PIM Case Study India (Haryana)
‘Participatory Irrigation Management in Haryana’
By
R. K. Ailawadhi* and Rajeev Bansal**
Haryana Irrigation Department, Chandigarh, India
Contents
Glossary ................................................................................................................................ 3
1.
Introduction .......................................................................................................................... 4
2.
PIM – need in Haryana ....................................................................................................... 5
3.
4.
2.1
Surface water resources ................................................................................................. 5
2.2
Projected demands.......................................................................................................... 6
2.3
Need ................................................................................................................................ 6
PIM in Haryana – A historical perspective ....................................................................... 6
3.1
Warabandi-equitable distribution of water .................................................................... 7
3.2
Management issues ......................................................................................................... 7
3.3
Maintenance of watercourses ......................................................................................... 7
PIM in Haryana – A legal perspective ............................................................................... 8
4.1
Water laws: An overview ................................................................................................ 8
4.2
Operational aspects - equity ........................................................................................... 8
4.3 Management aspects ....................................................................................................... 8
4.3.1
Construction aspect ................................................................................................. 9
4.3.2
Maintenance aspect ................................................................................................. 9
5.
6.
*
Ground covered so far ....................................................................................................... 10
5.1
Model Bye-laws ............................................................................................................ 10
5.2
Guidelines for PIM ....................................................................................................... 10
5.3
Core Group on PIM ...................................................................................................... 10
Haryana model ................................................................................................................... 11
Engineer-in-Chief of Haryana Irrigation Department, Chandigarh (India.)
Member Secretary of the Core Group on PIM in Haryana, Chandigarh (India).
**
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
6.1
Page 2 of 20
Encouraging factors ..................................................................................................... 11
6.2 Legal Status of WUA ..................................................................................................... 11
6.2.1
Provisions in the Act .............................................................................................. 11
6.2.2
Issue of ownership ................................................................................................. 11
6.3
The working details....................................................................................................... 12
7.
Impact of PIM .................................................................................................................... 13
8.
Missing links in Haryana model ....................................................................................... 14
8.1
Financial sustainability ................................................................................................ 14
8.2
Assessment, collection and sharing of revenue ............................................................ 14
8.3
Democratic process of WUAs ....................................................................................... 14
8.4
Powers to WUAs for penal action ................................................................................ 15
8.5
Conflict resolution mechanism ..................................................................................... 15
9.
Impediments in PIM – An analysis .................................................................................. 15
9.1
Political patronage ....................................................................................................... 15
9.2
Ownership by the stakeholders ..................................................................................... 16
9.3
Ownership by the implementing agency ....................................................................... 16
9.4
Agricultural extension .................................................................................................. 17
9.5
Awareness, training and capacity building .................................................................. 17
10.
Conclusions ..................................................................................................................... 17
10.1 Political patronage ....................................................................................................... 17
10.2 Institutional options ...................................................................................................... 17
10.3 Share of stakeholders in investment.............................................................................. 18
10.4 Financial sustainability ................................................................................................ 18
10.6 Penal powers to WUAs ................................................................................................. 18
10.7 Conflict resolution mechanism ..................................................................................... 18
10.8 Amendment of Act ......................................................................................................... 19
10.9 Agricultural extension .................................................................................................. 19
10.10
PIM at distributary level ........................................................................................... 19
Annexure .................................................................................................................... 20
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
Page 3 of 20
Glossary
PIM
Participatory Irrigation Management
WUA
Water Users Association
IMT
Irrigation Management Transfer
HID
Haryana Irrigation Department
HSMITC
Haryana State Minor Irrigation and Tubewell Corporation
HIRMI
Haryana Irrigation Research and Management Institute
HAD
Haryana Agriculture Department
CADA
Command Area Development Authority
HWRCP
Haryana Water Resources Consolidation Project
O&M
Operation and Maintenance
AIP
Agricultural Intensification Program
DCO
Divisional Canal Officer
BCM
Billion Cubic Meter
MOU
Memorandum of Understanding
CCA
Culturable Command Area
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
Page 4 of 20
PIM Case Study India (Haryana)
‘Participatory Irrigation Management in Haryana’
By
R. K. Ailawadhi* and Rajeev Bansal**
Haryana Irrigation Department, Chandigarh, India
Haryana has played a great role in the ‘Green Revolution’ of India and is second
to Punjab for its contribution to the national pool of foodgrains. The state is ideally
suited for PIM due to number of factors such as consolidated holdings, well
defined equitable distribution of irrigation water, geographically small area, a
developed and efficient irrigation infrastructure, an old but established irrigation
agency and last but not the least well awakened stakeholders. Although PIM has
been practiced for a long time in the state in an isolated manner but had not been
conceptualized so far. During the last one-year or so this has not only been
conceptualized but launched as a major program also. The state is also in the
process of planning reforms in water sector and the issue of PIM is on the top of
the agenda.
The present paper is an attempt to trace the concept of PIM in the state in its
historical background, legal perspective, analysis of the existing model, missing
links and the impediments in its implementation and concluding with suggestions1
for an improvement in the program.
1.
