IRRIGATION, COMMOND AREA DEVELOPMENT AND FLOOD CONTROL
The strategies of development in the irrigation sector during the Sixth Five Year Plan will be broadly as follows:
(a) Expeditious completion of as many ongoing major schemes as technically and financially feasible; completion of all ongoing medium schemes excepting some of them taken up during the last two or three years of the Plan which may spill over into Seventh Plan.
(b) To initiate action on a few selected projects so as to keep up the tempo of development in Seventh Plan and also meet the needs of drought prone, tribal and backward areas and remove regional imbalances.
(c) Improved implementation of the programme by aiding the strengthening, where required, monitoring organisations of the projects at the State level apart from continuing work of monitoring at the Central level.
(d) Proper advance planning for scarce materials of construction in co-ordination with other Ministries concerned in order to procure scarce construction materials like cement, steel, coal, diesel, etc., required for planned implementation of major and medium irrigation projects.
(e) Taking up work of modernisation of irrigation systems in a phased manner.
(f) Optimisation of benefits through better operation of existing systems and conjunctive use of surface and ground waters and adoption of Warabandi.
(g) Efficient water management and introduction of Warabandi on rotational distribution system on the existing and new projects and formulation and monitoring irrigation programmes for different regions in a water year.
(h) Strenghthening of Command Area Development (CAD) organisations and Authorities and integrating functioning of canal management authorities CAD authorities and irrigators.
(i) Ensuring adequate maintenance of the canals and distribution systems by making adequate financial allocations for maintenance of canal systems.
(j) Setting up a system of evaluating regularly the project performance by appraising the actual benefits vis-a-vis the proposed.
(k) Carrying out detailed surveys and investigations for preparation of new projects to be taken up with priority being given to projects benefiting tribal area, drought prone area and area having large percentage of scheduled castes, with a view to completing investigation and preparation of project report of all projects and in a phased manner by end of 1989-90.
(l) Initiating investigation for a National Plan for inter-basin transfer of water from the water surplus area to the water short areas.
(m) Restructuring the management procedures in such a way that the farmers and public in command, catchment and watershed areas fully participate in the scientific management of the water and soil resources of the area and thereby enhance terrestrial and aquatic productivity per units of water, land and time.
10.2 Irrigation contributes substantially to the agricultural price stability, by removing to a large extent the elements of uncertainty in the agricultural production. Therefore, expansion in irrigation would be envisaged as a part of a price stabilization policy.
10.3 When planning started in 1950-51, irrigation schemes were divided into three categories; major, costing more than Rs. 5 crores each; medium, costing individually between Rs. 10 lakhs and Rs. 5 crores; and minor, costing-less than Rs. 10 lakhs each. According to the revised classification in vogue since April 1978, projects having CCA (culturable command area) of more than 10,000 ha. each are classified as m major projects, those having CCA between 2,000 ha. and 10,000, ha. as medium schemes and the schemes having CCA of less than 2,000 ha. each are categorised as minor irrigation schemes. This classification has helped to adjust the technical and administrative scrutiny of irrigation schemes according to their magnitude and complexity.
10.4 The development of irrigation upto the end of 1979-80 is shown in the table below:
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10.6 The development of irrigation has been considered under the four broad sub-divisions as follows:
(a) Major & Medium Irrigation
(b) Minor Irrigation
(c) Command Area Development and Water Management
(d) Flood Control.
MAJOR AND MEDIUM IRRIGATION
REVIEW 10.7 Inspite of the large investment made in the irrigation sector and the phenomenal growth of irrigation during the past 30 years, the return from the investment both in terms of yield as well as finance are very disappointing. Irrigated 'land should yield at least 4 to 5 tonnes of grains per hectare per year. However, at present it is hardly 1.7 tonnes on an average. Actual yield levels are lower than the levels of 4 to 5 tonnes achieved in National Demonstrations and by experiments in water management projects where appropriate water management and other cultural practices were maintained at optimum levels. Intensive education [programme for the farmers through demonstration and extension services is necessary in water management at farm level and other cultural practices. Irrigation projects are unable to recover even working expenses in most of the States. It has been estimated that on an average, the States are losing more than Rs. 427 crores. per year on their irrigation investments. The reasons for this situation are many. The first and the foremost is the delay in completion of schemes. Some of the schemes have been lingering for more than 15 to 20 years. To name a few, Nagarjunasagar Project (Anadhra Pradesh), Gandak and Kosi Projects (Bihar), Malaprabha Project (Karnataka), Kallada Project (Kerala), Tawa Project (Madhya Pradesh), Rajasthan Canal Project 'and Kangsabati Project (West Bengal).
