Aide Me Moire - Final Evaluation VIE 00013006

8/6/2019 Aide Me Moire - Final Evaluation VIE 00013006

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AIDE-MEMOIREFINAL EVALUATION OF THEINTERVENTION

INCREASE THE AGRICULTURALPRODUCTION THRUOGH THEIMPROVEMENT OF THE IRRIGATIONSYSTEMS IN PHU MY DISTRICT OF BINH

DINH PROVINCE


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DINH PROVINCE


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TABLE OF CONTENTS

1 CONTEXT OF THE FINAL EVALUATION (FE) ................................................................................. 5

1.1 OBJECTIVESOFTHE FINALEVALUATION..................................................................................... 5

1.2 METHODOLOGYOFTHE FINALEVALUATION................................................................................. 5

1.3 COMPOSITIONOFTHE FINALEVALUATION-TEAM........................................................................... 6

1.4 INTERVENTIONAREAANDBENEFICIARIESVISITED........................................................................... 6

2 MAIN FINDINGS & TEMPORARY CONCLUSIONS ........................................................................... 7

2.1 BASICCRITERIA.................................................................................................................... 7

2.1.1 Objective Level.......................................................................................................................... 7

2.1.1.1 Impact.................................................................................................................................... 7

2.1.1.2 Coherence .............................................................................................................................. 8

2.1.1.3 Sustainability .......................................................................................................................... 8

2.1.2 Immediate Results 1 and 2 .................................................................................................... 9

2.1.3 Immediate Results 3 and 4: .................................................................................................... 10

2.1.3.1 Result 4: Irrigation Management Strengthened .................................................................... 10

2 1 3 2 Result 4: Agriculture Technology Improved 12


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3.3 ATTHELEVELOFTHE PROJECT STEERING COMMITTEE............................................................... 24

3.4 ATTHELEVELOF BTC REPRESENTATION................................................................................ 24

3.5 ATTHELEVELOF BTC-HQS............................................................................................... 24

4 FOLLOW-UP OF RECOMMENDATIONS ......................................................................................... 26

4.1 RECOMMENDATIONSOFTHE FINAL EVALUATION ........................................................................ 26

4.1.1 For Stakeholders ..................................................................................................................... 26

4.1.2 For PSC/BT/Donor .................................................................................................................. 26

4.1.3 For Future Investments ........................................................................................................... 27

5 CONCLUSIONS ................................................................................................................................ 29

5.1 MAINPRELIMINARYFINDINGSONTHEASSESSMENTCRITERIA......................................................... 29

5.2 PRELIMINARYRECOMMENDATIONS........................................................................................... 30

6 ANNEXES ......................................................................................................................................... 32

6.1 LISTOF PEOPLE MET......................................................................................................... 32

6.2 PERFORMANCE INDICATOR ACHIEVEMENT................................................................................ 36

6 2 1 Cay Sung Irrigation Systems 36


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1 Context of the Final evaluation (FE)

1.1 Objectives of the Final evaluation

The Final Evaluation (FE) seeks to ascertain the impact of the Project throughcomparison of pre-project situation with the post project situation whilst attempting toneutralise the effects of external factors and trends.

The (FE) will define the change from the baseline and then assess these changes interms of their relevance, effectiveness, efficiency, sustainability with respect to the statedProject objectives and the indicators agreed to measure project performance.

The final evaluation uses these assessments to prepare lessons learned for all

stakeholders to assist with the future planning and implementation of similar projects andspecifically for the ongoing project VIE0703511 for the rehabilitation of the Hoc manReservoir in the same district.

The evaluation is required to answer the following questions:1. Is the rehabilitation and construction of dams, as presently planned, designed

and built in Viet Nam, the best strategy in terms of water management?2. What are the pros cons with respect to the local economy, social and the

environmental aspects?

3 What lessons can Belgium Technical Cooperation (BTC) and the Vietnamese


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Once data was assembled and structured the team provided an initial assessment of theProject by result area and objectives that was presented to a stakeholder workshophosted by the PMU in Phu My. The workshop sought feedback and to identify lessonslearned with respect to (i) project activities and their impacts, (ii) stakeholder perception ofweaknesses, (iii) stakeholder perception into the scope of the Project, and (iv)stakeholder risk assessment of agriculture and irrigation systems. The findings of theworkshop were used to modify the ratings against evaluation criteria.

The revised ratings are presented in this Aide Memoire that is presented to the Provincialand District officials and also to BTC and national stakeholders. Feedback on the aidememoire will be incorporated into the final evaluation report.

1.3 Composition of the Final evaluation-team

The final evaluation team is composed of two consultants contracted separately. TheNational consultant Dr Nguyen Ha an engineer from Hanoi is contracted directly by BTC.

The international Consultant Mr Lindsay Saunders is supplied under contract to FraserThomas Limited from New Zealand. Mr Saunders is trained in agriculture, agricultureeconomics and natural resource economics with extensive experience in ruraldevelopment, irrigation and water resources management programs in Asia. Mr Saundersas team Leader has responsibility for assembling the aide memoire and final reportincorporating the outputs of Dr Ha.

1 4 I t ti d b fi i i i it d


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2 Main findings & temporary conclusions

2.1 Basic criteria

2.1.1 Objective Level

2.1.1.1 Impact

The indicators for the general and specific objectives presented in the Technical andFinancial File (TFF) were not well formulated and lack quantified time-bound targets forincreases to household income and household agricultural production. The projectcontribution to both the general and specific objective as stated has been significant withthe contribution from irrigated crops to household incomes estimated to be an increase of

48% in Cay Sung and 112% in Doi Son1

.

