Professional Documents
Culture Documents
Nitin Kaushal1
The biggest happiness in a farming community is the arrival of water in the canals and
that brings lot of enthusiasm among the farmers and especially the kids. This minor was
recently rehabilitated and has got water for the first time after the rehabilitation work
under the UPWSRP.
Background
The author has been part of various assignments under multimillion dollars Uttar
Pradesh Water Sector Restructuring Project (UPWSRP) and Madhya Pradesh Water
Sector Restructuring Project (MPWSRP). Both the projects are funded by the World
Bank. The UPWSRP which started in 2001-02 has Ghagra-Gomti Basin (including
Sharda Sahayak Scheme) as project area whereas the MPWSRP started in 2005-06
has five river basins as project area, namely Sindh, Chambal, Tons, Betwa and Ken.
Both the projects are still continuing.
The overall objective of both the projects is irrigation sector reforms to facilitate
required policy, institutional, administrative and field level interventions with an
objective to ensure uplifting economical and social status of farming community as a
whole. Further, it has also been envisaged that, such projects will make the
Irrigation Department (in UP)/Water Resources Department (in MP) more efficient,
accountable and transparent.
With the help of this paper, the author intends to explain his role in both the
projects, the challenges, opportunities, and various positive and negative vibes he
Senior Manager Water Resources, Policy and Hydropower, WWF India, New Delhi.
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experienced during his long association of about eight years (i.e. from 2002 to 2009)
with both the projects.
Introduction
The authors first intensive involvement 2 began in the year 2002, when he
spearheaded various exposure visits of farmers from the state of Uttar Pradesh to
other Indian states where the irrigation reforms are going on (mainly Andhra
Pradesh, Madhya Pradesh, Maharashtra etc.). This engagement also included
conduction of numerous training and capacity building programs for farmers from
UP. This activity was part of UPWSRP.
Next engagement 3 started in 2004 as a part of a multidisciplinary team of
international and national experts involved in Institutional Strengthening and
Restructuring study component of the UPWSRP.
Later on he undertook assessment, documentation, guidance and monitoring of
environmental aspects while taking up canal rehabilitation. He also tried to assess
the extent of integration of environmental considerations in canal and allied
infrastructure rehabilitation under the team engaged in Technical Examination of
Physical Works on the Canals for the UPWSRP. This was from year 20064.
Lately in 20075, he was a vital member of team engaged in Capacity Building of
Water Users Associations (WUAs) in Madhya Pradesh as part of MPWSRP.
Specifically, the author was engaged in such efforts for the Sindh Basin covering six
administrative districts, i.e. Gwalior, Bhind, Morena, Shivpuri and Sheopur.
For the sake of clarity, abovementioned involvements shall be discussed
individually throughout the upcoming sections of this paper. These four different
involvements are named as innings, i.e.
a. Inning I includes involvement for Exposure Visits and Capacity Building
activities (UPWSRP)
b. Inning II for engagement in Institutional and Restructuring Study
(UPWSRP)
c. Inning III for assessment, documentation and Monitoring of Environmental
Aspects/activities (UPWSRP)
d. Inning IV for engagement under Capacity Building Programme for WUAs
(MPWSRP)
Finally the Way Forward section will have blend of various ideas and lessons to be
learnt from all these engagements.
As Project Coordinator with Indian Network on Participatory Irrigation Management, New Delhi.
As Social and Environmental Professional with SMEC Australia Pty. Ltd. Lucknow.
4
As Environment Expert with SMEC Australia Pty. Ltd. Lucknow.
5
As Water Resources Management Expert with SMEC Australia Pty. Ltd. Gwalior.
3
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Interventions
UPWSRP
Prior to 2000, the state of Uttar Pradesh hardly witnessed major sectoral reforms in
irrigation. One of the notable includes the Upper Ganga Modernization Project;
however that was site specific and not mandated for overall sectoral review for the
state. Therefore, at the time of preparation of Project Appraisal Document for
UPWSRP, an integrated approach was adopted and so there was an attempt to
address policy, institutional and administrative reforms through this project.
The concept of Water Users Associations or Irrigation Management Transfer was
entirely new to the irrigation bureaucracies of the state, so understandably this was
considered as a threat by many legitimate and illegitimate stakeholders.
On the other hand, the words like rationalization of irrigation tariff; punitive rates
etc. was totally unacceptable to the farmers. This problem compounded due to
various interests known to everyone.