10.8 Another reason is the delay in utilisation of the potential already created. In most of the projects, there has been delay in construction of field channels and water courses, land levelling and land shaping. Supplies to the farmers have not been assured due to deficiency in the canal systems and the absence of field channels. In some of the projects, the crop patterns originally envisaged have proved unsuitable. In a few others, the introduction of irrigation has created water logging and salinity. Farmers have been very reluctant to adopt improved crop practices like high yielding seeds, fertilizer application, pesticides etc.
10.9 The delay in completion of projects has contributed in no small measure to the increase in cost of projects, upsetting the schedule of completion of a number of projects. The States have taken up a number of new projects spreading their resources thinly over these, instead of taking up a few projects at a time and completing them quickly and then take up new projects. This tendency of taking up a large number of projects, when adequate resources are not in sight, has to be avoided.
10.10 In the context of the delay in utifisation of irrigation potential and low yield from such areas, government introduced the command area development programme. This broadly consisted of development of irrigation through land levelling and land shaping, construction of field channels, introduction of Warabandi system of water distribution and popularisation of integrated soil-crop-water management practices. The progress made under the command area development is discussed separately in this Chapter.
10.11 In addition to the command area development programme, expert technical groups from the Centre have been visiting various projects and identifying the bottlenecks and deficiencies in the development of irrigation. Some of the broad observations made by these teams after inspecting 20 irrigation projects are:
(a) lack of maintenance of canals in good shape;
(b) delay or absence of construction of water courses/field channels;
(c) non-introduction of warabandi or water supply system;
(d) non revision of crop pattern in the light of local conditions;
(e) inadequate conjunctive use of surface and ground waters;
(f) inadequate provision for drainage; and
(g) lack of participation of farmers in application of water.
STRATEGY FOR THE SIXTH PLAN 10.12 During the Sixth Plan period, the highest priority will be given to the improvement of productivity per unit of water in the -areas already covered with the irrigation arrangements including attention to the problems arising from salinity and water logging. Work on the command area development, introduction of Warabandi system of water distribution, popularisation of crop soil-water management practices will be encouraged. Advance action will be taken for research by agricultural universities for developing cropping and land management systems for effective use of irrigation water so that water becomes a blessing and not a curse.
10.13 Higest priority will be given to the completion of all unfinished irrigation projects as speedily as possible. For this purpose, the on going approved projects will be adequately funded. The construction programme will have to be firm and the project organisations have to prepare yearwise physical and financial programmes for each project indicating the requirements of balance investigations, data collection, designs, equipment, key construction materials, cost review, staff etc. All efforts are to be made to utilise the outlays fully. It is, therefore, proposed to continue earmarking the outlays for selected approved major irrigation projects to ensure their timely completion. In addition, new starts will be made particularly in the drought prone, tribal
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and backward areas. Inter-State differences in relation to the use of water has to be resolved speedily to facilitate development of irrigation resources. Special steps will be, taken for ground' water development which are discussed in a separate section in this Chapter.
10.14 High priority has to be given to analysing and identifying the problems in each project under each zone so that there, would be optimisation of benefits from the irrigation resources already created and to be created in future. This will be achieved through the following activities:
(i) Minimising the losses at the storage/diversion point.
(ii) Minimising the losses in the distribution system.
(iii) Efficient use of water on the fields.
10.15 The losses at the storage or the diversion point has to be kept to the minimum by judicious operation of storage reservoirs. Utilisation of storage supply to the maximum extent before the onset of hot weather season will be the aim for efficient use of storage waters. Losses in the distribution system shall be minimised by resorting to selective lining looking into the performance of each reach of the distribution system. In such of the projects where adequate and timely supply of coal for burning bricks required for lining or where supply of cement for cement concrete lining have become a bottleneck, fining with alternative materials like rubber or plastic sheets or similar materials may be tried if technically and economically justified. The efficient use of irrigation water on the field involves study of many factors including the soils, their physical and chemical conditions water requirements of various crops, irrigation practice and drainage needs. Selection of proper crops and cropping patterns based on agro-climatic conditions will be made. Proper land shaping and land levelling with adequate drainage facility, construction of field channels for eliminating field to field losses, selection of suitable method of irrigation to help efficient use, of water on the field will be provided. Proper scheduling of irrigation will be necessary to ensure high yields and high efficiency in the irrigation water use. In areas where water resources are in excess of land resources, irrigation will be supplied on optimum level in order to obtain maximum yield per unit of land. In areas where water resources are deficient compared to land resources, the irrigation scheduling shall be done to obtain maximum production per unit of water. The scheduling of water will be so tailored to ensure water supply at such stages of crop growth which are more critical in their demand for water so that crop growth and quality do not suffer seriously. Consolidation of holdings for better land and water management will be continued vigorously. It is necessary to train the irrigation engineers in the soil and water management practices. Suitable institutions for training in-service engineers will be set up in the States and also at the Centre. The services available at the organisations like Water Technology Centre and the various agricultural universities will be availed of in the training programme.
