the impacts of drought and mitigation strategies in turkey

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BALWOIS 2012 - Ohrid, Republic of Macedonia - 28 May, 2 June 2012

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THE IMPACTS OF DROUGHT AND MITIGATION STRATEGIES IN TURKEY 1

Yıldırım KAYAM

Oner CETIN

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International Agricultural Research and Training Center, Menemen, Izmir, TURKEY Dicle University, Agricultural Faculty, Dept. of Agricultural Structure and Irrigation, Diyarbakır, TURKEY  E-mail: [email protected], [email protected]

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Abstract As well known, the “drought” originates from deficiency of precipitation which effecting wide areas for temporary periods. However, it is not defined as only water scarcity but also other climate factors such as high tempearture and low relative humidity. After all, the impacts of drought can vary significantly between locations because of differences in their economic, social, and environmental characteristics. In Turkey, the severe droughts which appeared recent years because of the climate change, affected the nearly whole country. With these conditions, the agricultural crop production losses were 13, 22, 23, 18, 10 % for wheat, barley, sunflower, beans and lentil, respectively. This situation forced the Turkish government to have some action plans, designs and policies for drought, urgently. First of all, the three Ministries of which are Food, Agriculture and Livestock; Forestry and Water Works; Urbanism and Environment have decided to coordinate the efforts to manage the drought, and an Agricultural Drought Action Plan has been constituted with specific regulations in 2007. This structure has included the Agricultural Drought Coordination Committee; Monitoring, Early Warning and Estimation committee; Risk Evaluation Committee in center and Agricultural Drought Crisis Committees for each province in the counrty. The most effective applications to mitigate of drought were tuning of irrigation water amounts according to the drought conditions by farmers, and subsidizing the use of modern irrigation techniques and directly supports for farmers by government. In this article, the activities, policies, action plans, problems were discussed and some solution proposals were presented to reduce drought risk and vulnerability especially for agricultural sector in Turkey. Key words: drought, climate change, agriculture, mitigation, action plan, Turkey

Introduction Drought originates from deficiency of precipitation which effecting wide areas for temporary periods. However, it is not defined as only water scarcity but also other climate factors such as high tempearture and low relative humidity. After all, the impacts of drought can vary significantly between locations because of differences in their economic, social, and environmental characteristics. According to the United Nations Convention to Combat Desertification in Countries Experiencing Serious Drought and/or Desertification, drought means the naturally occurring phenomenon that exist when precipitation has been significantly below normal recorded levels, causing serious hydrological imbalances that adversely affect land resource production systems (1). There are different types of drought depending on each other. Meteorological drought depends only on precipitation deficit and duration of period with precipitation deficit. Agricultural drought refers to situations with insufficient soil moisture level to meet the plant needs for water during vegetation period. Hydrological drought occurs after longer period of precipitation deficit.


5 Scientists announce that the most important impact of climate change resulting from global warming will be drought and depletion in water resources depletion as the result of decrease in precipitation in Mediterranean region. The results from the 4th meeting of Intergovernmental Panel on Climate Change (IPCC) were published as of April 2007. According to these results, it is predicted that the precipitation will decrease in the rate of 6%-53% according to seasons in South Europe and Mediterranean (SEM) in the next 25-30 years. Under A1B scenario, it is also predicted that annual o average temperatures will change from 2,2 - 5,1 C’ during the interval from 1980-1999 until 20802099 according to the simulations for the South Europe and Mediterranean (SEM) area (Fig.1) (2).

Figure 1. South Europe and Mediterranean regional climatic projections for A1B climate scenario (2)

Drought is a recurring phenomenon in the region and causes sharp annual fluctuations in agricultural production, especially in food crop increasing demand for food in the region, resulting in a widening food gap that is to be filled by imports (3). Precipitation, temperature, wind, humidity and solar radiation are among the most important meteorological factors affecting agriculture. Due to geographical location and structure, Turkey has very different climate regions and micro-climate areas. Significant variations occur in climate components among the regions of the country. Precipitation has the greatest effect on production and exhibits large spatial and temporal variations (4). Although drought affects all sectors in human life, the effects of drought on agriculture are more siginificant. In this article, the activities, policies, action plans, problems were discussed and some solution proposals were presented to reduce drought risk and vulnerability especially for agricultural sector in Turkey.