Inning I
As part of tasks assigned to the author, he lead many exposure visits and capacity
building initiatives for the selected farmers from UP. The visiting groups nominated
by the Irrigation Department were usually a mix of updated youth, veteran farmers
and few down-trodden marginal farmers who hardly understands whats going on.
Some departmental field functionaries of the rank of Assistant Engineer or Junior
Engineer also accompanied the groups.
The Exposure Visits included visits to irrigation systems and interactions with
counterparts in other states, which are considered to be the frontrunners in
irrigation reforms. The visiting team also witnessed similar ongoing training
programmes for the WUAs/farmers of host state. These activities proved to be very
fruitful to farmers in many ways, one such instance is narrated in the box.
During one of the Exposure Visit to Samrat Ashok Sagar project in Madhya Pradesh,
the visiting farmers from UP were stunned to see the lack of water availability which
forced the farmers over there to have one crop (with some ease) but lots of problems
in getting water for second crop. However the farmers over there are somehow
managing with the problem and the institution of WUA is very helpful in that.
The farmers from UP candidly accepted that, we are very fortunate that we are able
to have 3 crops in a year without much troubles, but we also wastes so much water,
which can be conserved. This visit has been an eye-opener for us.
The idea of Exposure Visit does not necessarily mean that, we should only show good
and progressive things, sometimes showing hard realities also bring positive vibes.
Initial involvement with department and later on with the community leads to
conclusion that, there are two key issues which require immediate attention
i.
spoil the behaviour of farming community to the level that, they will start
having high-handed approach.
ii.
Inning II
Next role as a member of team engaged in Institutional and Restructuring Study for
the UP Irrigation Department. Here the key role of the author included providing
local contextual know-how in regard to social and environmental issues pertaining
to the study. This input was given to a multidisciplinary team of international
(mainly from Australia, Sri Lanka, Italy, US etc.) and national experts.
While working under this assignment, the author conducted numerous one-to-one
interviews/group-interactions with departmental field functionaries and high rank
officers, including Chief Engineers and Head of Department. He also held discussions
with other associated departments/agencies (like Command Area Development
Authority, Ground Water Department, Jal Nigam, Agriculture Department, Extension
Services, Panchayati Raj Institutions, NGOs engaged in similar activities etc.) to
understand the inter-departmental dynamics and issues. Since the purview of this
assignment was whole of state, so these activities were undertaken throughout the
state, right from Jhansi to Haridwar (at that time Bhimgoda Barrage and Eastern
Ganga Canal was under UP Irrigation Department), from Varanasi to Bareilly and
from Gorakhpur to Agra. However, the farmer level interactions were also held but
at a relatively lesser scale.
Its a sad state of affairs where both department and farmers curse each other for
various reasons. The overall scenario observed during these exercises include
following key points
For field functionaries and field officials:
i.
The level of satisfaction and hope for better future among departmental
field functionaries in abysmal. This is mainly due to unjustified
interventions by superiors at various levels.
ii.
There has been multilevel monitoring and checking for everything. This
often encourages pressures for illegitimate means.
iii.
iv.
v.
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It is felt that, due to the pressure from World Bank there could be some
positive institutional and administrative developments, but this is bound
to fail as the project finishes. Reason for the same lies in the same basket
as for first two points.
vii.
Over the period of time, the big landlords which contributes to majority
of canal offences have become so strong that, they pressurize the
department and department is unable to check this.
ii.
iii.
iv.
There is no will and intention to check and control the defaulters and
offenders; and that is why canal offences are at all time high.
v.
Understandably, like in any other walk of life, there have been loads of allegations
from both sides, some are justified and some are irrational. Actually there is huge
trust-deficit and thats why the overall situation is really grim and if this sad state of
affairs is allowed to continue, then there is every possibility that the system will
collapse one day and private players will be invited for operation and maintenance
of vast canal systems of the state.
On part of the team engaged in this study, every effort was made to ensure smooth
coordination (including meetings, interactions) with the department. In fact, when
the Study of Institutional Strengthening and Restructuring was in advanced stage,
several workshops, meetings were held to get the buy-in from the department
officers and field functionaries, but the very prejudice that, this exercise is to chop
down the workforce strength of the department had its way and lots of criticism
and opposition was experienced. This all was to the extent that, the study itself
taken double the allocated time, i.e. four years instead of two years. Part of the
reason was mammoth Review Committee and random transfer of higher posts in
the department, which are involved in key decision making related to the work.