Introduction
Haryana, a small state situated in northwest of India was carved out of the then joint
Punjab on November 1, 1966 and covers about 4.4 million hectare land area, of which
about 3.9 million hectare is arable. In the North, the state is bounded by the Shivalik
range of mountains and in the East by the river Yamuna. Aravalli range running south
of Delhi and the desert of Rajasthan form the boundary on the Southwest. In the
Northwest, the Ghaggar River forms part of the boundary with Punjab. The Haryana
plains, constituting a major part of the state, have an average elevation of 283 m. The
height of the ranges varies considerably & the Morni hills with an elevation of 1,499 m
is the highest point in Haryana.
The per capita income in the state is among the highest in India. The state has a
population of about 21 million and about 75% of the population is employed in the rural
sector. Though there has been considerable development in the industrial sector,
agriculture is still the major source of employment.
*
Engineer-in-Chief of Haryana Irrigation Department, Chandigarh (India.)
Member Secretary of the Core Group on PIM in Haryana, Chandigarh (India).
1
The views, analysis, concept and conclusions are the considered opinion of the authors and do not form
any policy of the department or government.
**
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
Page 5 of 20
Agriculture is the major user sector of water utilizing about 94% of the present supplies.
Yields of most of the major crops are high and average food grain yields are 30-40%
higher than the national average. Nearly 75% of the State’s arable lands are served by
irrigation canals.
The State is reaching its the limits of agricultural expansion and scope for further
development of irrigated agriculture is very limited unless corrective actions are taken
to conserve water by increasing water use efficiencies at tertiary canal and field levels.
Simultaneously, the problems of water logging and salinity in irrigated areas are
increasingly evident. The State has also to face frequent floods and inundation,
highlighting the problems of inadequate drainage.
2.
PIM – need in Haryana
Transfer of Irrigation Management to stakeholders is relevant in any irrigation system as
a practical solution for sustainability of water resources but as the following analysis
proves beyond doubt that PIM is a practical solution to the problem of the scarce
resource.
2.1
Surface water resources
The state does not have any perennial river and rain & groundwater are the only
naturally available water resources. Haryana is mostly arid or semi-arid, with limited
rainfall ranging from 300 mm in the southwest to 1,100 mm in the northeast. The state
lies in the basins of the Indus and the Yamuna rivers and receives water from Sutlej and
Yamuna rivers and its share from the surplus water of rivers Ravi and Beas, as per
various inter-state agreements, which is as under: 1
River
Share of Water for Haryana in various rivers
Share
BCM
Availability
in River
Agreement
BCM
1
Yamuna
5.730
11.983
Sutlej
5.248
17.281
MOU between partner states i.e.
Haryana, UP, HP, Rajasthan &
Delhi (1994)
Bhakhra
Nangal
Agreement
(1959)
Ravi- Beas
4.317
21.179
Agreement between
Haryana,
Punjab & Rajasthan (1981)
Reference respective agreements.
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
2.2
Page 6 of 20
Projected demands
The 1projected demands for all water uses for the year 2020 AD is about 40.7 BCM
(based on present trend/practices of water use), and ultimate potential (from all sources
including estimated return flows) in an average year is pegged at only 27.95 BCM.
Evidently, the future demands on the State’s water resources will far exceed the possible
water availability unless major initiatives are taken to correct the imbalance.
2.3
Need
This calls for a closer look at the current water use pattern and efficiency in order to
plan for sustainable exploitation of water resources in the State. The condition of
irrigation infrastructure, existing since long, is also deteriorating due to lack of adequate
maintenance. The possible solutions for this difficult situation are•
•
•
•
•
•
Economical use of water,
Conservation of water,
Efficiency in conveyance system,
Diversification of crop,
Shift to less water consuming crops
Conserving the environment etc.
The given scenario requires a massive effort but the control mechanism alone cannot
work as has been seen earlier. A partnership needs to be evolved for achieving this end
and water user is best placed for such a partnership, as all the possible solutions listed
above relate to only them. For this the forum of WUA can be very effectively utilized,
thus underlining the urgency of PIM with proactive role of stakeholders in irrigation
management.
3.
PIM in Haryana – A historical perspective
The canal irrigation system is very old in Haryana and it is believed that the first
irrigation channel was constructed during Mughal era. The first legislation for irrigation
and drainage was in 1873 and it can be safely concluded that the history of participation
of stakeholders in irrigation management is also as long, as their participation in the
management of irrigation at watercourse level has been there since irrigation systems
were developed. Participation of stakeholders in Irrigation Management essentially
consists of two major components - equitable distribution of irrigation water for all
users and efficient management of infrastructure. These aspects have been well covered
in the Haryana Canal & Drainage Act, 1974 and have been practiced with a great
amount of success. We shall discuss and analyze these aspects historically and as per
the legal provisions.
1
Reference Third Interim Report of the State Water Plan.
