliability and equity are crucial. Without good reliability and equity, there are generally social problems such as vandalism and non-payment of water fees. Reliability and equity, then, are cornerstones of projects that have good social order.

When properly executed by trained evaluators, the RAP approach can be quickly provide valuable insight into many aspects of irrigation performance including project design, engineering, operations and management. Furthermore, the organization and content of the RAP provides a systematic project review that enables an evaluator to provide pragmatic recommendations related to hardware and management for the improvement of water delivery service.

      
          3.0 RAPID APPRAISAL PROCESS (RAP) OF BLOCK D1, D2, D3 AND D4 OF MUDA
                 IRRIGATION SCHEME

The RAP and Benchmarking exercises were performed by the workshop participants for Block D1, D2, D3 and D4 of the Muda Irrigation Scheme of which Block D1 and D2 is located in the Northern Portion , Block D3 in the Central Portion and D4 in the South Portion of the MUDA Irrigation Scheme. (Refer to Figure 3). The participants were divided into three (3) groups and assigned to different areas. Group 1 was assigned to conduct RAP exercises in Block D1 &D2, Group 2 in Block D2 and Group 3 in Block D4.

The participants were beforehand given lecture presentations for two days to introduce the various concepts of technical terms and explanations of RAP procedures and worksheets. To put these ideas into practice and become familiar with evaluation techniques, the group participants spent two days doing fieldwork activities in the MUDA Irrigation Scheme. The participants conducted formal interviews with operation management, canal operators, gate operators and individual farmers. They followed the systematic diagnostic techniques contained in the RAP worksheets at different levels of the canal system namely main, secondary , lateral canals and the final delivery points.

        3.1 PROJECT DESCRIPTION

MUDA IRRIGATION SCHEME

A. General Condition
The Muda Irrigation Scheme covers a total gross area of 126,000 ha of which 97,000 ha are under the cultivation of padi. It is the largest rice double cropping are in Malaysia. The area is located at about 5o 45' - 6o 30'N latitude and 100o 10' - 100o 30' E longitude in the vast flat alluvial Kedah - Perlis Plain about 20km wide and 65km long between the foothills of the Central Range and the Straits of Malacca. The area is generally flat with slopes of 1 in 5000 to 1 in 10,000 ranging from 4.5 m in elevation in the inland fringe to 1.5m in elevation in the coastal area. Figure 1 shows the location of Muda Irrigation Scheme in the State of Kedah.

B. Climate
The major part of Peninsular Malaysia is characterized by a tropical rainforest climate. However, only the Muda area and its periphery where there is a pronounced dry season are under the tropical monsoon climate as the areas are shielded from the rain-bearing winds of the Northeast monsoon and the Southwest monsoon by the Central Range and Sumatra ,respectively. The bulk of the rainfall in the area is brought by the inter monsoon rains. The average monthly rainfall shows two maxims: a higher maximum in September - October, of about 300mm and a lower maximum in May , of about 250 mm. December - March are the dry months with an average monthly rainfall of less than 100mm. The annual rainfall characteristics enable to identify three seasons, namely the dry season from December to March, the moderate season from April to July and the wet season from August to November.

Table 1: General Data of MUDA Irrigation Scheme

An irrigation block is a rectangular -shaped area of 200 to 810 ha irrigated by a secondary canal. There are 110 irrigation blocks in the Muda area. To every irrigation block a LO is assigned for the operation of the secondary system. A few LOs are supervised by an IO, and several IOs are under the supervision of an II.

In the tertiary development area, an irrigation block is divided into 6 to 10 irrigation service areas. (ISAs). An ISA covers an area of 80 to 200 ha which is irrigated by a tertiary system, and is divided farther into 5 to 6 irrigation service units. An ISU covering 15 - 25 ha is the minimum unit for irrigation schedule.

