Jal- Manthan – Concept Paper

“To evolve strategies for better water resource development and management through

wider consultations amongst various stakeholders”

1.0 Background

Hon‟ble Minister for Water Resources, River Development & Ganga Rejuvenation

Sushri Uma Bharati has emphasized the need to hold wider consultations amongst various

stakeholders engaged in water resource development and management to achieve synergy

of water resource development with environment, wild-life and various social and cultural

practices. Accordingly, a three day Conference, „Jal-Manthan‟ is being organized from 20

to 22 November, 2014 at Vigyan Bhawan, New Delhi wherein various stakeholders, starting

from Government agencies – Central as well as States‟, non-Governmental organisations

and user communities, are invited for deliberations.

2.0 Need for the Event

Water is essential for livelihood and has a pivotal role in socio-economic

development of the country and for maintaining healthy ecosystems. The increasing stress

on freshwater resources brought about by population growth and ever-changing demand of

water use as well as for healthy eco-system, draws attention to the challenges ahead for

planning and management of scarce water resources. Change in water use pattern is at

times cause of conflicts among various stake holders not only at National/State level, but

even at local level. Number of issues involved in managing water resources like competing

demands; scope of increasing water productivity in different sectors; tools that enable

most efficient use of available water; maintaining sustainable water quality have to be

addressed in coordinated & integrated manner for effective development and management

of scarce water resources.

3.0 Outline of the Conference

The Conference „Jal-Manthan‟ is being organised at Vigyan Bhawan in New Delhi

during 20-22 November, 2014. The first day of the Conference is planned to be devoted for

deliberations on the three flagship schemes being implemented by the Union Government

of India through Ministry of Water Resources, River Development & Ganga Rejuvenation,

viz., Accelerated Irrigation Benefit Programme (AIBP Annex -1), Repair, Renovation and

Restoration (RRR) of Water Bodies (Annex – 2) and Flood Management Programme (FMP –

Annex-3). New proposals, such as, Incentivizing States for Water Sector Reforms (Annex -

4), India Water Resources Information System (IndiaWRIS) and Hydrology Project III would

also be introduced. The programme will involve participation from concerned Ministers and

Principal Secretaries from the State Governments and provide them an opportunity to

highlight their concerns and impediments being faced by them in effective implementation

of these Schemes.

The day 2 of the Conference is proposed to be devoted to deliberate on

“Interlinking of Rivers (ILR)” Programme. It is proposed to deliberate on various aspects of

ILR programme as the programme has evoked strong reactions from civil societies and

environmental groups. The Event would provide a platform to address the concerns and

clarify issues raised by them.

On the third day of Conference, it is proposed to hold deliberations on broader

issues of water conservation and management with civil societies, non-governmental

organisations and water user communities. The focus will be on water Security (Annex -5);

Humane Face to Water Projects (Annex -6); Farm Water Management (Annex -7); and

Rejuvenation of Water Bodies (Annex -8).

Annex-1

“Jal Manthan”

Accelerated Irrigation Benefit Programme (AIBP)

The Union Government launched Accelerated Irrigation Benefit Programme (AIBP) in 1996-

97 for providing financial assistance with an objective of expediting the implementation of ongoing

major, medium and Extension, Renovation and Modernization(ERM) Irrigation Project and surface

minor irrigation schemes. Under AIBP, the irrigation Projects cleared by TAC and Planning

Commission and are in advanced stage of construction and fulfilling other eligibility criteria can be

included on the request proposals submitted by the concerned State Government for providing

Central Assistance as per the guidelines of the programme. The guidelines of AIBP are being revised

from time to time in order to widen the scope of funding as well as to allow special consideration

for the regions lagging behind in development, which presently include north-eastern states, hilly

states, drought prone and tribal areas, KBK districts of Orissa, states with lower irrigation

development as compared to national average and districts identified under PM package for agrarian

distressed districts in the states of Andhra Pradesh, Maharashtra, Karnataka and Kerala. As per the

latest modification in AIBP guidelines made in October, 2013, the pari-passu implementation of

Command Area Development (CAD) works was given more stress for utilization of the created

potential and relaxation for Desert Development Programme (DDP) Area has also been introduced.