Background of drought in Turkey 0

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Turkey is situated at the latitude between 36 – 42 on the North and at the longitude of 26 – 45 on 2 the South. The total territorial are of Turkey is 779 452 km and the water areas excluding land areas 2 are 14 300 km . When the changes in the precipitation in winter are examined, it would be seen that the acutest and wide ranged drought events took place in the years 1973, 1974, 1983, 1989, 1990, 1996 and 2001 (5). Due to the meteorological drought that resulted from precipitation conditions which were well below the average over extended periods of time agricultural and hydrological drought events have also BALWOIS 2012 - Ohrid, Republic of Macedonia - 28 May, 2 June 2012

6 sprung. Water shortage and depletion have reached critical points not only in the scope of agriculture and energy production but also in terms of water management that consists of irrigation, drinking waters and other hydrological systems and their effects (6). Recently, severe drought has occurred in 2007 in Turkey. This natural event affected agricultural production and hydrological flow. While the wheat production, a basic crop of Turkey, was 21 500 000 tons in the year of 2005, it was 17 234 000 tons in 2007 and 17 782 000 tons in 2008. Imports were made during the last two years since domestic production was not able to meet the demand. Severe drought of 2007-2008 agricultural year experienced in Southeastern Anatolia Region caused series yield loses in common crops of the region. For instance, while red lentil production was 520 000 tons in the year 2005, it decreased to 111 502 tons in 2008. Normally, Turkey exporting red lentil had to import lentil in the year 2008. Cotton production also decreased from 2 240 000 tons to 1 938 000 tons and Turkey had to import much more cotton (4). In some regions, central governments took some precautions only after drought whose impact was severely felt in agriculture already started and its results were apparent. However, these precautions have not been further than mere economic mitigation packages such as postponing the debts of farmers, tax amnesty and product compensations. The last one of these examples was the cabinet decision related to provision of monetary support and grants to the farmers due to the drought that took place in the western, southern and central regions of the country in 2007. This decision can be regarded as one of the impact lessening precautions that was taken after drought and drought related damages had already had their impact. It is an application of reactive approach (7).

Institutional approach for drought in Turkey Since agricultural sector is the most adversely affected sector from the impacts of drought and since approximately 75% of water resources are used in that sector, work and legal arrangements in the issue of drought and its impacts concentrate mostly on agricultural drought. For this reason, a Cabinet decision titled ‘Procedures and principles of combat agricultural drought and of drought management operations’ in 2007 (7). 1

Ministry of Agriculture and Rural Affairs* has made amendments in the scope of ‘Regulations on the tasks related to Agricultural Drought Management, the operational procedures and principles. The aim of this Cabinet decision on agricultural drought: ‘The aim of this decision is to help lessen the impacts of a possible drought in our country and to regulate procedures and principles related to the tasks, authority and responsibilities in operations which will be undertaken with the participation of related ministries, universities, governorships, local governments and NGOs under the coordination of Ministry of Agriculture and Rural Affairs’. These regulations can be characterized as positive developments in terms of developing a legal framework in planning against drought. However, a wider scope of legal legislations is needed which embodies other sectors as well such as environment, industry, urban usage. It is clear that there will be positive developments in the field of Drought Risk Management as information and experiences build up along the way. Organizations in agricultural drought management With the Cabinet decision mentioned above, it was decided that Agricultural Drought Management will be executed by Central and Provincial Management units under the coordination of Ministry of Agriculture and Rural Affairs.

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Its name has changed as “Ministry of Food, Aggriculture and Livestock”.


7 Central management is made up of the units below (Fig. 2): a) b) c) d) e)

Agricultural Drought Management Coordination Committee (ADMCC) Observation, Early Warning and Prediction Committee Risk Assessment Committee Data Flow Unit Working Group

With an institutional approach of drought management, it was formed as ‘Provincial Drought Crisis Center’. The Center is made up of governor or vice governor, provincial district administrator, mayors of provinces, metropols, districts and towns, representatives of universities, Special Provincial Administration, representatives of district units of related ministries or directorates, provincial representatives of related ministries, provincial health authority, head of Chamber of Agriculture, president of village headmen associations, consortiums of irrigation, drinking water and manufacturers, directors of co-ops and representatives of other NGOs. Provincial Agricultural Drought Management is responsible from the implementation of ADMCC decisions and execution of Agricultural Drought Action Plan (ADAP). Agricultural Drought Management is responsible from ‘undertaking necessary measurements in order to lessen the impact of drought, doing inventory and collecting and analyzing observational data, doing risk analysis, identification of water potential in the framework of general hydrometric operations, developing the agricultural drought action plan and ensuring the implementation of its operations’. Drought indicators in Turkey are given in Table 1.