Table 1: Estimates of Impact on Agricultural Output and HouseholdIncomes

Before After Change Before After Change

Command Area (ha) 168 238 70 240 269 29

Total Annual Cropped (ha) 220 380 160 342 621 279

Cropping Intensity (%) 131% 160% 29% 143% 231% 88%

Total Output (rice Equivalent) mt/yr 1254 2233 979 1692 3348 1656

2322 2 3 2 36 9 0

Dai Son (forecast)Cay Sung (actual)


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Feasibility studies reported expected income streams from fisheries from Dai Son inexcess of VND 15 billion. It is currently too early to assess these but the initial 2011tender of fishing rights realized approximately VND 50-70 million.

2.1.1.2 Coherence

Project coherence is rated high in terms of the National Ministry of Agriculture andDevelopment (MARD) Rural development Strategy we seeks improved rural economicgrowth and reduced rural poverty. The Central Government policy for Irrigation SchemeRehabilitation is consistent with the Projects rehabilitation of small scale irrigationinfrastructure. Viet Nam has allocated significant investment to irrigation schemes tocapture the full command area and increase cropping intensity to which the Project waswell aligned.

The formulation was consistent with other irrigation initiatives of the same period withstrong technical input to hard investment during Project identification. The identificationprocess rightly identified the requirement for development of soft systems in terms ofirrigation management capacity, water user capacity and water use management, and forcrop diversification that supports higher value outputs per unit of water use. Theidentification report recommendations for soft systems development were consistent withthe emergence of institutional arrangements and weak capacity as major constraints thatlimited benefits generated from irrigation infrastructure investment.

Formulation included soft sector activities but the design did not do so effectively due toi d t b k d t d bl l i d l k f h t


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changing practices, and new technologies as such is rated very likely.

Social sustainability is assessed in terms of human resource and social capital. Humanresource capacity is rated as very sustainable reflecting the excellence of the trainingprograms and the institutionalization of training and trainers at all levels.

Social capital through the formation of irrigation management teams, and increasedparticipation at the community level is rated as being less sustainable. The rating reflectsthe lack of institutionalization of Participatory Irrigation Management (PIM), the delays inDai Son construction resulting in only limited support during the current irrigation season.

Ecological/Environmental sustainability is rated in terms of water supply to thereservoirs and the neutrality of ecological and environmental impacts arising from theirrigation systems. The testing and estimation of available water supply was completedduring the design stage indicating annual run off levels more than double requirements.There was no inclusion of expected changes due to changing climatic conditions, no data

on drought events and their frequency and impact on the water supplies. Based onavailable data the water supply is rated as sustainable for an average year.

Environmental impacts are both positive and negative. On the positive side there is asignificantly reduced risk from dam failures and increased ability to control flood waters,reduced pumping from shallow aquifers during dry periods or for supplementing thesummer crop irrigation.

Negative impacts relate to the potential contamination of groundwater from intensification

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The canal construction and planning for both schemes was highly relevant but not soeffective with only a part of the canal systems rehabilitated. Upgrading of canals wereconsidered piece-meal, without prior survey data as surveys were completed for only theselected segments.

Some Cay Sung canals discharge into open flood zones or dams with other segmentspicking water up at the outlet. Given the objective of canal lining is to reduce leakage theresultant system is inconsistent. However the canal system does enable the capture ofsurface water from a range of sources providing increased irrigation opportunity.

Some canal elevations were raised creating flooding risks for existing houses.

The canal program was cost efficient to farmers providing paid labor for constructionworks. The canal program is rated as likely to be sustainable reflecting the farmerownership of works and the service fees collected for financing their operation andmanagement.

Table 1: Initial Evaluation Ratings

Criteria Cay Sung Dai SonA: Planning and design

Relevance Moderate to high LimitedEffectiveness Very IneffectiveEfficiency Very LowSustainability Likely Unlikely

B R i P


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The program was very relevant given that the base line survey found commune leadersalmost totally unaware of the roles, responsibilities and rules. All respondents reported noknowledge of documented reports on these roles or irrigation regulations. Regulations doexist but communication has been ineffective.The effectiveness of the Project role clarification is rated as limited with 28% of baselinerespondents remaining unaware of the roles and regulations in 2010. The efficacy of theprogram is considered fair given the scope of work undertaken. The program has limitedsustainability at the irrigation system level despite the formation of an irrigationmanagement team at each commune funded by the service charges and centralgovernment subsidy. Service fees collected remain remarkably low with My Hiepcollecting less than USD1,000 in 20093 and USD 5,900 for My Loc.

The fees represent a cost to the farmer of less than 0.1 percent of irrigated crop revenuefor My Hiep and 1 percent for Cay Sung.

The evaluation team is unaware of new rules being established. The relevance of rules

and regulations is rated as low with no enforcement of existing regulations. Withoutenforcement, the effectiveness and efficiency of rules and regulations is very limited. Theone area where effectiveness and efficiency is good is the implementation of irrigationservice charges where collection rates at Cay Sung are reported to be over 85% with theremainder linked to poorer households whose fees are often waived. The collection rateis misleading however as the vast majority of the collected fees are paid back to farmersas wages for completing cleaning and maintenance programs.

The irrigation fees indicator defined at design is not applicable due to the cancellation of

i i ti f b C t l G t D i 2007


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farmer training programs to be very effective and very efficient and are considered mostlikely to be sustainable given the knowledge development, institutionalization and thesupporting training resources.