The scheme of the National projects was approved by the Union Cabinet in its meeting held

on 7th February 2008. The proposal for continuation of Scheme of National Project in XII Plan has

90% cost of the balance works of Irrigation and Drinking Water Component would be provided as

central assistance for ongoing National Projects of Non Special Category State/Special Category

States. The proposal for New National Projects in XII Plan has 75% and 90% cost of the balance works

of Irrigation and Drinking Water Component would be provided as central assistance for Non Special

Category State and Special Category States, respectively. The Government of India declared 14

projects as National Projects in February2008. Later, Cabinet Committee on Infrastructure has

approved inclusion of Saryu Nahar Pariyojna in the scheme of National Project on 3rd August 2012.

Recently, Polavaram Irrigation Project is declared as National Project in the Gazette of Govt. of India

Published on 01.03.2014. So far, four projects, namely Goshikhurd project of Maharashtra, Shahpur

Kandi Project of Punjab, Teesta barrage project of west Bengal and Saryu Nahar Pariyojana of Uttar

Pradesh have been funded under the scheme of National Projects.

Since the inception of the Accelerated Irrigation Benefit Programme (AIBP), 294 major and

medium irrigation projects have been benefitted by this programme in allover India. 143 projects

have been completed, whereas 5 projects have been withdrawn from the AIBP due to their

inadequate performance. 146 projects are ongoing projects in AIBP as on date which are getting

Central Assistance under this programme. Total Central Assistance (CA) of Rs. 51147.03 Crores for

Major and Medium irrigation Projects including National Projects to various states has been released

till March 2014 and total Potential created up to March 2013 is 7247.69ThHa.

Several Major and Medium Irrigation Projects have not been completed by respective State

Governments despite the provision of their completion within the minimum period of 4 years under

AIBP. The states have sought extension of time repeatedly for some reasons which are said to be

beyond their control. The projects are delayed mainly due to land acquisition delays, forest

clearance delays, R&R related delays, Litigation in the court of law, inadequate flow of funds from

the State Government, compliance regarding irregularity on their execution and quality control

aspects. The delay is also reported due to delay in construction of structures by other agencies like

NHAI for National Highways and State Highways, Railways, High Tension Power Distribution lines,

Geological surprises during the excavation, foundation of the project.

Some of the causes of delay can be anticipated at the beginning of project which needs to be

addressed before their inclusion in AIBP. Such as delays due to other agencies, R &R Delays, Land

acquisition delays. The delays due to fund paucities from the State Government are to be strictly

dealt by the States for providing sufficient funds for the project. An assurance of attending to the

possible causes of delays arising due to construction of structures by agencies like NHAI, Power lines,

Railways by finalizing the MOUs/Agreements with such agencies for timely completion of the project

components. In spite of land acquisition related delays, the State Governments may be required to

give an undertaking at the time of inclusion of AIBP for smooth flow of land resources to the project

for its timely completion.

In many cases, projects included under AIBP are facing inordinate delays for the reasons

stated above, which in turn has severe implication on cost over-run of the projects. The cost

escalation due to delay in implementation of these projects cannot be kept open ended for years to

have a holistic approach in overall implementation of AIBP scheme as per planning in a specific Plan

period. State Governments may need to approach with more realistic assessment of the projects

with respect to cost and reliability of estimates which could be completed in 4 years as per MoU.

Phasing of the projects may need to be considered including allied components viz. Canal and

Distribution Networks in which intended benefits of AIBP i.e. irrigation potential creation/utilization

is achieved maintaining the hydraulic continuity of the projects for completion within stipulated

period of 4 years.

*****

Annex-2

“Jal Manthan”

Repair, Renovation and Restoration (RRR) of Water Bodies

Government of India launched a Scheme Repair, Renovation and Restoration (RRR) of water

bodies which has multiple objectives such as reclamation of lost irrigation potential,

improvement of command area/catchment area of the tanks, restoring/increase in storage

capacity of water bodies and development of tourism and cultural activities by providing Central

Grant to State Governments. This is a continuing scheme since X Plan.