10.16 Conjunctive use of surface and ground water resources will be adopted for optimising benefits from the available water resources. In the States of Bihar, Madhya Pradesh, Uttar Pradesh and West Bengal, there is scope 'for increased development of surface and ground water resources. In order to derive the maximum benefits from the conjunctive use of surface and ground waters, it will be necessary to mobilise institutional investments and also to provide the necessary infrastructural facilities, the most important of which is proper tie up with energy supply.
10.17 Apart from the expeditious and efficient harnessing of the locally available water resources formulation of a National Plan would be necessary to transfer waters from one system to another in order to utilise the surplus waters to meet the needs of drought prone and water deficit areas in the country. The need for transfer of waters from one basin for utilising part of the surplus water to meet the needs of the drought prone areas in the country has been recognised. The Central Water Commission has already taken up studies to determine the quantum of shortages and surpluses in location and time in each river basin and sub-basin. These studies will include, among others, identification of drought prone areas, availability of water at present, potential of harnessing further water available locally and possibilities of transferring waters from areas having surplus water. Proposals for inter-linking of rivers are also being studied and work in this regard will be continued in the Sixth Plan.
10.18 Gross receipts from irrigation are currently insufficient to cover even the working expenses in most of the States. It will be necessary for the State Governments to revise the water rates so that the return recommended by the Seventh Finance Commission is achieved.
10.19 Recently the system of monitoring selected major irrigation projects has been introduced. The Central Water Commission has been suitably strengthened. The projects are periodically inspected and the deficiencies and bottlenecks in their implementation are brought to the notice of Government. States have also to set up monitoring cells at the project level and state level for close monitoring of projects at intervals of about six months to ensure that the targets Ire achieved according to the time schedule. The Centre is also taking steps for arranging scarce materials like cement, steel and explosives. Project authorities are being advised to prepare operational plans of the system so that their efficiencies could be watched and improved from year to year.
10.20 Cost Control Cells are required to be set up at State/project level. A detailed work plan for each project for each year will be necessary.
Regional Imbalances 10.21 In a country as vast as ours with diversified topography and availability of water resources, both
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surface and ground, there is bound to be some disparity and imbalance in the development of irrigation facilities. In addition, historical reasons like different types of administration in different parts of the country, have contributed in no small measure to the regional imbalances. Some of the States which bad good administrations have progressed far ahead of the States who have to investigate the schemes and then take them up. During the Past three decades, a number of steps have been taken to correct this imbalance as far as possible. State have been encouraged to take up investigations in a big way. Even so, a look at the development of irrigation facilities in different States would indicate that some States like Punjab, Haryana, Uttar Pradesh, Tamil Nadu have progressed ahead of others whereas States like Madhya Pradesh, Maharashtra and Gujarat have got a long way to go. However, it is gratifying that efforts are now being made in these States also to catch up with the progress made in other parts of the country and a large number of schemes are being taken up and larger outlays are being provided for irrigation development in successive years.
10.22 In addition to the efforts being made by the States, as already stated, the Centre is continuing studies for transfer of water from one river basin to another, particularly from the surplus basins to the deficit areas prone to drought according to Tide lines earlier agreed to by Planning Commission. national perspective for water resources development is being initiated in the Ministry of Irrigation and CWC which when implemented will go a long way in correcting much of the regional imbalances seen today.
Modernisation 10.23 There are number of old irrigation projects and even those constructed recently which are not able to meet the irrigation requirements of the cropping patterns developed, due to excessive transit losses and inadequacy of regulatory structures. In some Teaches, the canal capacities become a constraint. It is important to remedy these defects by undertaking a modernisation programme, which would include lining, construction of regulatory structures etc. so that requirements of crop in the peak Periods are met with and productive agriculture coupled with the use of fertilizers and other inputs becomes possible.
Drainage