On participatory irrigation management the project had two strategies. The first based onfarmer involvement in canal construction and lining was highly relevant, very effective andefficient and sustainable provide external investment is available to pay for participation.The second strategy was based on training PIM principles for irrigation scheme and waterresource management is relevant, but had low effectiveness and limited efficiency due tothe lack of institutional reform and management systems development to support PIM.The Project adopted a far too narrow perspective of PIM and would have benefitted fromgreater understanding of past and ongoing PIM experience in Viet Nam. PIM needed farmore attention during the design and formulation process and the implementationstrategy development phase. Without institutional change the FE believes PIM isconsidered non-sustainable.

The participatory canal construction by farmers is only sustainable if there are externalfunds to support the material and labor costs for a farmer construction program. Farmerenthusiasm for participation in construction of canals reflects the financial benefits theyreceived for their labor input as much as the resultant service improvement from newcanals. Future programs should consider fiancnig only the material cost with farmersproviding the labor either at their own cost or through payments from the irrigation feescollected by the communes

A significant contributor to irrigation infrastructure damage is cattle/buffalo grazing that

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basis for final evaluation - Cay Sung reservoir was completed before the baseline survey.Implementation was reoriented to an institutional development activity with staff from theDepartment Agriculture and Rural Development District level trained and implementingthe baseline survey. Training was provided by the Center for Social Work and CommunityDevelopment Research and Consultancy (SDRC) who also designed the survey samplingframe, prepared topics and questions, prepared manuals and trained enumerators. Whileproviding local opportunities and individual benefits these came at a significant cost to theProject, something that the should have been raised with the PSC, and BTC. The lack oflocal capacity could have been addressed through outsourcing to an experienced surveyinstitute.

A 10% sample consisting 200 households were surveyed using a 10 person team fromthe Agriculture Promotion Station of My Loc and My Hiep communes. A range of surveytechniques including interviews and 13 village level focus groups were used. For My Hiep52% of respondents were female whilst 28% were female in My Loc. 13 focus groupswere held in 10 villages, with a minimum of 1/3 of participants being female. Secondary

data was collated from a range of sources including the Department of Statistics for PhuMy District and through interviews with officials and key informants. A repeat survey wascompleted in 2010 using a similar sample and questions but different enumerators. Theissues with the first baseline survey were repeated in the follow-up suggesting noevaluation took place. Here the Program experts and the CTA could have been far moreproactive.

The three survey reports are of mixed quality, being weak in the analysis andpresentation of findings. Quality control on data validity and the analysis was inadequate.

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found examples of application of water management, crop technologies being activelyapplied.

The second baseline survey and field interviews during the FE confirms very strongsupport for the farmer training programs including the programs delivered on irrigationwater management, agriculture technologies were rated very highly by recipients. Thefarmer training program is rated as highly relevant, very effective and efficient. Thesustainability of the training program was enhanced through the institutionalization oftrainers, building cadre of farmer trainers, and the significant achievement in theproduction of course materials and training resources. Currently these courses are beingoffered beyond the Project Area.

The Project Formulation as presented in the TFF identified the need for cropdiversification and included activities for the study of agricultural markets to ascertaindemand and market opportunities. In this area Project support targeted farmer awarenessand training in new cash crops. The Project as implemented deviated significantly from

the formulation limiting the relevance and effectiveness of activities. The marketingstudies were turned into price realisation estimates for differing Binh Dinh markets whilenew cash crop demonstrations supported rice, maize, sesame, and peanut productionsystems, all existing crops grown by farmers. The demonstrations targeted new varietiesof existing crops. The diversification of crops did not eventuate and farmers still face thelimitation of a largely monoculture rice farming system.

The lack of agriculture extension and agribusiness services technical expertisecontributed to a major weakness in Project formulation and implementation supervision.

Th b j t t d h i li it d l li it d ff ti


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responsive in terms of participation however, in terms of expanding the roles of women inirrigation management and decision making there is no evidence that the dominance ofmen has changed.

Women in Dai Son reported significant improvement in household incomes andhousehold wealth resulting in improved wellbeing and reduced stress in providing forchildren.

2.2.2 Environment

During formulation, subprojects were assessed to provide environmental benefits due tothe reduced risks of floods from failing infrastructure at each site.

The final evaluation agrees with this finding. During implementation environmentalregulations were respected during the design and construction process.

The evaluation mission identified the following potential environmental impacts arisingfrom the project:

The exposure of bare land in borrow pits with significant loss of use rights to theexisting farmers at Project start up

The inability to drain some flood and drainage water leading to water logging, andpotential inundation risk

The likely resultant increase in deforestation to support the increased number andsize of cattle and buffalo

Ri k i i f h i l i i i t it i b 50 t 120


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irrigation programs. With greater knowledge, skills, representation and involvement inwater management beneficiaries have developed far greater cohesion. An opportunitywas lost however to define the roles of decision makers including the delegation ofdecision making by commune leadership.

2.2.4 Childrens Rights

The project provided indirect opportunities to children through the increases in householdincome. Women report that one of the impacts of higher and more reliable income is theability to afford education costs and to extend the education of their children.

2.3 HARMO-criteria

The Project was formulated prior to the introduction of the High Level Forum on AidEffectiveness and as such the HARMO criteria were not incorporated into the design, thespecific agreement or the Project planning frameworks. Local project stakeholders areunaware that such criteria exist making it difficult to evaluate the Project and their role inachieving the criteria.

2.3.1 Harmonisation

The project design, planning or formulation did little to harmonise with other dam and

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The desire for a joint PMU without a full time director and with other PMU staff alsoholding multiple roles and or positions created significant work load pressures and delays.The strong political linkages with the Chairman of the DPC provided additional strength inthe PSC arrangements but required additional engineering inputs. The addition of vicedirector roles addressed this issue but only in part.