During three months dedicated study on existing status of WUAs in project area was
spearheaded by the author6 and during the field visits, it has been found that since it
6
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is a preliminary stage so it will take a while to make them functional. But there were
strong indications that, farmers are looking positive and unlike the perception that,
cooperative movement is not possible in UP the survey team observed many
incidences indicating acceptance about WUAs and working together for the canals
and its upkeep. Couple of incidences is reported below:
Both above discussed incidences are minor ones, but an obvious indicator of
positive synergies. This assessment of three WUAs under Haidergarh division
provided glimpse of initial trends on an institution in building. It is true that there is
a long way to go but one should remain optimistic and try to do his bit without
prejudices.
During the Institutional and Restructuring Study (UPWSRP), one of the key lessons
learnt by the study team is the requirement of dedicated and right-sized Review
Committee and continuity of decision makers for making appropriate decisions on
deliverables of the study. However, it is learnt that, now the department is building
their case for strengthening and restructuring around the reports of the same study
(of which the author was part of).
Inning III
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After setting up the Basin office at Gwalior, the team had collected BaselineInformation from various WUAs falling within the Basin and also collected names of
probable candidates, which may be considered for the post of Community
Organizers (COs) through the interviews by the expert panel. Initial rapport building
was considered to be the essential step in this work, where the WUAs and
associated department field functionaries should know the working team and
remain aware about the works to be done under this assignment.
During field visits there were many
instances,
where
we
had
discussions and meetings with the
WUAs in their offices. These WUAs
are doing comparatively better than
others. The forward looking,
politically active and
better
informed WUA Presidents and
members could be the real
messengers for exhibiting the
changing environ in terms of WUA
empowerment. The WUA President,
concerned CO and some members
of Basin Team can be seen in the
photograph
The candidates for the COs were educated youth (usually graduate) from the
villages falling under the WUAs. The employment of COs for the project duration
was considered as a lucrative opportunity by many WUA opponents and there have
been numerous pressures on the working team to employ the favoured ones, as
there were about 450 names for the selection against 70 posts of COs. Whereas, the
team thought that, this was an opportunity for the WUAs to suggest those persons
whom they want to work in their respective areas. So the team only considered the
advice of WUAs and concerned field functionaries from the department. Each CO
took charge of 2 to 3 WUAs. The whole process of selection of COs was very rigorous,
it included initial screening, thereafter interview by the Expert Panel (comprising of
Basin Team and a nominated senior officer by the Chief Engineer of the Basin).
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The concerted efforts of COs and Basin Team led to several fruitful results from
several WUAs, notable among them included
i.
ii.
iii.
iv.
v.
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ii. Mr. Jagdish Singh Dhakad Kaketo WUA President Kaketo Canal System
iii. Mr. Dev Sharan Panda Badi Akbai WUA President Harsi Canal System
iv. Mr. Gurdeep Singh Brigma WUA President Harsi Canal System
v. Mr. Dhakde Nonera WUA President, Chambal Canal System
vi. Mr. Badan Singh Morena WUA Chambal Canal System
vii. Mrs. Kusum Vyas Pehsari WUA Kaketo Canal System
viii. Mr. Narayan Singh Kushwaha Chinor WUA President Harsi Canal System
ix. Mr. Madanpal Singh Pavaiyya Mehgaon WUA PresidentHarsi Canal System
x. Mr. Jagdish Kansana Udalpada WUA President Udalpada Minor System
It is true that some of them are having political aspirations, but there is nothing
wrong in it as long as they are able to serve the very purpose of the institution,
called WUA. These individuals could be the catalyst for change. It is often said that,
WUAs work for their personal vested interests; but if that is the case then this is for
everyone in the social life. So this argument cannot withstand, as the very idea of
empowering the WUAs could be offending to several stakeholders but this should
not derail the whole concept and its progress.
The relentless support and enthusiasm from the COs is another highlight of the
project. The COs were always quick to point out any issue pertaining to WUAs and
its functioning. The project team extended all the support, guidance and technical
advice to them, so that they can be effective communicators and trainers in the field.
The project team often heard that COs are working for money. For anybody to work
the first reason is to earn livelihood, the same is the case for COs. So this argument
does not make much sense. The level of positive energy and enthusiasm is
phenomenal among the COs, and while winding up after the project it was suggested
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that, selected COs should continue with the WUAs, if the demand is there from the
WUAs. Here, it is to be clarified that, there is no attempt to build the case for COs.
