STATUS OF PARTICIPATORY
IRRIGATION MANAGEMENT (PIM) IN INDIA
POLICY INITIATIVES
TAKEN AND EMERGING ISSUES
1. Introduction
Since 1985 Ministry of Water Resources has been i management of tertiary system in the projects covered under the Centrally Sponsored Command Area Development Programme. The concept of involvement of farmers in management of the irrigation system has been accepted as a policy of the Government of India and has been included in the National Water Policy adopted in 1987. Provisions made in the National Water Policy of 1987 were as under:
―Efforts
should be made to involve farmers progressively in various aspects of
management of irrigation systems, particularly in water distribution and
collection of water rates. Assistance of voluntary agencies should be enlisted
in educating the farmers in efficient wateruse and water management.â€-
In
April 1987, the Ministry of Water Resources is water management, primarily for
areas under the Centrally Sponsored Command Area Development
Programme. The
guidelines covered all aspects like past experience in India and abroad,
objectives
of
PIM, area of operation of farmers‘,dutiesand association responsibilities of
the farmers, training and monitoring.
Recognising the need to
provide legal backup to PIM in the country, Ministry of Water
Resources
commissioned an NGO, â€-Society for Peopl (SOPPECOM)‘, Pune to suggest suitable
amendments in recommended to States for incorporation in their forefront of
work relating to PIM and has successfully pioneered many action research
programmes
on formation
of WUAs. The
suggestions of â€-SOPPECO
1998.
Conferences
at National, State and Project levels have been organized for creating
awareness on Participatory Irrigation Management amongst farmers and officials.
Ministry
of Water Resources has been organising National level training programmes on
PIM in various parts of the country for CAD functionaries. In addition,
matching grant is also being
provided
to States for organizing State and project level training programmes for
farmers and field functionaries.
Objectives of PIM
i.
To create a sense of ownership of water resources and the irrigation system
among the users, so as to promote economy in water use and preservation of the
system.
ii.
To improve service deliveries through
better operation and maintenance.
iii.To
achieve optimum utilization of available resources through sophisticated
deliveries, precisely as per crop needs.
iv.To
achieve equity in water distribution.
v.
To increase production per unit of
water, where water is scarce and to increase production per unit
vi.
of land where water is adequate.
vi.To
make best use of natural precipitation and ground water in conjunction with
flow irrigation for increasing irrigation and cropping intensity.
vii.
To facilitate the users to have a choice
of crops, cropping sequence, timing of water supply, period of supply and also
frequency of supply, depending on soils, climate and other infrastructure
facilities available in the commands such as roads, markets cold storages,
etc., so as to maximize the incomes and returns.
viii.
To encourage collective and community
responsibility on the farmers to collect water charges and payment to
Irrigation Agency.
ix.To
create healthy atmosphere between the Irrigation Agency personnel and the
users.
Necessity
of PIM
The
old dictum is that necessity is the mother of invention. This may be judged in
respect of PIM also with the following considerations:
a)
Need of increase in agricultural production: The human as
well as bovine population has been increasing all over the world and
more so in India. As such the need of food, fiber, fuel, fodder etc. has also
been increasing with fast rate. It is, hence, imperative to increase the
agricultural production to keep pace with the requirement. Irrigation being
lifeline of agriculture, its development and meticulous management is the
necessity of the day. All over the world and so in India, it is known that easy
locations to tap surface water have almost exhausted. Increasing the existing
reservoirs capacity and taking up of new projects is causing serious financial
and social problems. So far as ground water development is concerned, it has
its own limitations and the most important being over exploitation of this
resource at many places particularly in many parts of India. Moreover financing
is another constraint. Hence proper management of already created water
resources development structures is extremely essential at this juncture, in
order to strike the balance between need and the agricultural production. Since
farmers are the real stakeholders, they have to come forward through their
associations to look after their interest so that they get water from the
system according to the predetermined time and space for planning their crops.
b)Problem
of fiscal availability: There is severe budgetary
competition at the government level under different sectors. The ratio
of financial outlay for the irrigation sector to the total outlay is coming
down year after year. Moreover there are many uncompleted irrigation projects,
where work is going on and there is demand of meeting the regional balance to
provide irrigation facility almost all over. Under such circumstances,
investment of more money by the Government on operation and maintenance of the
old system appears difficult. Thus, farmers have to take up this responsibility
themselves
in order to avoid over burdening of the Government exchequer and to become
selfdependent.
c) O&M
cost and recovery of irrigation charges: This aspect has
already been discussed elsewhere which indicates that O&M cost is
much higher than the recoverable irrigation charges as per present rate. Even
these low rates are not being recovered in full.