The PMU preference for recruiting local candidates irrespective of experience and skillscreated delays and resulted in weakness in the resultant program strategy and supportingactivities. Technical skills in institutional development, PIM and crop diversification werepoorly aligned with needs. The national skills in training and community engagementwere well aligned and provide a good example of the benefits from such alignment interms of relevance and effectiveness if not always in efficiency terms.

The evaluation considers the technical inputs to the PMU to be poorly designed for therange of tasks assigned to it and in particular highlights the weakness in the identification

of soft expertise. The formulation mission is identified as a major contributor to thisweakness as it did not apply the same design and formulation standards to the softcomponents that were applied to the engineering program effectively repeating themistakes of past irrigation infrastructure programs that created a strong supply orientationas opposed to understanding the problems from a water demand perspective.

Project management procedures were generally efficient and appropriate. The Viet Namprocurement systems were followed albeit to varying degrees. The Program was co-managed between the DPC and BTC through the Project Steering Committee (PSC)

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2.3.3 Result Based Management

Project design performance indicators and targets are not considered adequate as theyprovide little indication of the scope of change in household income from agriculture andthe change in agriculture productivity. The problem with these is ably demonstrated by theagriculture income per capita for My Hiep commune which increased from VND2.6million in 2003 to 9.7 million in 2009. In 2009 there was no irrigation from the reservoir

despite the impact indicator would suggest success. Likewise irrigated crops compriseonly two thirds of agricultural land use and livestock provides approximately one tenth oftotal household income. Agriculture productivity per se does not necessarily indicate theimpact of the Project. Generally the performance indicators do not provide indicators ofchange in behaviour, change in management decisions and focus more on tangibleoutputs that do not necessarily signify change.

The Project management systems applied were integrated with the Provincial and Districtplanning systems with annual and six monthly work plans for each result area. The

monitoring of plans and activities focused on input reporting, both financial and physicalcompletion and contractor performance. Project monitoring was adequate but not strongin terms of data capture, analysis and reporting with the target audience for monitoringappearing to be the Project Steering Committee as opposed to the Implementing Agencyor the Project Management Unit and the technical service provided. A good example ofthis was the implementation of the training program where each training event included atrainee evaluation of the event. These evaluations were retained but have not beenconsolidated and analysed for the overall quality of training and how this could beenhanced.


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created strong demand for maintaining quality and timeliness.

Despite the significant cost over-runs at Dai Son the cost savings from the Cay SungReservoir and the savings from exchange rate movements resulted in an overall Projectcost as at 30 December 2010 of amounting to a 5% saving - see Table 3.

Table 3: Budget Savings by Financier as at December 30 2010

Financing Total Saving

(Eur)

Percentage

Saving

Proposed reallocation

Cay Sung Canal

(Eur)

I: ODAi. ODA (11,840.91) -1.34% n/a

ii. Reg 12,409 11% n/a

II: Countervalue Fund 46,560 7 46.550

III: Provincial Counterpart Fund 14,784 4 n/a

IV: District Counterpart Fund 62,433 44 62,433

Total 124,340 5.8 108,983

Th PMU k t ll t th d f d f th t l F d d th Di t i t


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Son. For Cay Sung reservoir despite 5 companies expressing interest only 2 bids werereceived and both were scores technically and financially. For the larger Dai Son contract12 bidders expressed interest, 3 companies bid with two of the three excluded beforetechnical scoring leaving a single valid bid raising questions over the appropriateness ofthe contract award.

2.3.5 Ownership

Ownership was a significant achievement of the DPC and the PMU. Ownership wasstrong from the Project Steering Committee, the DPC and its Project Management Unitthrough to the development of increased involvement of the Irrigation ManagementStation for Phu My, DARD, local extension staff, and with beneficiaries through trainingand participation in water management. The skill development program has been a majorsuccess and contributes to increased institutionalization of improved water resourcecontrol.

The decentralized implementation has meant no meaningful extension of the projectactivities and approach outside of the Province. Some extension of programs outside ofthe Project Area occurred but there has been far too little integration of knowledge intoProject strategies and equally little going into wider sector development.


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3 Lessons learned

There are several important lessons to be learned from the Project.

3.1 At Project Conception and Formulation

Inadequate dialogue and problem assessment at the initial stage of project specificationcreated significant impacts on the Project creating costs that we consider exceeded thecosts of more professional due diligence during this period. The significant issues andtheir contributing factors were:

The DPC / DARD non-disclosure of the basic design status added 2 years to therequired Project Implementation period

The lack of quality due diligence with respect to the basic design duringidentification and formulation processes demonstrates a lack of judgement.These issues can be avoided through requesting an official statement of the

basic design approval. This request should be included in future formulationprocedures and should include the basic design, and its cost estimate beingspecifically ratified to the DPC and PPC level

A contributing factor during formulation was the focus on documentationdevelopment as opposed to the validation of the underlying causes of theproblems to be addressed, the scope of work required and the recommendedstrategy. These shortfalls also impacted the formulation of the soft componentswith only 25 days of social expertise supplied.

An option for the formulation weakness could be to develop programmatic

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of the PMU. The evolution team supports, on balance, the DPC Chairmanappointment. The establishment of technical Vice Directors should have beenforeseen and required as part of the approval of the Project Director.

The recruitment of PMU experts needed to have far greater co-managementinput from BTC/donor to ensure that while local candidates are assessed theypossess the commensurate skills and experience. The close alignment of theProject Director to DPC simply emphasizes the need for this.