During X Plan, to revive, restore and rehabilitate the water bodies in India, the MoWR,

Government of India launched a pilot scheme for “Repair, Renovation and Restoration (RRR) of

Water Bodies directly linked to Agriculture”. The works of 1085 water bodies were completed in

26 districts of 15 states. A Central Assistance of Rs. 197.30 crore was released.

During XI Plan, the Ministry of Water Resources had launched two schemes of Repair,

Renovation and Restoration (RRR) of Water Bodies as a State Sector scheme, one with Domestic

Budgetary Support and the other with External Assistance. Under the scheme of RRR of water

bodies with Domestic Support, the works of 1933 water bodies have been completed, out of 3341

water bodies taken up and Rs. 917.259 crore has been released upto September 2014 and a CCA

of 90669 ha has been restored/created as on March 2014. Under the scheme of External

Assistance, 10887 water bodies have been taken up for restoration in Andhra Pradesh, Odisha,

Karnataka and Tamil Nadu States.

The scheme for implementation of RRR of Water Bodies in XII Plan has been approved and

revised Guidelines of October 2013 have been circulated. It is envisaged to take up RRR works in

10,000 water bodies with a Central Assistance of Rs.6235 crore. Out of 10000 water bodies

9000water bodies will be in rural areas and balance 1000 water bodies will be in urban areas.

Empowered Committee(EC)of MOWR,RD&GR in its 1stmeeting held on 24.06.2014,

approved 780 eligible water bodies costing Rs 413.95 crore (Odisha 760,Uttar Pradesh 8,

Meghalaya 9 and Uttarakhand 3) to be included under the XII Plan Scheme.

Again, EC of MOWR,RD&GR in its 2nd meeting held on 22.08.2014, approved 185 eligible

water bodies costing Rs 234.255 crore (Madhya Pradesh 134,Tamil Nadu 49, and Uttarakhand 2)

to be included under the XII Plan Scheme.

*****

Annex-3

“Jal Manthan”

Flood Management Programme (FMP) - Issues for discussion

Government of India implemented a “Flood Management Programme” (FMP), a State Sector scheme

under Central Plan, to provide Central assistance to States for taking up flood control, river

management, drainage development, flood proofing and anti-sea erosion works in critical reaches

during XI Plan. During the XI plan period (2007-12), 420 schemes were funded under FMP and an

amount of Rs. 3566.00 crore has been released to the state governments.

The Government of India has approved the continuation of “Flood Management Programme” to

provide central assistance to the state Governments with an outlay of Rs. 10,000 core during XII Plan

period (2012-17). During XII plan period (2012-17), the Inter Ministerial Committee of MoWR

headed by Secretary (MOWR, RD, GR) for Flood Management Programme (IMC-FMP) has approved

97 schemes of various states, having estimated cost of Rs. 4412.58 crore for funding under FMP. An

amount of Rs. 680.65 crore has been released during the XII plan period (2012-17) under FMP.

Issues for discussion during “Jal Manthan”

1. Revised Funding Pattern during XII Plan

During XII Plan, the funding pattern for the Non Speciall Category and Speciall Category

States has been changed to 50(Central Share): 50 (State Share) and 70(Central Share): 30

(State Share) respectively w.r.t. the earlier funding pattern during XI Plan 75(Central Share):

25 (State Share) and 90(Central Share): 10 (State Share) respectively. It has been observed

that, less number of schemes are being proposed by the state governments for seeking

central assistance under FMP and the state Governments are requesting to enhance the

central share.

2. Monitoring of the Flood Management Projects

To release the subsequent installments, monitoring reports of the concerned monitoring

agencies is required under FMP. As the concerned agencies, especially CWC, are already

engaged in monitoring of projects pertaining to AIBP, Minor Irrigation, CAD and Restoration

of Water bodies etc., monitoring of flood management projects sometimes gets delayed.

Alternative mechanisms of monitoring like entrusting the job to State

Governments/Independent agencies to expedite the monitoring process may be explored.

3. Project Eligibility Criterion for funding under FMP

The eligibility criterion considering project cost has been changed as 40.00 cr. for Non Special

Category states and 10.00 Crore for Special Category States during XII Plan from earlier Rs

7.50 crore for Non Special Category states and 1.00 Crore for Special Category States during

XI Plan respectively. Due to this less no. of schemes become eligible for funding.