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
3.1
Page 7 of 20
Warabandia-equitable distribution of water
In Haryana Canal & Drainage Act, 1974, there is a provision for equitable distribution
of irrigation water called Warabandi i.e. water-turn (See Annexure), which is an ideal
mechanism for equitable distribution and has been quite effective. Section 55 of the
Haryana Canal & Drainage Act, 1974 provides that the Warabandi of an outlet1 will be
fixed by the Deputy Collector (Irrigation) with the active consultation of the
shareholders2. This participation is real and practical complete with consultation
process and suggestions of shareholders. After the Warabandi is fixed, notified and
published, it is practically implemented in field by the shareholders, again in a
participatory manner by mutual consent. Therefore, the role of the department is that of
a facilitator and not merely regulator. This statutory provision has not only been
existing for a long time but has been in force on most of the outlets. Therefore, this
provision and practice takes care of one important aspect of PIM.
3.2
Management issues
The second aspect of PIM i.e. management of irrigation infrastructure was also tackled
in the Act3 to quite an extent. Broadly there are four aspects of Management in
irrigation - Planning, Design, Construction and O & M. Sections 17-20 of the Act relate
to the planning part, making it mandatory for the irrigation agency to have consultations
with the stakeholders to find out their views and suggestions. During the construction
stage, shareholders are given the responsibility to keep vigil on quality of work, which
they generally assume readily and perform well. This aspect alone has resulted in an
overall improvement in the quality of works.
3.3
Maintenance of watercourses
There are a number of provisions in the Act starting from the very definition of the
watercourse, which makes it mandatory for the stakeholders to maintain the watercourse
and the government will not bear the cost of maintenance of watercourses. All these
provisions discussed in detail in chapter on legal perspective imply that the
responsibility of maintenance of watercourse has been entrusted to shareholders.
Practically also stakeholders have been maintaining the watercourses till state’s
intervention by way of lining of watercourses.
Therefore, historically the participation of stakeholders at watercourse level has been
quite successful. The Warabandi mechanism of equitable distribution of irrigation
water through participatory approach has been the hallmark of irrigation management in
Haryana. The concept of laying the responsibility of maintenance of watercourse for
such a long time is exemplary for the new concept of PIM. In practice too these two
aspects have been followed almost on all outlets since long.
1
An outlet on an average commands an area of 300-1300 acres.
The term ‘shareholder’ is used for farmers i.e. stakeholders in Haryana Canal & Drainage Act, 1974.
3
Hereinafter ‘The Act’ means ‘Haryana Canal & Drainage Act, 1974’.
2
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
4.
Page 8 of 20
PIM in Haryana – A legal perspective
In Haryana, the Northern India Canal & Drainage Act, 1873 was in force till 1974,
which regulated the irrigation system. Subsequently, Haryana Canal & Drainage Act
was enacted in 1974 replacing the earlier law. Both of these Acts contained almost
every essential element of participation of stakeholders in irrigation management.
4.1
Water laws: An overview
When Northern India Canal & Drainage Act, 1873 was enacted and enforced, India was
under the colonial rule of Britain. It was therefore, natural that the essence of the
colonial rule is found even in newly enacted Haryana Canal & Drainage Act, 1974.
When we look into the Act with this background, it is quite understandable that a
number of legal rights have been conferred upon the farmers but the duties and
responsibilities of users are also severe. Most of the provisions speak of the Austanian1
supremacy of state. But the other aspect of origin of the water laws may have been a
great vision to imbibe a sense of responsibility and self-dependence on the part of the
stakeholders. Whatever be the reasons for this legislation, provisions are there for
proper enforcement as a means for a better end.
Without going further into the argument on the issue of the origin or the basic objective
behind this legislation, let us look at the provisions objectively in the context of PIM.
This analysis is being carried out to establish the claim that PIM has got sound footing
in Haryana on legal front. Two main aspects of PIM – operation i.e. equitable
distribution of irrigation water and management of irrigation system have been
considered as basis in the context of legal provisions.
4.2
Operational aspects - equity
As already discussed in detail, the mechanism of Warabandi is an ideal case of equitable
distribution of irrigation water. This system has been in vogue for a long time and the
necessary provisions under section 55 of the Act are well established. Equity being so
well established in the state, Haryana has a great advantage in implementing the concept
of PIM.
4.3
Management aspects
The management of any infrastructure essentially comprises of two issues i.e. creating
the infrastructure and its maintenance for sustainable use of resources. In case of
watercourses also, management consists of construction and maintenance aspects of
watercourses. Both the issues find provisions in the Act under various provisions. We
shall examine both aspects with the provisions in the Act.
1
John Austin (1790-1859) propounded the theory of supremacy of sovereign and said that law is the
command of the sovereign, which is habitually obeyed by the subjects in ‘Province of Jurisprudence
Determined’.
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
Page 9 of 20
4.3.1
Construction aspect
•
Section 17 & 18 lay down the law for preparation and publication of a draft
scheme for watercourse or outlet and the consultation of shareholders in
mandatory.
Under section 19 (1) the DCO shall call upon the shareholders to implement the
scheme decided under section 18 (2) at their own cost and in case of their failure
to do so, undertake the construction work and recover the cost from the
shareholders.
There is a further provision under Section 22 that on failure of shareholders to
execute the scheme as per section 19 (1), the department may execute the same
and cost be recovered proportionally as per CCA.