A key lesson learned was the role of the CTA, although mobilized late the CTA intheir first two month full time input was central to moving the project forward andfor identifying and clarifying the basic design issues for Dai Son. However, for thenext year during which the detailed design was continually delayed the CTA wasonly present in the PMU 17 days. Technical assistance needs to have far greaterpresence during start up, the preparation and planning of project strategies andwork plans when it can influence in a proactive manner the approach. Part timeCTA roles, often result in the position being placed in the role of fire fightingwhich is not the most effective use of their skills and expertise.

There needed to be strategy development input for (i) water institutionalstrengthening including the definition and application of PIM, and (ii) agriculturaltechnology improvement. The strategies need to reflect sector realities and thelessons from wider Viet Nam. Once the strategies were defined there needed tobe a more comprehensive set of activities that were then followed. Thedevelopment and implementation of strategies need to be participatory using theinstitutions and stakeholders in these sectors to develop consensus and toenable the leverage of local and government programs into the Project. Shortterm national and international expertise may be needed for strategy formulation

S d l h P j l l h ld b di h i


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too low - 17 days present 24 days allocated over the year following the revisedbasic design. The criticality of the outstanding design issues with respect toimplementation timing, budgets, and ultimately project success warranted fargreater input from the CTA in this period

BIHECCO as a contractor failed in its professional and contractual responsibilitiesin terms of (i) the quality of work, (ii) the ability to deliver on time, (iii) contractmanagement and client communication. The use of local consulting firms

affiliated with DPC or its agencies is understandable however their capability tocomplete the work to a sufficient standard is paramount. This was againdemonstrated by the finding of inadequate geotechnical survey input to thedetailed design causing additional design inputs and design modification to theDai Son spillway.

The outcome to the increased costs was to change technical specificationslowering spillway elevation and simpler technology. Within the first irrigationseason the spillway has been sand bagged to raise the storage capacity forincreasing the third crop. The lesson to be learned is the need to design to water

demand and availability and if budget is inadequate serious consideration shouldbe given to cancellation of the subproject rather than build a suboptimal structure.Greater effort should have been put in place to source additional budgeresources to construct to the design specifications.

3.2.2 Construction

Construction management during short dry seasons is difficult and needs to beclosely supervised not just in engineering quality terms but also in terms of

C S


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3.2.4 Project Management

Political leadership of the PMU has significant benefits as well as potential costs.On the benefit side, decision making and District support is more readily availableon the cost side it opens the Project to far more political control and weakens theboth technical input and neutral and transparent procurement of Projectmanagement. The political role of the Project Director worked because technical

vice directors were introduced during implementation, similar balances should beconsidered in the future

Project management needs access to the correct range of skills and proceduresfrom Project start up more attention is required to reflect on appointments andthe impact of each appointment on remaining skill gaps and requirements.

The project management modality of managing through financial budget controlwhile adequate, did not capture the benefits of proactive management decisionprocesses that are guided by strategy and informed by monitoring. Monitoringneeds to be established as project management information for improving

decisions, identifying problems and for reporting to the PSC and Donors

3.3 At the level of the Project Steering Committee

The political linkage between the PSC and the PMU proved beneficial with thePSC being more active and strategic than is usually the experience in Vietnam.

The PSC needs to be the conduit to ensure the National and Provincial policy and


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the designed construction needed far more explicit consideration of productiontrade-offs including the costs and benefits of available options and not simplymeans to cut the budget. This requires a review of choices from the perspectiveof beneficiaries and not simply infrastructure suppliers.


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4 Follow-up of recommendations

4.1 Recommendations of the Final Evaluation

4.1.1 For Stakeholders

The understanding of the use and purpose of the irrigation service fee needs tobe reviewed. Current fees collected form Dai Son irrigators is VND 122 million;less than USD 1,000 at a unit rate of VND 300,000/crop/ha/yr. The level of feescollected is inadequate for sustainability and while it is presented as a cost togrowers this is not the full story. Of the VND 122 million collected at Dai Sonsome VND 22 million is spent on overheads and the remainder is spent on paidback to farmers to maintain infrastructure. The argument over poverty andaffordability deserves scrutiny. Dai Son farmers expect to grow 2.3 crops per yearat an average yield of 5.3 to 5.5 t/ha. Each hectare produces some VND 68.75million of rice per annum the irrigation service fee amounts to less than 0.1percent of the value of rice and approximately 80% of that goes back to farmers.Irrigation service fees can remain low as donors and central government keepbearing the cost of rehabilitating infrastructure reducing the need for local usersand beneficiaries to maintain it.

FE focus group discussions introduced the concept of using fees for expandingcanal rehabilitation and water control technology, surprisingly some farmers


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programs should be provided for PSC, PPC, DPC, DARD and IMT staff BTC and Government of Viet Nam could agree to reallocate budget savings from

CVF and District Counterpart Fund to Cay Sung for extension of canal liningprogram involving an amount of EUR 108,000 depending on final reconciliation ofProject contracts. The FE recommends these funds be applied to material costsonly with farmers providing labour.