Often
the cost of recovery of water charges by Government is more than the amount
recovered. This is causing severe budget constraints to Government and
consequently O&M could not be properly carried out resulting in system
deficiency and unreliability of irrigation water to farmers. The Water
Users‘ Associations could
play this role
in a bet
d)Other
compulsions: Besides above aspects, there are other
compulsions like non availability of
water
when it is needed, taking immediate problems like leakages, adopting
flexibility in water distribution and taking many more initiatives by
sustainable proposition, PIM appears extremely necessary and worthwhile.
4. Provision in
National Water Policy (2002)
Following
modifications were made in the National Water Policy (2002) regarding the
participatory approach to water resources management:
―Management of the
water resources for diverse uses should incorporate a participatory approach:
by
involving not only the various governmental agencies but also the users’ and
other in an effective and decisive manner, in various aspects of planning,
design, development and
management of the water
resources schemes. Necessary legal and institutional changes should be
made at various levels
for the purpose, duly
ensuring appropriate
Association
and local bodies such as municipalities and GramPanchayats should particularly
be involved in the operation, maintenance and management of water
infrastructures/facilities at appropriate levels progressively, with a view to
eventually transfer the management of such facilities to the user groups/ local
bodiesâ€-
5. Provisions in PIM
Acts
Recognising
the need for sound legal framework for PIM in the country, the Ministry brought
out and circulated in 1998 a model act to be adopted by the State Legislatures
for enacting new irrigation acts/amending the existing irrigation acts for
facilitating PIM. In accordance with the model act eight State Governments,
namely, Andhra Pradesh, Goa, Madhya Pradesh, Karnataka, Orissa, Rajasthan,
Tamil Nadu and Kerala have enacted new acts. The legal framework provides for
creation of farmers organisations at different levels of irrigation system as
under:
a. Water Users’
Associationwillhavedelineatedcommand(WUA):areaon a hydraulic
basis, which shall be administratively viable. Generally a WUA would cover a
group of outlets or a minor.
b.Distributary
Committee: will comprise of 5 or more WUAs. All the
presidents of WUAs will comprise general body of the distributary
committee.
c. Project
Committee: will be an apex committee of an
irrigation system and presidents of the Distributary committees in the
project area shall constitute general body of this committee. The Associations
at different levels are expected to be actively involved in: (i)
maintenance
of irrigation system in their area of operation; (ii) distribution of
irrigation water to the beneficiary farmers as per the warabandi schedule;
(iii) assisting the irrigation department in the preparation of water demand
and collection of water charges; (iv) resolve disputes among the members and
WUA; (v) monitoring flow of water in the irrigation system etc.
6.
Status of Enactment of Legislation for PIM
As
a result of various conferences/ seminars organised by the Ministry, there has
been an increased consciousness in States about the need for actively involving
farmers in management of irrigation system. Accordingly States of Andhra
Pradesh, Assam, Chhattisgarh, Goa, Gujarat, Karnataka, Kerala Madhya Pradesh,
Maharashtra Orissa, Rajasthan, Sikkim, Tamil Nadu and Uttar Pradesh have
enacted exclusive legislation for involvement of farmers in irrigation
management.
Government
of Bihar has issued a notificationnd ―Th Drainage Rules, 2003â€-, in exercise of
the powers
Details
of the Acts/Rules are given in
7.