4. Enactment of Model Bill on Flood Plain Zoning

The Central Water Commission prepared a Model Bill on Flood Plain Zoning and circulated it

to all the States in 1975 for guidance of States for enactment of legislation in this regard. The

Model Bill provides model clauses about flood zoning authorities, surveys and delineation of

flood plain area, notification of limits of flood plains, prohibition or restriction of the use of

the flood plains, compensation, power to remove obstruction after prohibition. The

guidelines on flood plain regulations have also been appended in the Model Bill.

Manipur enacted flood plain zoning legislation in 1978, but the demarcation of flood zones is

yet to be done. The State of Rajasthan also enacted legislation in the State; however,

enforcement thereof is yet to be done. The State Govt. of Uttrakhand has also passed Flood

Plain Zoning Act on 16 December, 2012. Other States have yet not taken any action for

enactment of legislation.

5. Assessment of Flood Prone Area in Scientific Way

A Committee for Scientific Assessment of Flood Prone Area was constituted by MoWR vide

memorandum dated 20.07.2012. The Committee held two meetings on 14.08.12 and

27.06.2013. The Committee during its second meeting defined the criteria for classification,

finalized methodology for working out flood prone area in a scientific way and decided for

constitution of regional committee in each State headed by Principal Secretary (WR) for

completion of the task of assessment of flood prone area in the respective State. The

regional committees are yet to be notified in some of the States/UTs like Uttar Pradesh,

Uttarakhand, Punjab, Pondicherry etc. and the progress made by the regional committees in

general has been slow.

*******

Annex-4

Incentivizing States for Water Sector Reforms

Rapid growth in demand of water due to population growth and urbanization pose serious challenge to water security, food security and sustainable livelihood for all in an equitable manner. There is wide temporal and spatial variation in availability of water, which may increase substantially due to climate changes, leading to water crisis and possible water related disasters, i.e., floods, increased erosion and increased frequency of droughts, etc. Injudicious inter-sectoral and intra-sectoral distribution of water amongst various categories of water users, low water use efficiency, fragmented approach to water resources planning and development, low water user charges and meagre recovery are some of the major problems associated with the management of water resources in the country.

The Planning Commission Steering Committee on Water Resources and Sanitation and the Thirteenth Finance Commission had recommended that the central assistance should be linked to outcomes in terms of water sector performance and impacts. There is a need to have substantial fund to incentivize States in taking up an aggressive administrative, financial reform agenda. The Finance Commission formula of allocating the incentive grants in proportion to Gross Receipts recovered and IPU of different States at the end of 10th Five Year Plan is too narrow in perspective and may not address much needed reforms in water resources sector. The States need to make substantial investment in operation & maintenance of infrastructure, because it is very much desirable to fully renovate the systems before handing them over to the local bodies such as Water Users’ Associations or the Panchayati Raj Institutions.

Therefore, the XIIth Five Year Plan Document, approved by the National Development Council, has recommended setting up of “Irrigation Management Fund”. The incentive should be appropriately linked with evolution of a Framework for State Specific Water Sector Reforms and Assessment of States’ Performance. The objective is to incentivize States in taking up an aggressive administrative and financial reform agenda in the water resources sector, some of which could be as follows;

(a) Improving water use efficiency from current level (b) Reducing the gap between Irrigation Potential Created (IPC) and Irrigation Potential Utilized

(IPU) through CAD and micro irrigation systems etc. (c) Deployment of adequate Operation & Maintenance fund for full utilization of water

resources infrastructure (d) Establishment of Regulatory Mechanism and rationalization of water user charges (e) Comprehensive capacity building for project management personnel including field

workers/farmers, representatives of Water Users Associations/Panchayati Raj Institutions/Local Governing Bodies, etc.

(f) Empowering Water Users Associations to collect and retain a part of water charges and maintain the field distribution system

(g) Promoting volumetric water supply to ensure optimum and efficient use of water resources (h) Sustainable ground water management with active participation of communities (i) Planning, development and management of water resources adopting principles of

Integrated Water Resources Management with river basin/sub-basin as units (j) Establishment of River Regulation Zoning Mechanism, etc.