BTC could seek to support Phu My District to develop a pilot framework of a

district wide sector investment strategy that includes all irrigation systems, thedevelopment of comprehensive PIM and high value agriculture. The rationale forthis is that the FE believes that an institutional basis for PIM is not possiblethrough a project by project approach working at the level of a single irrigationsystem. PIM this requires institutional commitment at the district level as itrequires supporting roles, structures and functions within DARD, IMT etc. Withoutsuch frameworks and agreements there is little point in investing in PIM and highvalue agriculture. The District strategy process could be a pilot for a Provincialwide roll out of these approaches but this will require active engagement with

BTC to explore the possibilities. BTC needs to ensure improved due diligence and increased quality of formulation

to overcome shortcomings, with this in mind all formulation should be required toconform to (i) problem analysis, (ii) proposed scope and strategies and (iii)provision of documentation

BTC programs could include means of delivering expertise on a demand drivenbasis this may require the use of unallocated resources set aside for suchpurposes. The PMU and CTA would need to justify the use of these resources tothe PSC.


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5 Conclusions

5.1 Main preliminary findings on the assessment criteria

The final evaluation preliminary findings suggest that the two subprojects have achieved

a successful project outcome and impact as defined by the TFF logical framework. Theevaluation believes that this is confirmed for the Cay Sung Reservoir and it is probable forDai Son reservoir. At the time of the FE it is not possible for the evaluation team toconfirm Dai Son impacts this due to the delayed infrastructure program.

The delays in Dai Son reflect weak formulation, a lack of disclosure by DPC/DARD on thebasic design and significant shortcomings on behalf of BIHECCO the detail designcontractor. Collectively, the Project stakeholders and management was unable to defineand attain an efficient project management responses resulting in significant delays and

costs.

The soft component was highly relevant but poorly conceived at formulation and sufferedfrom a lack of institutional buy-in at the concept and strategy level. The soft componentwas under invested in technical expertise and marginalized by the PMU for far too long.Future sector work needs to acknowledge that soft and institutional issues cannot beapplied at a project level as they require an institutional paradigm shift to introduce PIMand crop diversification. The paradigm shift moves from a supply driven commoditymodality for irrigation infrastructure and for agricultural commodities to a demand


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increased risks to water quality from agrichemicals if intensification continues torely upon rice.

3. What lessons can BTC and the VN authorities learn from this type of ad hocapproach in dam construction?

Findings: The lessons are detailed above but the most important of these is the

need for clarity in the overall investment strategy and that there be anassessment of the feasibility of such programs. The project failed to have suchclarity for the soft component and was unable to achieve the implied changes.

Engineering programs need far greater diligence in basic and detailed designwork, more analysis is required in formulation of interventions and greateralignment with future strategies and policies rather than existing institutions andorganisational interests.

4. What are the limits in terms of planning, design, and implementation that could beemphasized?

Findings: The limitsarose due to the means by which projects were brought tothe Viet Nam BTC partnership. These were an assemblage of existing prioritiesand as such should not be judged to harshly in terms of the lack of strategicfocus. What is more important is the need to build future programs on theexperience and ensure that more comprehensive strategy options are identified


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6 Annexes

6.1 List of People Met

List of People Met In Quy Nhnon

No. Name Position Unit Work Note12th. Feb : Afternoon1 Mr. Dang Thanh Mai Pro. Officer PMU Quy Nhon Hotel2 Mr. Pham Van Van Field Coodinator PMU Quy Nhon Hotel3 Mr. Dang Anh Son Training Expert PMU Quy Nhon Hotel4 Ms. Tran Bich Khoi Training

AssistantPMU Quy Nhon Hotel

5 Mr. Jozef de Smet CTA PMU Quy Nhon13th.Feb

1. Mr. Huynh Van Nam Project Director Chairman of Phu My DPC Quy Nhon Hotel2. Ms.Tran Hong Hanh Chief Accountant PMU -14th.Feb : Morning1. Mr. Nguyen Huu Vui Vice. Director DARD of Binh Dinh DARD2. Mr. Le Minh Luan Vice Director DONRE of Binh Dinh DONRE14th.Feb: Afternoon1 Mr. Huynh Van Nam Project Director Chairman of Phu My DPC DPC2 Mr. Dang Thanh Mai Pro. Officer PMU3 Mr. Pham Van Tra Chief

AgriculturalDistrict Agricultural Office


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5. Ms. Tran Bich Khoi TrainingAssistant

PMU

6. Ms.Tran Hong Hanh Chief Accountant PMUAfternoon

1. Mr. Dang Van Huong Farmer An Tuong Village My Loc Commune2. Ms. Phan Thi Dieu Farmer IMT of An Tuong Village3. Mr. Le Hong Son Farmer Cuu Thanh Village4. Mr. Dang Van Dieu Farmer IMT of Cuu Thanh Village

5. Ms. Tran Bich Khoi TrainingAssistant

PMU

6 Ms.Tran Hong Hanh Chief Accountant PMU17th. Feb : Morning1 Mr. Tran Minh Tuan Chairmen My Hiep Commune Dai Son Reservoir2. Mr. Le Tran Tan Vice Director BIHECCO3. Mr. Vo Hong Son Depute My Hiep Cooperative No.34. Mr. Le Dinh Dieu Chairman My Hiep Cooperative No.25. Mr. Pham Van Tra Chief

AgriculturalDistrict Agricultural Office

6. Mr. Pham Van Van Field Coodinator PMU7. Ms. Tran Bich Khoi Training

AssistantPMU

8. Ms.Tran Hong Hanh Chief Accountant PMU9 Mr. Huynh Van Nam Project Director Chairman of Phu My DPC10. Mr. Dang Thanh Mai Pro. Officer PMU

Afternoon1 Mr. Pham Van Tra Chief

AgriculturalDistrict Agricultural Office PMU Office

Mr. Pham Van Thanh Staff Agricultural Extension


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3. Mr. Pham Van Van Field Coordinator PMU4. Mr. Dang Anh Son Training Expert PMU5. Ms. Tran Bich Khoi Training