Constraints in Implementation of PIM (Issues)
There
may be a necessity and practicability in adoption of PIM yet there are a number
of constraints in making the PIM sustainable in the long run. Some of these
are:
a)
Lack of legal back up and policy changes: In many States,
there is no or very little legal back up and clearcut policy decision at
the Government level to take up PIM, which is a big impediment in
implementation of PIM. For the actual irrigation management transfer and
operation of PIM in an irrigation project, policy changes and legal back up are
essential. This is important for distributing required quantity of water at
minor / distributary take off points, taking up correction of system
deficiency, claim to get the maintenance funds proportionate to its portion
transferred to associations, collection of water charges and retaining some
portion of it for WUAs functioning, fixation of water rates, incentives to
farmers, resolution of conflicts etc. Clarity on legislation is also required
in certain States.
b)
System deficiency: In older projects, there are many
problems like deterioration of old control and measuring structures,
leakages and seepage at various places, erosion of banks and beds, siltation
and weed infestation. These are serious problems, hindering farmers to take
over the system management on technical and financial considerations.
c)
Uncertainty of water availability: This is another
important aspect, as farmers will understandably be reluctant to take on
the responsibility for managing the system unless deliveries of water are made
reliable, flexible, practical transparent and responsive to need. The engineers
on their part may not be confident about ensuring supply of the requisite
quantity of water to the WUAs, as would be obligatory in terms of the MOU
signed between Irrigation Agency and WUA. Further, the farmers who have their
holdings at the head of the canal tend to appropriate
more
water than required, whereas the farmers at the tail end often fail to get
their apportioned share of water. Headenders, therefore, have vested interest
in continuing the existing arrangements. The tailenders may not be keen to form
WUAs as water supply in such areas remains inadequate and erratic and they
remain apprehensive that the situation will not be materially altered if an
association is formed. These differences in perceptions and conflicts of
interests inhibit the coming together of head end and tail end farmers.
d)
Fear of financial viability: Maintenance and
operation of the system demands huge finances. Farmers have got the
apprehension that in absence of surety of finance, it would be difficult for
them to fulfill the requirement of funds for operation and maintenance. They
feel that when Government is not able to handle the system with huge money
available with them, how farmers would be able to do justice?
e) Lack
of technical knowledge: Apart from the financial
uncertainty, lack of technical input is one of the inhibiting factors to
take over the system. When Government, having such qualified and senior
Engineers, finds it difficult to manage the system, how untrained and
uneducated farmers would be able to take up such a highly technical operation
and maintenance work of big irrigation systems.
f) Lack
of leadership: On account of limited exposure of the
farmers to the rest of the world and PIM in particular, potent
leadership is lacking, rather on account of limiting knowledge. At times so
called local leaders give the negative or unclear version before other farmers
which further create misunderstanding among the farmers bringing them sometimes
into a fix.
g) Lack
of publicity and training: Seeing is believing; and knowledge
brings confidence in people. This aspect is lacking and there is a
constraint to adoption of PIM.
h)Demographic
diversity: Due to variation in economic, ethnic,
education levels etc. diversity of farmers, PIM is taking much time in
this country. To handle this aspect deep study, analysis and solution need be
found out.
i) Mega
irrigation projects: World scenario gives an indication that
there are smaller projects in the countries of the world, where
irrigation project transfer has taken care for PIM. In India, there are huge
projects having very large distribution system and culturable command area
sometimes more than 20 lakh hectares. Larger the project, complex would be its
maintenance, operation and management aspects and so the formation and
functioning of farmers associations for different necessary activities.
j) WUAs
v/s Panchayats: In many of the areas, where WUAs have
been formed, there is a clash of interest among Panchayats and WUAs on
who is to own the system, particularly when watershed schemes are being handed
over to the Panchayats.
k)PIM
in efficient systems: Some of the northern States have
raised apprehensions that when their systems are running very
efficiently, why not PIM should form an integral part of the system of
distribution already in operation.
8. Future Prospects of
PIM
It
has now been realised that without active participation of beneficiaries, the
irrigation systems cannot be managed efficiently. The experience shows that
wherever farmers have been actively engaged, the overall management of
irrigation system and the water use efficiency have significantly improved. The
legal framework, which has been established in various States, will ensure
systematic involvement of beneficiaries in the management of irrigation system
at various levels. There has to be however, a provision for adequate financial
support to these organizations to carry out their responsibilities. The PIM
acts of various States do have provisions for the financial management of these
associations. For example acts of Andhra Pradesh and Madhya
Pradesh
States mention that
the funds of
the farm
i) grants
and commission received from the State Government as a share of the water tax
collected in the area of operation of the farmers‘ organization;
ii) such
other funds as may be granted by the state government and Central Government
for the development of the area of operation;
iii) resources
raised from any financing agency for undertaking any economic development
activities in its area of operation;
iv)income
from the properties and assets attached to the irrigation system;
v)
fees collected by the farmers‘
organization fo system;
vi)amounts
received from any other sources; and vii) investment of private sector in
distribution and
ancillary/extension
services.