Infact out of 70 COs, about a little more than half were very good and rest fall in
different categories from satisfactory to average. The only intention over here is that,
since WUAs comprise of less-educated, less-updated individuals, so it will be a good
idea that if a local energetic youth could be engaged with them on performance
basis, then this can make big difference for the WUA. One has to adopt a cautious
and firm approach while thinking so, as pressures from various stakeholders are
inevitable.
At this juncture this must be mentioned that, this project is one the most successful
projects with which the author has been part of. The very approach is highly
participatory, right from selection of local field workforce, i.e. Community
Organizers to implementation of various activities at the field and at the level of a
WUA. There has been many projects amounting to multimillion rupees, but it is
often observed that the trickle down impact on the real needy ones is inadequate,
but here is an example where there are some meaningful benefits to the farmers.
Comparative Analysis of scenarios in Uttar Pradesh and Madhya Pradesh
There are several areas, which require attention and course correction at both the
ends, i.e. department and WUAs/farmers. Here it is tried to bring them under
specific sub-heads.
i.
Farmers empowerment
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Many lessons can be learnt, for which attempt has been made to bring them with
brevity in next section. It is hoped that, UP shall learn lessons from developments in
MP and will be cautions enough, so that it do not repeat the mistakes.
ii.
Preconceived notions
There was an added advantage to informally interact with scores of field officers
and functionaries. There has been common perception that, the morale of the
departmental workforce is all time low, with relatively no hope for future. Very few
of them want their offspring to be in the department, whereas in the past it has been
a matter of great prestige to work for these departments. Part of the reason is
multinational and corporate culture, where they dont really match with their other
batch-mates working for MNCs and corporate world. This feeling coupled with
growing levels of pressure from everybody right from district administration,
politicians, contractors, big land-lords etc. leads to further diminishing of morale.
iv.
A change in this regard is being felt, as the MIS is gradually replacing the existing
reporting processes, but here also basic facilities, like power back-up is essential for
the MIS to functions efficiently. Whereas, for monitoring of works there is a need for
revamp of existing mechanism or at least radical changes in the same. There has
been number of instances reported by many field officers that, now-a-days there is
less emphasis on authentic technical inspections and monitoring and more on other
trivial aspects. Even the inspecting officers often dont issue Inspection Notes,
which used to be considered as mandatory in the past.
v.
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With the help of both the projects there is going to be marked improvement in the
dilapidated canal infrastructure, which should trickle down to service delivery at
the farmers level. Initial results of Harsi Canal System in MP are showing optimism,
this is also due to the reason that its a closed system and water availability can be
conveniently predicted, unlike the irrigation projects of UP, where the reliability in
availability of water is often uncertain and thus leading to widespread disagreement
and resentment among the farmers. Compared to Central and Eastern UP, the
situation in Western UP is far better because of being at the head of Ganga Irrigation
Canal Systems.
vi.
Linkages
In MP, as of now there are lack of concrete provisions to link WUAs with other
departments and agencies involved in number of connected activities, like animal
husbandry, horticulture, fisheries, input providers, corporate buyers, mandis etc.
Through the Capacity Building project (discussed earlier), efforts were made in that
regard and there has been many success stories. This strongly indicates the need for
ensuring these linkages. This will also help WUAs to remain active throughout the
year rather than just during the irrigation seasons. All this is currently not evident in
UP, as the reforms in regard to WUAs are still in the initial phase, but yes ofcourse!
The same can be replicated.
vii.
Connecting link
As known that, currently the WUAs lack capacity to manage many things like the
linkages (as suggested above), so there will be a need for connecting link, which
could be a local educated youth in the form of a Community Organizer. Recent
experience of Capacity Building project indicates that, they can be of great help if
their services are utilized properly. It is understood that, World Bank and for that
matter any funding agency cannot fund such activities permanently and at some
stage they have to phase out. So ways and means should be explored for sustaining
the services of COs. One possible option could be that, in addition to usual grant to
WUA for administrative and O&M purposes, the same can also be accommodated.
However, ideally the WUA should generate funds for sustaining the COs. It is
imperative to establish provisions for ensuring impartial selection of COs.
The utilization of services of COs for disseminating the schemes of
departments like Animal Husbandry, Fisheries and Horticulture had become
quite prevalent in the districts of Sheopur, Shivpuri, Gwalior, Bhind and
Morena. Even the district officers from these departments candidly accepted
that COs were quite handy for this task because they belong to respective
areas, whereas their own extension workforce has limited reach.
viii.