•
•
Thus, we see that shareholders are involved right from the stage of preparation of a
scheme of watercourse or outlet and have been held liable for the cost of construction.
This aspect was earlier in practice when the state undertook the construction of
watercourses but recovered the cost from the shareholders in line with these provisions
but this practice was later dispensed with.
4.3.2
Maintenance aspect
The maintenance of watercourse has been the liability of the shareholders in every
provision of the Act and the following sections are brought out.
•
•
•
•
•
Section 1 (15) of Act defines watercourse as any channel, which is supplied
water from a canal but not maintained at the cost of government.
Section 16 of the Act makes the shareholders responsible for not only for
construction but also for maintenance of watercourse and to bear the cost jointly
with others and on failure to do so, such amount can be recovered as arrears of
land revenue.
Section 23 of Act empowers DCO to direct the shareholders to take over and
maintain the watercourse. It further provides that in case of failure on their part,
DCO shall make arrangements for maintenance of the watercourse at the cost of
the shareholders, which shall be recoverable as arrears of land revenue.
Section 27 (1) (a) further empowers DCO to stop supply water to any
watercourse or any person if the watercourse is not properly maintained to avoid
wastage of water.
In the penal provisions under section 58 (d) of the Act, a severe penalty has been
provided for neglect of maintenance of watercourse resulting in any wastage of
water.
These provisions are the enabling provisions for entrusting the job of maintenance to the
stakeholders without any need to resort to any emergent elaborate legislative action.
From the above analysis, it can be safely concluded that participation of shareholders is
not new to the state and the provisions of Haryana Canal & Drainage Act, 1974 in itself
are enough for participation of shareholders in irrigation management at basic unit i.e.
watercourse level.
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
5.
Page 10 of 20
Ground covered so far
Participation of stakeholders in irrigation management was in force in Haryana but was
not so well structured. It was in the year 1995 that PIM was given a serious thinking in
the state under the ongoing HWRCP by forming WUA, though some WUAs were being
made under CADA project. The following initiatives have so far been taken.
5.1
Model Bye-laws
In the year 1998, the state government approved Model Bye-Laws (To be adopted by a
WUA at the time of forming of WUA with appropriate suitable amendments) and Draft
MOU (To be signed at the time of turning over management to WUA on completion of
modernization or rehabilitation of a watercourse), for effective implementation of the
program in the state. These bye-laws brought a uniform code in all the WUAs and the
MOU practically transferred rights to the stakeholders.
5.2
Guidelines for PIM
Although these two documents helped in providing proper legal shape to these
organizations and to make their working uniform. Some WUAs were formed but the
effort did not provide the impetus to the program as envisaged. Therefore,
comprehensive guidelines were issued by the government in August 2000. These
guidelines contain general outline of the WUA, rules, regulations, duties, functions,
resources etc, based on the model bye-laws approved by the Govt. A procedure for
formation of WUA has been suggested in the guidelines, which is based on the social,
economical, political and practical aspects of the state.
The guidelines also lay down the roles and responsibility of officers/officials of service
agency. These guidelines also paved the way for bringing the onus of implementation
of PIM in the state on HID. It was felt that HID should be in the lead role for transfer of
irrigation management, as earlier this part was being looked after by HSMITC, which
was engaged in modernization & rehabilitation of watercourses.
5.3
Core Group on PIM
In order to accelerate and coordinate the program, a Core Group on PIM was formed in
Haryana Irrigation Department, which had members of all the implementing agencies
such as HSMITC, HAD, HIRMI. The core group prepared a comprehensive strategy to
implement the program, which included a mass awareness and training program for
WUAs and agency officials. The result was a better coordination, more acceptability of
the concept by farmers and the staff as well, culminating into a very encouraging
assessment of the program by the World Bank mission in December 2000. The results
of implementation of PIM at primary level have been quite encouraging and a
framework is being prepared for transferring the management at secondary level i.e.
Distributary level to stakeholders.
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
6.
Page 11 of 20
Haryana model
India is diverse geographically, socially, economically, politically and no two states are
alike. In the field of PIM also, Haryana has developed and conceptualized a model.
Most importantly, there are following factors, which are conducive for a good working
model in the state: 6.1
Encouraging factors
•
•
Haryana has the advantage of consolidation of land and well-defined areas under
an outlet.
The existing provisions of Haryana Canal & Drainage Act, 1974 are enough for
the time being to start a statewide roll out and for secondary level till a proper
legislative action is taken, which is rather time taking job.
By and large there is no problem of equitable distribution of irrigation water in
the state due to practice of Warabandi.
Stakeholders have been involved actively during planning and execution of
schemes for a long time.
Agriculture is the main source of livelihood and people are politically active.
Per capita income of the state is quite high so revenue generation for WUA is
not a big issue.
The level of awareness for rights in irrigation sector is high.
6.2
Legal Status of WUA
•
•
•
•
•
There are two issues regarding legal status of WUAs. The first is the provisions in the
Act, which can enable the state to entrust the entire management to stakeholders without
any legal complications. The second issue is the ownership right of the WUAs so far as
the watercourse is concerned. These are the main issues involved in deciding the legal
status of WUAs.