*****

Annex-5

“Jal Manthan”

Water Security

Water Security is a part of ‘Jal Manathan’ event. The consultation on this topic is planned as

a parallel session. Making adequate water resources available for ensuring the health, livelihood and

economic growth of the communities is being considered a prime requirement to meet the goals of

national agenda where development is to become a ‘Jan Andolan’. Water is a prime ingredient

apart from the air and land which can provide the necessary input for this mass movement to

succeed and achieve the desired goal. There are diverse views on Water Security; the Government

at various levels tries to take an overall view whereas the individual communities and stakeholders

may feel their impact in a different manner. Local adjustments and flexibilities are required to ensure

the availability of water in a timely and adequate manner. This session proposes to concentrate on

the aspect of ensuring water security for all. The session will focus on various sub-topics as below:

1. Greener Irrigation Projects: The irrigation projects of various sizes have their benefits to the

community which are well recognized. These projects can also have some additional

aspects/modifications associated with them which can go further towards ensuring a greener

footprint of the project by way of better generation of bio-mass and reduced carbon emission, better

ancillary benefits towards greener generation of energy and by-products for reducing the overall

impact of development on climate and environment.

2. Managed Aquifer Recharge: The groundwater recharge has been well recognized as a means

of building buffers for the water scarcities in the long term and making the communities self

sufficient towards their drinking and other water needs. Various means of recharge have been

promoted and implemented largely through the individual initiatives and also through the support of

Government in key areas. The sub-theme would attempt to assess the benefits derived, best

practice and success stories in the community and ramping up this programme in a sustainable

manner across all the regions of the country. Experience of the individual and community based

workers will be very valuable for the same.

3. Enhanced Water Availability for inclusive growth: The prime aim of any development is to

bring up the economy and well being status of the community for a better life and dependable

livelihood. Water being a key ingredient towards this has to be managed in an equitable and shared

manner. Various sectors of water use have to learn to live and adjust with each other so that no

sector prospers at an expense of another one. Towards this end, it is necessary to realize all types of

water as a common resource and a collective management policy incorporating all stakeholders has

to emerge. The consultation would seek to provide for a forum where the experiences of

adjustments and mutual impacts are shared with each other.

4. Flood Management: This aspect requires a large participation from the technology as well

as community. It has been realized that the communities have also to co-exist with the rivers and

other drainage patterns of the area in order to manage passage of flood with a minimal impact to

the communities in their day to day living. The structural measures coupled with community

participation in decision making about the particular types of land usage in specified areas as well as

the awareness of the hazards of development by the communities while utilizing a specific area are

the needs of the hour.

5. Rain Water Harvesting: Due to large variation in precipitation with respect to time and

space in our country, it is necessary that water available at the time and place of plenty be stored for

utilisation at the time and place of scarcity. Importance will have to be given to store rain water run-

off at the very places where rain drops fall (& in the vicinity) rather than causing huge floods down

below. This has to be given more importance in global warming and climate model predictions.

****

Annex-6

“Jal Manthan”

Humane Face to Water Projects

Water projects by and large always bring prosperity and growth in large areas under their influence.

However, some of the other areas may not receive the benefits in the desired manner or may have

to undergo disturbances to their lifestyle and livelihood. There are many interventions needed on

the part of project implementers to provide similar levels of benefits to the affected communities in

a subject with those being provided to the beneficiary’s communities. The session would like to

deliberate on these issues in the form of sub-topics as follows:

1. Best Practices in R&R : This area has always evoked a strong feeling on either side of the

divide and community participation towards ensuring equitability with active intervention of the

Government is a solution. We would like to learn from the best practices implemented on the

ground and spread the same across the country for their adoption in a suitable manner.

2. Enhanced livelihood opportunities – fisheries, tourism, animal husbandry, agro based

industries: The water projects, especially the surface water projects, bring a number of other

livelihood opportunity apart from direct benefit from irrigation and power. These are fisheries,

tourism, animal husbandry, agro based industries etc. Local communities can directly benefit out of

such activities through cooperative movements and provide a very large segment with indirect

livelihood from the water resources generated. Quantification and possibility of such benefits and

opportunities can vary as per agro-climatic and social contexts and it would be worthwhile to learn

from the country-wide grass-root experience in this regard.