Interdepartmental dynamics
Its an open fact that, interdepartmental linkages are highly inefficient and
invariably ineffective. There is a need to bring in a cohesive approach, so that the
required complementing can be ensured at all levels at inter and intra departmental
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level. During the work, many dynamic field officers/functionaries exhibited positive
synergies and there is a need to build upon this.
ix.
Institutional reforms
Institutional reforms are essential to keep pace with changing environ at all levels in
the irrigation sector. In this aspect, the state of UP is relatively ahead of MP, where
numerous positive steps has been taken, that mainly includes
a. Revision of State Water Policy in 2004 to prioritize, industries over irrigation
sector for allocation and usage of water resources
b. Uttar Pradesh State Environment Policy, 2006
c. Establishment of State Water Resources Agency (SWaRA) for data collection,
maintenance, usage and analysis for water resources management of the
state. This entity now also acts a technical secretariat for Uttar Pradesh
Water Management and Regulatory Commission
d. Enactment of Uttar Pradesh Water Management and Regulatory Commission
Act, 2008 and constitution of Uttar Pradesh Water Management and
Regulatory Commission. Their main job is regulation and rationalization of
water cess (usage charges) across the users among water sub-sectors in the
state. In this task the SWaRA is providing technical support to them.
e. Enactment of Uttar Pradesh Participatory Irrigation Management Act, 2009.
This act thrusts upon participation of water users and more specifically the
farmers. The Act also stresses water use efficiency. In this specific matter, the
state of MP is ahead which enacted similar Act way back in 1999.
f. Currently the state of UP is having widespread deliberations across the state
for the State Groundwater Bill.
The SWaRA, which is now contemplating conjunctive use of water and revision of
water cess for the water users, needs to be strengthened as a premier state level
agency, so that the wealth of technical expertise and experience at SWaRA can be
realized and utilized. Similar institution in MP is also established and in the times to
come it is hoped that the same will be key entity for aspects pertaining to water
resources in the state.
Way Forward Lessons to learn
Its high time that people should understand that, the existence of WUAs is an
intermediary phase in the evolution of irrigation practices. This is right here
because; there has been collective failure at the government level to meet the rising
demands of farmers, which has to feed ever-growing population and also wish to
raise their socio-economic status.
The failure of WUAs will bring another era, called privatization which will be
devastating for the state run irrigation departments. Infact that will also not be in so
much favour for the farming community, as the level of security and services
provided by government run departments to farmers has been immense in the past,
which has spoiled the farmers to an extent. Whereas, when the private players take
control of canal and associated infrastructure, then their sole objective is to earn
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profits and this in turn could bring excess burden on farmers in terms of exorbitant
water cess and other taxes etc.
It has been often stated that people gets into WUAs with monetary interests, which
may be true to some extent; but lets face the reality that, who on this earth is willing
to do free service to the society. This principle is valid for all the walks of life, so why
to blame WUAs and for that matter even the department. Rather than cursing them,
there is a need to come out with positive suggestions and stringent mechanism to
check such practices.
It is imperative for both the department and farmers/WUAs that, they look forward
to each other and try to bridge the gap, so that the departments and WUAs can
become self-sustaining. This is probably the only way to avoid upcoming threats like
privatization.
No system in this world is cent percent efficient; there have always been inherent
problems with the systems and processes which reduces their efficiency levels. So
one should not expect miracles and paradigm shift in the level of irrigation
efficiency through WUAs, but of course a marked improvement can be felt provided
the positive synergies are strengthened.
The author is benefited immensely while working for both the projects in different
capacities. To sum up, all the suggestions with cautions from various aspects are put
together at one place for easier consideration.
i.
ii.
Enhance the scope of work and services for WUAs, so that they can
remain active and involved in other vital activities other than
Operation and Maintenance of canals.
iii.
iv.
Specifically for the state of Uttar Pradesh, need for five to eight
years massive Capacity Building programme for WUAs. In such a
programme, for the sake of sense of ownership for WUAs and reforms,
the local youth should be made integral part.
v.
vi.
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vii. Mutual
consultations
between
the
department
and
WUAs/farmers are required to be more frequent, so that
everybody remains aware about various developments and activities.
This can potentially raise acceptance levels.
viii. For monitoring of quality of physical works, the WUAs should be
made party along with the department. Plus there could be third
party inspection as well and for which the funds should come from
state government directly, so that there is no accusation that they
have become party to department or WUA. The COs can also play vital
role here.
ix.
x.
Identify, disseminate and replicate success stories at underdeveloped and ill-informed areas. Further, a project on these lines
may be conceived under which, the key objective should be to
exhibit the positive vibes of the reforms.
---x---
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