6.2.1
Provisions in the Act
As discussed in detail in chapter 4, there are sufficient enabling provisions,
which provide legal status to WUAs. These provisions are all pointing towards
a complete management of watercourse by the stakeholders on their own and at
their cost. The very definition of the watercourse lays down the responsibility of
maintenance on shareholders. Even the construction is also termed as complete
responsibility of shareholders, although these two jobs have been taken over by
the state as they involve a huge investment, which is beyond the present means
of stakeholders.
6.2.2
Issue of ownership
In this model, transfer of management of watercourse is complete when MOU is
signed between WUA and Executive Engineer on behalf of the government. In
the draft MOU (approved by the government) under the head Rights and
Responsibilities of WUA, the first right that accrues for WUAs is that WUA will
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
Page 12 of 20
have the ownership of watercourse and all other related works jointly with other
farmers. The ownership right has been vested in WUA jointly with all farmers
and as soon as MOU is signed, the ownership right is transferred. More rights
are accrued with MOU such as improvement, extension of lining, construction of
culverts, groundwater exploitation for augmenting the canal supply, information
rights, levy fees etc.
It implies from above discussion that WUA is a legal entity (duly registered), has
mandatory obligation for management of watercourse and acquires ownership right
apart from number of other rights on signing of MOU between the state and WUA.
Based on the positive factors listed above and the legal standing, a good working model
has been developed for Haryana. The working details of this model are as under: 6.3
The working details
•
When a scheme for modernization of watercourse is taken up, consultations are
held with the stakeholders for their views and suggestions.
Public hearing of all the stakeholders is held to decide all the features of the
scheme such as alignment, length etc.
WUA is formed there and then by consensus and is got registered under Indian
Societies Act by the managing committee of WUA.
On decision of the scheme, design and detailed estimate is prepared by the
agency and there is another consultation with the WUA so that detailed design is
explained.
WUA among itself constitutes a committee to supervise the construction work.
WUA is made aware of every aspect of construction including quality control
aspects by the agency.
Supervision committee regularly supervises the work and checks the quality of
work, duly recording its observations in the official records. WUA thus become
quality control managers.
Once the scheme is completed, WUA, agency staff carries out a joint ‘Walkthrough’ for inspection and hydraulic test of the watercourse.
Upon satisfactory result of the walk-through, MOU is signed between WUA and
agency effecting the transfer of the watercourse to WUA.
Funds are collected by WUA generally at the rate of Rs. 20 per acre of holding
but in some cases Rs. 100 is also collected.
These funds are being utilized by some WUAs for maintenance and routine
repair.
Till July 31, 2001, under HWRCP 1957 WUAs have been formed and 728
WUAs have been turned over to WUAs for management after completion of
scheme. This means that management of irrigation at below outlet level has
been transferred to stakeholders for roughly more than 0.4 million acre area.
Field staff is given training and general awareness about the concept of PIM by
HIRMI frequently and recently, a mass training program for all line staff at all
district headquarters was organized.
Field training to WUA is being imparted by line staff apart from workshops
being organized by HIRMI.
•
•
•
•
•
•
•
•
•
•
•
•
•
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
•
Page 13 of 20
Three tier-monitoring infrastructure for PIMb (See Annexure) has been put in
place and the job of this infrastructure is to foster PIM program, monitor the
process and suggest improvements in the program.
Therefore, Haryana model has all the necessary attributes i.e. theoretical, legal and
practical, which are the essential elements for a successful working model. This model
has been developed for the state and is unique to the state. The program of PIM has
been fully developed and made operational with these parameters and attributes. There
are few adjustments and improvements required, which shall be taken up later.
7.
Impact of PIM
PIM has had a tremendous impact on the management aspect of watercourses in the
state. An 1impact study (for methodology see Annexure) was conducted by HSMITCc
to find out the impact of PIM.
In the study-I, which was for 66 watercourses, where WUAs were in place after lining
of watercourse and the following conclusions have been drawn: •
•
•
•
•
•
•
•
•
The concept of PIM in Haryana is conspicuous by its simplicity and momentum
is gaining.
The condition of watercourses where no WUA exists was very poor as compared
to those watercourses, where WUAs are in place.
WUAs are fully involved in construction activities and are performing the role of
quality control managers. This onsite presence rather than offsite agency has
brought in improved quality of construction.
The level of awareness has gone up and with active partnership, an incipient
sense of ownership has also been noticed.
Tailenders are getting their due share and there has been a marked reduction in
time for water to reach the tail areas.
No conflicts have been reported on distribution of water.
Desilting, deweeding and cleaning functions have been adopted by WUAs as
their primary functions.
The social pressure of WUAs has taken care of reluctance and resistance of
upper reach farmers.
The process of walkthrough, decision-making and identification as a
hydrological group are there to take cognizance.
In the study-II, 18 watercourse were taken, where lining had been completed but no
WUAs were formed and following conclusions have been drawn.
•
1
In this study it was found that most of the watercourse were badly damaged and
severely silted.
Impact Study on PIM in Haryana by Sh. Arun Kumar, IAS, MD, HSMITC presented during National
Workshop on Water Sector Reforms in Haryana, May 29-30, 2001 at Chandigarh.