AssistantPMU

6. Ms.Tran Hong Hanh Chief Accountant PMU20th. Feb.1 Ms. Tran Bich Khoi Training

AssistantPMU Quy Nhon Hotel

2 Ms.Tran Hong Hanh Chief Accountant PMU21th Feb.1 Mr. Huynh Van Nam Project Director Chairman of Phu My DPC Quy Nhon Hotel2. Ms. Tran Bich Khoi Training

AssistantPMU

3. Ms.Tran Hong Hanh Chief Accountant PMU9 Mr. Huynh Van Nam Project Director Chairman of Phu My DPC10. Mr. Dang Thanh Mai Pro. Officer PMU22th Feb.1. Mr. Nguyen Dinh

Sanh

Joint Stock Company to

Build Irrigation Binh Dinh

DPC

2 Mr. Dang Van Hung Chairman My Loc Cooperative No.23 Mr. Dang Thanh

LongVice Chairman My Loc CPC

4. Mr. Nguyen Van Tong Vice Chairman My Loc Coopertative N0.25. Mr. Duong Minh

ChauFarmer My Loc Commune

6 Mr. Nguyen Hu Tho Farmer Farmers Unions7 Mr. Dang Van Phong Farmer An Tuong Village8 Mr. Dang Van Farmer My Loc commune


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1 Mr. Huynh Van Nam Project Director Chairman of Phu My DPC Quy Nhon Hotel2 Ms. Tran Bich Khoi Training

AssistantPMU

3 Ms.Tran Hong Hanh Chief Accountant PMUAfternoon

1 Mr. Ho Quoc Dung Vice Chairman Binh Dinh PPC Binh Dinh PPC2 Mr. Huynh Ngoc Tam Vice Director Binh Dinh DPI3 Mr. Dirk Deprez Resident

Representative

BTC

4 Mr. Nam BTC5 Mr. Jozef CTA BTC6 Mr. Huynh Van Nam Project Director Chairman of Phu My DPC7 Ms. Tran Bich Khoi Training

AssistantPMU

8 Ms.Tran Hong Hanh Chief Accountant PMU


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6.2 Performance Indicator Achievement

The following annex summarises the achievement of the Project performance indicators

as reported in the TFF.

6.2.1 Cay Sung Irrigation Systems

Table 4: Indicators of Cay Sung reservoir and irrigation rehabilitation

Planned Activitiesand Indicators (TFF)

Indicator Achievements

Total investment

(VND millions)

Total Cost VND 5,486 Headwork cost VND 2,972

Canal cost VND 1,831

Total VND 4,803

1.1 To make detaileddesign and preparetender document

Detailed Design

Tender Documents

Detailed Design (10,100 euro)completed by May 2006

Tender documents issued July2006

1.2 Repair headworks

Completed prior to effectiveness

1.3 Emergency New Spillway Spill way and wave wall


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from 540 to 870

6.2.2 Dai Son Irrigation System

Table 5: Indicators of Dai Son reservoir and irrigation rehabilitation

Planned Activitiesand Indicators(TFF)

Log Frame Indicator Achievements

Investment Cost

(VND Million)

Total Budget VND 21,882 Head works VND 23,537

Canal Cost VND 5,400

Total VND 28,937

2.1 PrepareDrawings andtender documents

Detailed design Drawings

Tender Documents

Detailed drawings completedby

Tender document issued by

2.2 Emergencyrepairs to spillway

Completed prior toeffectiveness

2.3 Upgrade DamStructure

Dam and saddle damrehabilitated to design

Dam and saddle dam completedon August 2010


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6.2.3 Irrigation Management Improved

Table 6: Result 3 AchievementsPlanned Activitiesand Indicators (TFF)

Indicators Achievements

3.1 To review and

clarify roles andresponsibilities ofmanagementstructures

Roles and

responsibilities clarified

Definition of roles for DARD,

IMS, Cooperative,Village/farmers, IrrigationManagement teams.

DARD and DPC issuingguidelines for the management,operation and exploitation ofirrigation works

Dai Son establish irrigationmanagement committee

84 trainees - 3 female

3.2 To review andrefine rules andregulations onprotection of irrigation/ water management

Cases of violations ofirrigation rulesdecreased

Irrigation fee collectioncompared to number ofwater users increased

No regulations were prepared.No. of violations - nil.

Irrigation fees were abolishedby central government in 2007

434 trainees 199 female

3.3 To train local Number of people on all 1388 trainees 79 female


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management andwater use cost /benefit calculations

female

4.3 To designappropriate trainingcurriculum materialsand strategies

Number of staff fromagriculture extensionservice havingsuccessfully participate in

training of trainer courseon improved agriculturalextension

50 trainers trained of which 5were female

4.4 To conducttraining sessions onall levels

Training sessionsdelivered and number offarmers traineddisaggregated by genderand poor- non-poor

364 farmers trained as trainersof which 188 were female

1,927 farmers trained 0f which1180 were female

4.5 To executemarket studies onalternative crops andestablish pilotdemonstration onnew cash crops

Crop diversificationincreased

Agricultural marketingimproved and marketedproduce increased

41 Trainees of which 4 female

10 demonstrations provided to787 farmers 181 female

Crops demonstrated includerice, sesame, corn and peanut


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6.3 Impact Productivity Data

The following Data was provided by the PMU/DARD Statistics Office

6.3.1 Cay Sung

Cay Sung (ha) Before After

Irrigated area 168 238

Dryland 70

Total 238 238

Area (ha) Area(ha)