9. Rationalisation of
Water Rates
In several states the
water rates have not been revised for a long time. Consequently the revenue
collection is too meager to maintain the irrigation system. The Vaidyanathan
Committee (1991) of the Planning Commission on pricing of irrigation water
mentioned that on an average the revenue collection was Rs. 50 per ha as
against the O&M requirement of Rs. 250 per ha. Thus, there is a dire need
for rationalization of water rates so as to meet the expenditure on account of
O&M of the system. Many of the States have already revised the water rates.
10.
Women’s Role
in PIM
Considering
the importance of women in terms of their numerical strength and the
significant contribution they make to the agriculture labour force, it is
realized that they should play an important role in the WUAs. However, as the
poor status profile and various other factors
inhibit their
participation, compulsory regulatory means are considered necessary to bring in
the
desired
gender empowerment. Recognising the scale at which PIM programme is to be
implemented in the country, Government of India has given special emphasis on
involving women in the process. In pursuance to the provisions in National
Water Policy 1987 (and also 2002) on efforts to be made to involve farmers
progressively in various aspects of management of irrigation systems,
particularly in water distribution and collection of water rates, Ministry of
Water Resources, while issuing guidelines in April, 1987, specifically
emphasized the States to consider representation of women in the WUAs at all
levels. Some of the State Governments have taken some initiative as under:
―Madhya
Pradesh Sinchai Prabandhan Me Krishkon Ki enacted in September, 1999 ensures
all farmers owners, be it men or women to be a rightful
member of
the outlet committee.
WhileofIrrigation―Andhra PraSy
March,
1997 has not made any specific provisions for the women to be represented in
the Managing Committees of WUAs, it is encouraging to note that quite a few
women members have been elected as Presidents and Managing committee members.
Similar is the story in other states.Despite the awareness in the matter, the
marginal representation of women is not adequate
in view of the
magnitude of the problem.
11. Importance of PIM
under Restructured CADWM Programme
Under
Restructured Command Area Development & Water Management Programme more
emphasis is being given to participatory approach. Under this programme,
payment of central
assistance
to States is linked with the formation farmers will have to contribute a
minimum of 10% cost of the works in form of cash / labour in
three
components namely, construction of field channels, reclamation of water logged
areas, and desilting and renovation of MI tanks.
Under
the previous CAD Programme, a management subsidy at the rate of Rs. 275 per ha,
to be paid in three years, had been insisted upon initially to encourage the
formation and
functioning
of Farmers‘ Associations. It was incr grant to be shared by Centre, State and
farmers at the rate of Rs 225:225:50 respectively. For
projects
included under the restructured programme, this grant has been enhanced to Rs.
600/ per ha. at the rate of 270:270:60 to be shared by Centre, State and
farmers respectively and further to Rs.1000/ha. to be shared in the ratio of
450:450:100 during XI plan. States have to bear similar costs for non â€'CADA
projects.
Apart from normal
training programme for field functionaries and farmers, action research
for PIM is now proposed
to be entrusted to the WALMIs and other State/Central Institutions. It is
to
ensure that farmers will be encouraged to form development works, equitable
distribution of water, crop management, issues on revenue
collection,
to maintain data and financial records. They will also be trained regarding
maintenance aspects of the OFD works. Centre will bear 75% of cost of these
software items.
12. PIM as A Thrust
Area/Priority Item
With effect from August
2003 Participatory Irrigation Management (PIM) has been
identified
as one of the thrust areas for the country as a whole and its progress is being
monitored by the Prime Minister‘s Office.
12. 1 Issues for Policy
Initiatives
a.
All states to be emphasized upon the
need to enact PIM acts in a definite time frame
b.
Strengthening of
financial resources of
Farmer
â€'Revenue
sharing arrangement to be considered
c.
Rationalization of water charges
d.
Empowering women for a greater role in
Irrigation Management.