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
•
•
•
Page 14 of 20
In 70 % cases water was not reaching the tail end while in 30 % cases, it was in
meagre quantity.
There was no involvement of farmers groups and all expected the government to
take care of maintenance.
The level of maintenance ranged from extremely poor to no maintenance.
This study has proved that the PIM has had desired impact in the field and as the study-I
has proved that the concept of PIM has been accepted by the stakeholders in the present
form and structure. The comparison of both the studies establishes the fact that PIM
makes a difference in the conditions of infrastructure and the maintenance is very poor,
resulting in direct loss to the stakeholders. This has also established the contention that
the Haryana model is not only workable but also exclusive to its own circumstances and
needs.
8.
Missing links in Haryana model
No system can be perfect and Haryana model is also not an exception. The structure
has few missing links, which have been overlooked and need to be redressed. The
following links are considered to be attributed as missing links.
8.1
Financial sustainability
The present arrangement for financial sustainability is conspicuous by its absence.
WUA is working on its contribution of share money from members and no other source
has either been identified or fixed. It is true that the share money if collected in time
and made an annual feature (MOU gives this authority to WUA) will be enough for
routine maintenance work. But for long-term sustainability, a definite source of revenue
needs to be identified.
8.2
Assessment, collection and sharing of revenue
The present practice on this issue is that Canal Patwari (Irrigation Booking Clerk)
assesses the area under different crops and prepares the charges due from the
shareholders of a particular watercourse. There is an elaborate system of checks and
balances on this exercise. The revenue so accrued is collected by the district collector
through a separate infrastructure. Though there are provisions for exercise of a control
but the system can be simplified and made more transparent with active involvement of
WUAs.
8.3
Democratic process of WUAs
The elections of WUAs office bearers are by consensus and nomination in the present
set up. The names of office bearers are proposed and approved by raising hands in the
general body meeting. Consensus and unanimity are the essence of democracy but there
is scope for domination of WUAs by powerful social groups and suppression of weaker
or disadvantaged groups in the present arrangement.
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
Page 15 of 20
This system is working fine at the moment but once the real authority of WUAs as a
powerful water group is established, there will be a fierce competition for the coveted
posts of office bearers of WUAs. No provision has been made so far in the present
model for future also. Sh. Arun Kumar, MD, HSMITC has strongly advocated adoption
of election process exemplified in Andhra Pradesh in his paper1.
8.4
Powers to WUAs for penal action
All the penal provisions for offences relating to water, its application, use, management
etc. have vested the powers with the HID officers and there is not a single provision by
which the WUA can exercise such powers. WUAs can apply motivation, persuasion,
social pressure etc. to work as a control mechanism for efficient management but these
are not as deterrent and effective as penal action can be. Now this is a missing link,
which can become a stumbling block in the long run.
8.5
Conflict resolution mechanism
Till the PIM as conceptualized now was not in force, there were few conflicts and the
resolution mechanism was only in seeking recourse from HID under various provisions
of the Act. It is true that this course is still open to the stakeholders but with the WUAs
in the saddle for irrigation management, lack of conflict resolution mechanism is felt. A
system has to be put in place to provide for an effective conflict resolution mechanism
vested in WUAs. This will help in establishing the usefulness of WUAs in the social
context also.
9.
Impediments in PIM – An analysis
There is no doubt that PIM model of Haryana is ideal suited, given the geographical,
social, political, hydrological circumstances of the state despite missing links discussed
above. But the program is not getting the push it requires to get rolling and the
following issues are the core areas, which are considered the impediments and need to
be tackled to make the program not only a success but also a role model.
9.1
Political patronage
In a democratic federal structure like India, any ambitious program involving public
needs political patronage. In the state, till now PIM had been getting a low priority at
political level, than it was desirable. To make people not only aware of such an
important issue for mass appeal but also adopt and own it, a committed political
patronage is absolutely essential. No ambitious public program, howsoever well
designed and launched, will have mass appeal unless promoted politically by elected
representatives. This sensitive issue is now getting importance at the highest level and
has generated a great amount of urgency also. At this level there is a need for
awareness for masses, educating people and commitment at every level. Besides, a
1
‘PIM in Haryana’ by Sh. Arun Kumar, IAS, MD, HSMITC, presented in the National Workshop on
‘Water Sector Reforms in Haryana’ held at Chandigarh on May 29-30, 2001.
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
Page 16 of 20
well-structured mechanism for policy formulation, implementation, monitoring,
adjustments and improvements in the program is also inadequate, which is necessary in
our democratic set up to work as the most important link.
9.2
Ownership by the stakeholders
As far as the history goes, farmers had been maintaining the watercourses themselves
till these were lined and are still doing so in case of unlined watercourses. The question
is what goes wrong when a watercourse is lined? The reason is quite simple that the
investment on lining of watercourse is entirely made by the state. As a result, the
shareholders loose the sense of ownership of the watercourse and start looking upon the
state for every aspect of watercourses, most importantly the maintenance. It is the
intervention of the state in creating the infrastructure without any share of the
stakeholders in investment that the shareholders change their perspective to see the lined
watercourse as a state property.