Agricultural Drought Management Coordination Committee (National)

Assessment Reports

Monitoring/Early warning Committee (1)

Risk Assessment Committee (1) Position Reports Working Group 2

Data Flow Unit (1)

Agricultural Drought Provincial Crisis Centers (81)

Working Group 1

Working Group 3

Fig. 1. A diagram for agricultural drought management organization Figure 2. A diagram for agricultural drought management organization


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Table 1. The drought indicators in Turkey by taking regional humidity conditions into consideration and the stages that will guide the drought measures (7)

Normal Conditions 1. step: Drought alarm

Drought conditions

2. step:

Preparation for drought

3. step:

Limitations

4. step:

State of emergency

Annual province precipitation is close to or higher than the average of long term province precipitation levels, Underground and above ground water levels are sufficient Annual province precipitation is lower than the average of long term province precipitation levels, Underground and above ground water levels have a tendency to decrease September-October precipitation is decreasing Annual province precipitation is lower than the average of long term province precipitation levels, Underground and above ground water levels are decreasing, SeptemberOctober- November-December precipitation is parallel to dry years Annual province precipitation is lower than the average of long term province precipitation levels, Underground and above ground water levels are decreasing, OctoberNovember-December-January-February-March precipitation is getting close to the driest year. Annual province precipitation is very much lower than the average of long term province precipitation levels, Underground and above ground water levels decreased; October- November-December-January-February-MarchApril-May-June total precipitation is at the level of the driest year.

Crisis management strategies for Agriculture Crisis management strategies need to be addressed and action taken ahead of time in order to properly prepare for the imminent global natural relief for the future and present effects of drought. There are many options and programs that vary depending on the level of need. Therefore, decreasing ways of drought impacts might be considered as follows (8): Technical applications a) Application of Limited irrigation Not to irrigate at some periods of the crops To extend irrigation cycle To decrease the amount of irrigation water at each irrigation cycle b) To give up irrigation for some lands c) Application of appropriate devices and/or techniques for each irrigation methods d) To irrigate at nights or cool time in days for sprinkler irrigation e) To use tail water or drainage water f) To use waste water for irrigation g) Water harvesting h) To grow drought resistant crops for rainfed and irrigated agriculture i) Mulching and/or no tillage agriculture j) Terracing at the inclined lands


9 Institutional Applications a) Pricing irrigation water per volume unit b) Subsidizing modern irrigation systems c) Improving the institutional structures of irrigation associations Gediz Basin is a good example on risk management of drought in Turkey. A severe drought occurred in Gediz Basin in 1989 and 1990 of water years. Combating drought has been succeeded by means of some institutional and technical precautions (1). Firstly, a meeting realized with all the stakeholders (managers of irrigation schemes, agricultural extension services, farmers, irrigation water user associations, governor etc). Some action plans and decisions on efficient water use were prepared. Each stakeholder was accepted these action plans. These were: a) b) c) d) e) f) g) h)

To prepare and to deliver to all the stakeholders on drought and efficient irrigation water use. To apply different irrigation date for each irrigation schemes To give up second crop growing. Because these crops consume much more water. To apply the rotation concept instead of demand concept for irrigation management To give irrigation water to only main crops, cotton and grapes, in the Basin To grow some crops needed less water such as sunflower, water melon, sesame and melon Decrease water loss in the canals and other irrigation structures To irrigate in evening and/or night time.

At the end of the season, only 10 % of cotton production decreased because of water deficit and/or limited irrigation compared to previous years. However there was no any loss grape production due to restricted irrigation. In conditions where water is insufficient, it is necessary to apply innovative approach for greater efficiency in the use of water for agricultural irrigation. The other issue, the development of crop varieties which are resistant to heat and drought by innovative gene technology is expected to play a very important role in adaptation (9).