12.2 Action Taken for
Implementing PIM
Ministry of Water
resources has written to all the States, which have not yet enacted
relevant
act to facilitate participation of stakeholders in Irrigation Management,
asking them to implement the same. An indicative Roadmap as under has also been
suggested for promotion of PIM to take a time bound action in the matter.
Indicative Roadmap:
1) Draft
legislation on PIM and its approval by the State Legislature at the earliest,
preferably in the next Session of the State Assembly.
2) Based
on the PIM Act, prepare necessary Rules and Regulations within two months of
the notification of the Act.
3)Organise
Statewide orientation/awareness generation camps for functionaries of
Irrigation/CAD
Departments
and farmers. 4) Formation of Water Us the responsibilities assigned under the
Act. 5) Fix a target of covering at least 25% of the area of
the
major and medium irrigation projects under PIM during the X Plan. 6) Formation
of an appropriate committee at the State level that will monitor the progress
under PIM and interact with
the
Central Government. Copies of the Model Act on PIM and also the PIM Acts of a
few States were sent to the States/UTs for reference and guidance.
Milestones:
State
Governments are being persuaded since 1985 to promote Participatory Irrigation
Management (PIM). In order to facilitate the States in formulation of the
roadmap for promotion, enactment and implementation of PIM the following action
points and milestones need be considered. Depending upon the status of the
progress of implementation of the PIM in the States the action points may be
suitably modified.
1
To constitute a Committee within the State to study the provisions of Model
Act, PIM Acts of other States, Existing Irrigation Acts of States, Irrigation
Water Cost Recovery Structure, and other Regulations of the States.
2
Preparation of Draft PIM Act (if not already done) by the State. In this regard
the State may obtain help from WALMIs, NGOs or other State/Central
organisations followed by the process of approval.
3 Awareness and
motivation of the farmers in PIM activities. WALMIs can play major role
in
this activity. This activity of imparting awareness and motivating the farmers
could be done simultaneously along with the other activities of implementation
of PIM.
4
Preparation of draft rules and regulations in connection with identification of
jurisdiction, formation, election, role and responsibility of WUAs and
Irrigation departments/CADAs (if not already done).
5
The process of identification and notification of jurisdiction of each WUA,
Minor / Distributary Committee for each Major, Medium and Minor Projects. This
should be immediately followed by holding of elections of WUAs.
6 Necessary steps may
be taken to repair the irrigation systems to be transferred to the
farmers.
In case of CAD projects, such steps are to be taken within the framework of
Restructured CADWM Programme.
7
Signing of MoUs between the State Govt. and the WUAs for transfer of
responsibility and the irrigation system. This could be done immediately after
the necessary completion of repairs and the formation of WUAs.
8
Formation of an appropriate committee at the State level that will monitor the
progress under PIM and interact with the Central Government
9
Monitoring and evaluation of the functioning of the system by the state Govt.
for at least three years after handing over the system to the WUAs.
State
have been pursued from time to time enact relevant Acts to facilitate
participation of stakeholders in Irrigation Management, asking them to
formulate a roadmap for furthering the implementation of PIM in their States in
a time bound manner and keep the Ministry informed of the progress of the same.
It is also requested to furnish the latest information on the status of
implementation of PIM
/ formation of
Water Users‘
13. Monitoring and
Evaluation
Regular
monitoring and evaluation of the performance of the WUAs is necessary for
development of the PIM programme in the country. The success and failure of the
WUAs at one place could provide useful lessons and enable taking up of
corrective steps in formation and sustainability of WUAs at other places. The
performance has to be justified against the objectives laid down and the
financial viability.
States have to
constitute a State level committee for monitoring of the implementation of
the
PIM programme. WALMIs can play an important role in implementation, monitoring
and evaluation of the PIM programme. Recently Central Water Commission has been
entrusted with coordination and monitoring of implementation of PIM in the
States/UTs at the Central level. MoWR has written to all the States and UTs,
which are yet to take action to enact
legislation
on PIM, asking them to take necessary time bound action for enacting necessary
legislation for PIM.
As per the guidelines under the CADWM Programme, State level committees have to be formed for review and monitoring of the CAD projects under the programme. These committees have to have representation from Water Users‘ Ass
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