The essential requirement of success of PIM at primary level is to imbibe a sense of
ownership of watercourse in its stakeholders. No interest can be created for
responsibility for O&M alone unless there is a sense of ownership. Since in the present
arrangement stakeholders do not have any share in investment for lining of watercourse
and this lack of involvement prevents from getting sense of the ownership, although
complete ownership is transferred to WUAs with the signing of MOU. This is one of
the core issues, which needs to be tackled with a socialistic approach, as the legal status
of WUAs is quite sound.
9.3
Ownership by the implementing agency
Since 1995 transfer of management of watercourses to the farmers after modernization
and rehabilitation has been taken up by HSMITC, which is a state owned corporation
and lining of watercourses has been its main activity for a long time. Prior to formation
of Core Group in 2000, HSMITC was doing the job of IMT at watercourse level
exclusively in isolation.
The problem in this arrangement was that apart from framing and executing the scheme
of lining of watercourse, HSMITC officers had no other power in Haryana Canal &
Drainage Act, 1974. Now there are a number of other related areas for which farmers
had recourse only with HID. Therefore, it was felt that HID should get involved right
from the formation stage rather than hopping in when WUA is in the process of taking
over the responsibility from HSMITC. This issue has been tackled in the guidelines on
PIM, which envisage involvement of HID right from the initial stage and has been
entrusted the job of fostering the WUAs once transfer has been affected.
But this has led to confusion. The initial stage is planning and executing the scheme,
which is done by HSMITC staff, which develops a partnership with WUA during this
stage. But as discussed, it cannot continue with this partnership, once management has
been transferred to WUA. On the other hand, HID has to nearly start afresh with WUA,
once WUA takes over management. This shared responsibility has hampered the
progress and in many cases WUAs have been left unattended. This is a big impediment
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
Page 17 of 20
at this stage and its impact will be felt later say after 3-4 years when the WUAs will
become inactive due to non-ownership and proper nurturing by any agency.
9.4
Agricultural extension
The state has got an active agriculture department and an agriculture university also.
Both have a lot to its credit in agriculture development but extension of agricultural
services to WUA has not been as effective as it was expected. It is true that AIP was
introduced at a late stage of HWRCP but has not been geared up in the time available.
Availability of agricultural know-how at the WUA platform is a great incentive for
WUA members and lack of it has deprived the program a definite thrust.
9.5
Awareness, training and capacity building
Awareness of the concept and comprehensive training of farmers and trainers form the
backbone of transfer of irrigation management. This issue has been taken up in the state
with the active involvement of HID, HIRMI and HAD but the effort is not enough, as
the job is gigantic. The present institutional arrangement is also inadequate for this kind
of mass mobilization and training. The statewide launch program envisaged an
ambitious training program but it did not have the required institutional infrastructure,
resulting in less realization of projected goal. Consequently, there is lack of a
systematic capacity building for the process for PIM for agency staff and stakeholders.
10. Conclusions
The state has the definite advantage of consolidated command areas, a well-developed
irrigation infrastructure, long-established mechanism for equitable distribution of
irrigation water, a sound agricultural know-how and statutory provisions to take the lead
in the field of PIM. A detailed analysis of the model and impediments clearly indicate
the need for some solution and strategy. The PIM program needs to be made
sustainable at the inception only and a little push will take this program ahead. The
following suggestions are given for the positive improvement in the PIM program in
Haryana.
10.1
Political patronage
Political patronage for ownership of the program and spreading the message across will
provide necessary impetus to the program. PIM will have a better mass appeal, when
elected representatives promote it. Once ministers and legislatures are committed to
PIM and strongly advocate the cause of PIM, it will be far easier for the stakeholders to
get convinced to own the program. The message from this forum will spread faster and
have far better results than by the irrigation agency.
10.2
Institutional options
Second important issue is duplicity of the work by HID & HSMITC. This is the second
most important aspect, which is a big impediment in achieving what has been planned.
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
Page 18 of 20
There should be one single agency, which is responsible for WUAs right from the
beginning, fostering & nurturing it all along till it becomes self sustainable. A suitable
mechanism for entrusting this job to one agency has to be developed if this program is
to be made successful. The process of on-going planning for reforms in water sector in
the state can be suitably designed by way of institutional restructuring to fulfill this
need.
10.3
Share of stakeholders in investment
There can be no true sense of ownership of watercourse even though in paper ownership
rights are transferred to WUA jointly with other farmers unless stakes are there. This
can be made feasible by a suitable design in the form of share in the initial investment,
which can be nominal and a percentage and can possibly be made initial capital for
WUAs for O & M activities later on. But some mechanism should be evolved for
investment share.
10.4
Financial sustainability
Financial sustainability being an important aspect, a mechanism needs to be developed
for providing financial sustainability to WUAs. The possible solution can be entrusting
the job of realization of revenue and a cut in it and a percentage in the revenue realized
for O & M works. This will also plug the possibility of under-assessment, concealment
and default when WUA is involved in assessment and realization of revenue.