3. River Supported Tourism: River Supported Tourism can provide enhanced livelihood

opportunities to the local community. For this, the construction of river fronts/recreational

sports/ghats at the places of religious importance/significance may have to be undertaken. It is

proposed to deliberate upon the broad guidelines regarding locations, design and its impact on

water quality during the Session.

*****

Annex-7

“Jal Manthan”

Farm Water management

Agriculture being the largest consumer of water, management of available water in efficient and

equitable manner goes a long way in providing all round benefits to the society and spare the

resource for further growth. There has been considerable work by the communities in this area

under participatory irrigation management, innovative use of efficient irrigation and water

management techniques etc. The theme to focus on the areas as follows:

1. Community based governance: Essentially water is managed under a public trust doctrine

in which each community has to participate in governance of the common resource that is made

available to them. Towards this end water user’s association and many other water cooperative

societies have been performing with various degrees of success. Collection of their experiences in

this regard will be beneficial in formulation of the plans and policies for furthering this course.

Another important aspect could be integration of water governance at village/Panchayat,

district and State levels. In this regard, the concept of 3-Tier water Parliament at Village, district and

State levels needs to be discussed, since it could prove to be a viable institution for efficient and

people oriented water management.

2. Enhancing Water Use Efficiency: The available quantity of water is limited whereas the

needs will keep growing with the growth in population and economy. Efficient use of water by all

sectors is a prime necessity to manage the common resource adjusting their growth within the

available quantity. Governments as well as individuals have tried out many innovations with

different degrees of success. The faster growth phase that the country is going to enter will require

propagation and promotion of efficient usage practice.

3. Promotion of Micro-Irrigation: Benefits of pressurized irrigation systems, commonly known

as “micro irrigation” are duly recognised. The advantages in terms of savings in water utilization as

also the enhanced productivity have been established through several experiments and case studies.

Government has also promoted the adoption of micro irrigation. However, it appears that the

advantages of micro irrigation have not been fully propagated and pace of its adoption on field is

sluggish. With the objective of highlighting the benefits of the micro irrigation, it is proposed to

present a few success stories in this regard. It is also proposed to deliberate with the professional

and farmers to identify further measures required to be undertaken with the objective to fully utilize

the potentials of micro irrigation.

4. Improving Agriculture Productivity in Irrigated Land: Productivity of irrigated land under

various irrigation projects is coming down, in some cases due to increase in alkalinity, salinization,

etc. These will have to be rectified and the present agricultural productivity levels will have to be

doubled to come on par with other Asian countries (ex: China, South Korea, Japan, Taiwan, etc.). The

present position will have to be discussed and concrete proposal will have to be formulated to

achieve results in a time bound manner.

5. Promotion of Organic Farming: Adoption of organic farming, which has a potential to reduce

water demand/consumption for irrigation by up to 50% needs to be promoted. Organic farming is

also important for agriculture along the river belt, say within ten kilometre width, as it will greatly

help in reducing the pollution of river water caused due to use of chemical fertilizers.

*****

Annex-8

“Jal Manthan”

Rejuvenation of Water Bodies

The water is deployed by the society in a consumptive manner by way of evaporation or by

changing its quality substantially. Water bodies and rivers are the common sources on which the

society depends for their water needs. Of late, quality of waters available in the rivers and water

bodies have generated a lot of concern. The intervention purely from the management side are not

adequate and awareness and cooperation of the communities with management interventions has

to generate a win-win situation for both the consumers as well as the water body for maintaining the

quantum as well as aesthetic and religious value of the river or a water body. For this purpose the

consultation would generate the intervention required, cooperative measures required by adjusting

the practices of individuals and communities and accommodating the concerns from different

sectors of health, hygiene, treatments regimes etc. to bring in a water source which is appreciated

by the society for its purity - aesthetic and hygienic value.

Another important area requiring attention is reviving of coastal zone affected due to salinity

ingress. Necessary measures / projects are required to be conceived and implemented for the

prevention of salinity ingress, as large population residing in coastal area gets impacted.

*****