Conclusion It has been stated by the scientists that the Mediterranean Basin in which Turkey is also located is slowly turning into a drier area with the impact of climatic change that has been felt in the recent years. This climatic change does not only show its impact as the depletion of precipitation but it also affects the temperatures to rise to higher than average degrees. The process is gaining momentum day by day and its impacts are also being felt in Turkey and the immediate environment. These severe droughts have led individuals, organizations and the government to realize the future hazards and have them be prepared against drought by providing and developing strategies that will lessen the impact of potential drought events. In Turkey, all the regions the work on agricultural drought has begun since 2007 and some legal arrangements have been done in order to create an efficient drought management system. The reactive approach has been left behind gradually and proactive approaches have started to gain more and more importance. Agricultural Drought Management Coordination Committee (ADMCC – Work Force) at national level and related Monitoring and Early Warning and Risk Assessment Committees were founded along with Data Collection Unit. In addition to that organizational structure, a National Drought Data Center has been created. Affiliated with this center, the Provincial Agricultural Drought Crisis Centers started their activities on drought management at provincial levels. However, the modern management structure at the national level is still carrying the marks and signs of the prior reactive approaches. The regional water authorities in Turkey like State Hydraulic Works (DSI) and Farmers Associations have gained experience in network level water management under drought conditions. But in order to prevent the water loss which is the most important problem and to have more efficient irrigation BALWOIS 2012 - Ohrid, Republic of Macedonia - 28 May, 2 June 2012

10 systems, it is imperative to develop the physical infrastructure and technical capacity. As a result of this development in these areas the vulnerability of agricultural systems towards drought can be decreased. One of most effective ways to overcome agricultural drought is to manage and/or use water resources efficiently. For this, irrigation must be applied according to the volumetric basis. In countries such as Turkey where drought management is new and in a developing stage, comparatively simple and graded applications related to prevention of drought and impact lessening will create more successful results with organizational structures that are appropriate for regional conditions instead of more difficult and complex drought organizations. Although some institutional approach were created for the drought management in Turkey, institutional drought management is depending on continuity and effectiveness of it. Because all the shareholders related to drought must be realized their responsibilities.

References (1) Ö. Bilen, Water Agande of Turkey, Water Manegement and European Union Politics, State Hydraulic Works, Ankara (2009). (in Turkish) (2) IPCC, Climate Change Assessment Report – Chapter 11 (2007) (http://www.ipcc.ch/pdf/assessment-report/ar4/wg1/ar4-wg1-chapter11.pdf,) (3) N. Md, Dabour, The role of irrigation in food production and agricultural development in the near east region. Journal of Ecenomic Cooperation, 23.3, 31-70 (2002). (4) O. Şimşek, B. Çakmak, Drought Analysis for 2007-2008 Agricultural Year of Turkey. Tekirdağ Ziraat Fakültesi Dergisi, Journal of Tekirdag Agricultural Faculty, (3), 99-109 (2010). (5) M. Türkeş, E. Erlat, Precipitation changes and variability in Turkey, linked to the North Atlantic ossilation), III. Sypmposium on Atmosphere Sceinces, İstanbul (2003), (in Turkish). (6) M. Türkeş, Global Climate Change and Impacts. Our climate in the future; A book of Academic Papers), 12-37, Ankara, (2003), (in Turkish). (7) Y. Kayam, K. Üner, O.A. Acar, S. Şen, M. Beyazgül, Drought management applications in Turkey: Problems and new approaches for effective risk management of drought. Soil and Water Resources Research Institute, Menemen, Izmir, Turkey. (2009). (8) Ö. Çetin, M. Eylen, N. Üzen, R. Yolcu, Integrated approach and solutions for drought risk in Southeastern Anatolia Region. Proceedings of I. National Drought and Desertification Symposium, 16-18 July, Konya, Turkey. 221-227, (2009) (in Turkish) (9) G. Pamuk-Mengu, E. Akkuzu, S. Anac, S. Sensoy, Impacts of climate change on irrigated agriculture, Fresenius Environmental Bulletin, Vol. 20 No 3a, 823-830 (2011).