10.5
Democratic process
PIM at present in Haryana is in a workable form but for long-term sustainability, a
democratic process for WUAs will have to be provided for. Consensus and unanimity
are all right in a small group but when distributary level is being planned, a mechanism
for democratic process for elections of WUAs should be evolved.
10.6
Penal powers to WUAs
The WUAs must be provided with penal powers for offences such as wastage or theft of
water, non-contribution in the affairs of WUA, neglect of maintenance aspect, damage
to property, obstruction of irrigation or drainage system etc so as to equip WUAs to
exercise controls over these offences. There may be reservations for such powers on
account of apprehensions for their misuse but mechanism can be developed to prevent
such misuse.
10.7
Conflict resolution mechanism
The intention and objective of PIM in Haryana is to transfer complete management to
the stakeholders by transferring the ownership rights. In this context, it essential to
devise a suitable conflict resolution mechanism vested with WUAs. This will become
an effective tool for making the entity of WUAs more acceptable, as the conflicts are
bound to increase in the initial stages.
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
10.8
Page 19 of 20
Amendment of Act
There is no doubt that the existing provisions in Haryana Canal & Drainage Act, 1974
are enough for launching of PIM in Haryana but for taking the program higher i.e.
distributary level or even higher, suitable amendments in the Act are warranted. Even
the provisions suitable for PIM, as discussed in detail in chapter 4 need improvement.
There are some other issues of the Act, which have become obsolete in the present
context, which require amendment. Therefore, a comprehensive review either with a
new Act or comprehensive amendments is recommended.
10.9
Agricultural extension
Since providing agricultural know-how at the level of WUA is a great incentive, there is
an urgent need for developing an institutional arrangement for the same. In fact a
combined working group consisting of HID, HAD officials engaged in PIM program at
grass root level can be planned in such a way that all necessary information is provided
to WUAs in single interactive meetings. Awareness, training and workshops for a
group of WUAs at a central place will be able to provide the essential impetus to the
program.
10.10 PIM at distributary level
For IMT at secondary i.e. distributary level, a mass awareness program and a
comprehensive training program needs to be developed. Detailed statewide public
consultation must be taken up before designing and implementing structure for
secondary level IMT. Use of media and other modes need to be designed and launched.
Need-based training program for PIM within the framework of Haryana model will go a
long way in launching this program as a major initiative for one of the major reforms in
water sector.
Final word
Transparency, accountability, capacity building with periodic reviews, improvements,
adjustments will take this program successfully through its teething period. With high
priority to PIM program by the government, suitable mechanism for implementation
and fostered acceptance by the stakeholders & agency will not only strengthen but also
take this program to greater heights to make PIM in Haryana a role model.
____________
Case study of PIM in Haryana (India)
By R.K. Ailawadhi and Rajeev Bansal
Page 20 of 20
Annexure
a
Brief Concept of Warabandi
Warabandi has been designed to take care of each aspect of conveyance of water to the
fields of farmers. The command area of an outlet has been fixed nearly for all agricultural land
in the state and the discharge of an outlet is fixed as per the water allowance, which varies as
per canal command. The weekly schedule is prepared by calculating time per acre i.e. 168 hour
(7 days of a week) divided by total command area. Turn of each farmer holding is decided as
per the flow of water and time is calculated for his area. Time taken for water to reach an
individual is added to his turn as filling time (Travel time of water from last point to farmer’s
holding), which is generally 4-5 minutes per acre length travel. Additional benefit to a holding
when water is stopped but continues to run as residual water in the watercourse is reduced from
his turn, which is 2-3 minutes per acre length. This entire arrangement is decided by due
consultations with the farmers and invariably their suggestions in term of turn, filling time and
draining time are accepted unless there is a dispute.
b
c
Monitoring Infrastructure
1.
Core Group under the Chairmanship of Chief Engineer (Water Service), with
following members
(a)
Chief Engineers of water services units & MITC.
(b)
Director HIRMI.
(c)
Nominee of Agriculture Department.
2.
Irrigation Monitoring Committees (IMC) at District level
under the
Chairmanship of Superintending Engineer Water Services Circle with following
members(a)
All Executive Engineers of Water Services Divisions, MITC and CADA of
the District.
(b)
Deputy Director Agriculture Department.
(c)
Deputy Collector of Haryana Irrigation Department.
3.
Irrigation Services Committees (ISC) at Water Services Division level under the
Chairmanship of Executive Engineer Water Services Division, with following
members(a)
Sub Divisional Officers of the Water Services Division.
(b)
Zilladars of the Water Services Division.
(c)
Agricultural Development Officers within the divisional area.
Impact Study on PIM in Haryana by Sh. Arun Kumar, IAS, MD, HSMITC
The methodology adopted was by selecting 66 watercourses, where WUAs have been
formed in Study-I and 18 watercourses where no WUA was formed but the common factor was
that all these watercourse had been lined. The watercourses were spread over the entire
working area and were representative. Besides, there were two more studies but we shall not
refer to them being beyond the scope of present paper.
A detailed questionnaire was given for primary and secondary sources. The primary
data was collected by interviewing members and non-members of WUAs in the field. The
secondary data was collected from various field offices. The data so collected was processed
and analyzed to arrive at conclusions.