Irrigation facilities up to the secondary system including the tertiary offtake are maintained by MADA. However, the management of the tertiary system except for the tertiary offtake is generally entrusted to the farmers. Therefore, in implementing the tertiary development, the farmers have the duty to organize their committee for the operation and maintenance of the system. An ISU Committee is established in each ISU. In each ISA, an ISA Committee is organized by the leaders of the ISU Committees. An Irrigation Block Committee consists of all the leaders of ISA Committees in the Block. However, since the performance of these committees is very limited in the tertiary development areas, the usefulness of the tertiary system has not been clearly demonstrated yet.

Figure 3: Project Study Area ( MADA )

During the training workshop, all the 3 groups had come out with their modernization recommendation base on short-term and
long-term plans.

Here are summarized and selected short-term plan for RM 30 million and long-term plan for RM 500 million:

SHORT-TERM PLAN
       - Review operating procedures
       -Training of operating staff
       - Study viability of constructing regulating reservoir
       - Reschedule supervision to all main canal inclusive of regulating structures
       - Scheduling of preventive or corrective maintenance for infrastructure
       - Provision of mobile communication
       - Training of operating staff
       - Scheduling & implementation of preventive & corrective maintenance for infrastructures
       - Pilot study of flow rates measurements
       - Construction of quaternary earth canal
       - Supply of portable pump
       - Identify & formation of WUG to follow physical irrigation boundary

LONG-TERM PLAN
       - Automation of cross regulator inclusive of flow rate measurement
       - Construction of regulating reservoir for main canal system
       - Rehabilitation and upgrading of structures
       - Replacement of field turnout with flow rate device
       - Land leveling
       - Construction of tertiary canal
       - Continue formation of WUG including training and handling over O&M at tertiary level inclusive budget

Base on these recommendation, it hopes to contribute in improving the irrigation performance for all of the granary areas in the modernization program.


         3.4 IPTRID BENCHMARKING VALUES & INDICATOR RESULTS

A. IPTRID Benchmarking Values
Data were collected for the period of 2001, 2002 and 2003 for the MADA project. The data were input into the worksheet excel sheets of the RAP. The following were the results of the data that was collected for the project. The values are summarized as in Table 2.

Table 2: IPTRID Benchmarking Values

The results of the benchmarking technical indicators are summarized in Table 3. The values in Table 3 reflect an overall
assessment of Block 1, 2, 3 and 4 of MADA project.

Table 3: IPTRID Indicators for the MADA Project

The training workshop was a valuable opportunity for the participants to transform their usual understanding of irrigation operations into one that is based on service-oriented approach. From the results of Rapid Appraisal Process (RAP) worksheets, the participants will be able to identify key performance indicators of specific weakness within the project area involving the operation, management, resources and hardware of the irrigation scheme.

With such a training , the participants are taught to identify specific and immediate and long term plans for modernization program to improve the project performance particularly the operation and water management of the project area.

         4.1 CHALLENGES AHEAD

This is the first time training of Rapid Appraisal Process has been carried out in Malaysia. The training workshop provides the opportunity for the participates to evaluate the performance of MADA project, the major granary area in Malaysia. There are another seven granary areas, notably, Kerian Sungai Manik, Seberang Perak, IADP Pulau Pinang, Kemasin Semerak, Barat Laut Selangor, KETARA and KADA granary areas. With this sort of training, other granary areas can also be evaluated using the RAP training materials. This will help to develop future strategic modernization plans for other irrigation schemes either for short or long terms plans.

          4.2 COURSE EVALUATION BY THE PARTICIPANTS

At the end of the course, a general evaluation has been carried out . The results of the evaluation is tabulated in Table 4 below according to the general format that was distributed to the participants.

Table 4: Course Ratings by the Participants

                 o Strength of the workshop    : co-operation among group members help to improve knowledge in irrigation.
                                                              Good exposure to new engineers.
                 o Weakness of the workshop : less guidance from the facilitator; in adequate reference data and lack of
                                                              experienced staff in a group.
                 o Short comings                   : Primary data at project office not available Not enough computers and poor
                                                              management of transportation.