Cropped cropped Irrigated Irrigated

before After Before After Irrigated Irrigated Net

Rice Before After Gain

Winter Spring 120 220 5.9 6 708 1320 612

Summer 90 140 5.7 6 513 840 327

Third Crop 3.9 4.7 0 0 0

Corn 0

Winter Spring 2 5 5.7 5.9 11.4 29.5 18.1

Summer 5.8 5.9 0 0 0

Third Crop 5 5 0 0 0

Other 0

Winter Spring 8 15 2.7 2.9 21.6 43.5 21.9

Summer 2 2.2 0 0 0

Third Crop 0 0 0

Total Cropped area 220 380 Total (mt) 1254 2233 979

Cropping intensity 131% 160% % gain 78%

VND ('000's) 6,270,000 11,165,000 4,895,000

6 27 11 165 4 895

Yields tonnes per ha

Total Production (metric tonnes pe r annum)


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6.3.2 Dai Son

Dai Son (ha) Before After

Irrigated area 240 269

Dryland 29

Total 269 269

Area (ha) Area(ha)

Cropped before cropped Irrigated Irrigated Irrigated Irrigated Gain in

Irrigated After Before After Before After production

Rice

Winter Spring 180.00 220.00 5.10 6.10 918.00 1,342.00 424.00

Summer 113.00 240.00 5.80 5.50 655.40 1,320.00 664.60

Third Crop 112.00 4.40 4.80 - 537.60 537.60

Corn -

Winter Spring 2.00 2.00 5.20 6.00 10.40 12.00 1.60

Summer

Third CropOther -

Winter Spring 47.00 47.00 2.30 2.90 108.10 136.30 28.20

Summer

Third Crop

Total Crpped Area 342.00 621.00 Total Output 1,691.90 3,347.90 1,656.00

Cropping Intensity 1.43 2.31 % Gain 0.98

VND (000's) 8,459,500 16,739,500 8,280,000

VND billion 8.5 16.7 8.28

Households 785 915

Output(t/hh) 2.16 3.66 1.50

% Sold 0.40 0.50

(t/hh) 0.86 1.83 0.97

Est Sales (VND 000) 4,311 9,147 4,837

Yields tonnes per ha Production (metric tonnes)


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6.4 Stakeholder Workshop Conclusions

Group Project Strengths and Impacts Weaknesses Outstanding work or issues Risks to irrigation and agricul-ture

Agency Conclusions Supports policy of reducingpoverty and increasing agri-cultural productivity in the loc-al.

Supports irrigation policy ofconcreted canals and for in-creasing reservoir safety

The allocation and reason-able use of water

Improves environmental land-

scape Raises beneficiary awareness

of environmental protection

Created jobs,

Improved social awarenessand resources protection ofthe beneficiaries both duringconstruction and future oper-ations.

Investment Period

Require preparation work forcapital investments espe-cially:- Geological survey- Hydrographic survey and

calculation- No, government price

norms for hydrographicsurveys and costs for ir-

rigation structure.- Legal procedure to pre-pare investment need tobe applied.

Agree criteria both budgetand technology before de-tailed design to ensure shor-ted implementation time -avoids material resourcesand time waste.Construction Period

Limited period of suitableweather condition.

Ground clearance for con-

struction was slow anddelayed

Development of fisheries inreservoirs

Develop Tourism and recre-ation

Incomplete canal rehabilita-tion need more Constructmore concrete lining to re-duce costs

Supervise water quality as-sessment for irrigation service

Strengthen management inupstream catchment forests

Operation of flood dischargewas not with schedule

Insects damaged body ofdam

Climate change is overdesign frequency

Awareness of beneficiarieswho use irrigation system isincomplete.

Increasing use of pesticide

and waste for the environ-ment and for water supply

Destruction effect of upstreamforests

My Loc Beneficiaries Suitable for policy of the gov-ernment in irrigation construc-tion period.

Dam and canal system wereconcreted sustainable

Survey weather, hydro-graphy, geology to definemore exact of reservoir capa-city

Enough budget to invest in-

Training course on irrigationmanagement, maintenancefor beneficiaries.

Long-term budget to main-tain irrigation system annual.

New canal system has notyet interested in flood dis-charge, made flood water insome areas and inside canal

Some small dams (prevented

BTC, Belgian development agencyAide-mmoire Final Evaluation

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Group Project Strengths and Impacts Weaknesses Outstanding work or issues Risks to irrigation and agricul-ture

Increase irrigation area, pro-ductivity, quality of crops

Increase incomes to improvelife of the local citizens

Raised beneficiaries aware-ness on irrigation manage-ment

frastructure, close tight fromheadwork to irrigation systemof on-farm canal

Install more direct steel pipesand operate water saving bet-ter.

Build security house and pro-tector of the structure

Equipment to measure rain-fall

by tree and straw) have notyet constructed in the lowersection, so landslide lost wa-ter and spent budget by floodannual.

My Hiep Beneficiaries This area is invested to con-struct irrigation structure.

Develop agricultural eco-nomy, eliminate hunger andreduce poverty, deal with jobfor beneficiaries.

Agricultural productivity rais-ing

Flood regulation to reducenatural disaster in the lowersection

Shorten time of project identi-fication and evaluation

Invest comprehensive for ir-rigation system

Training courses on irrigationmanagement, maintenancefor IMT

Construct completely canalsystem

Raise beneficiaries aware-

ness on irrigation manage-ment and maintenance in thearea.

Risks of

Flood,

Natural disaster

BTC, Belgian development agencyAide-mmoire Final Evaluation

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Aide Me Moire - Final Evaluation VIE 00013006

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