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COMMON PRINCIPLES FOR WATERSHED
DEVELOPMENT
FOREWORD
The last decade of the
twentieth century has witnessed considerable activity focusing
around watershed
development. Budgetary flows through various Ministries multiplied. Operational guidelines
were developed. An ever increasing developmental army actually implemented it. Voluntary
agencies swore by the philosophy. Academicians and professionals conducted and
participated in seminars. Media, print as well as audio visual spent huge column inches
and electronic bytes to spread the message from experts to common masses. All in all, any
one and everyone who about watershed development found himself either talking or listening
or implementing the same during the last decade.
So far so good. But in a large
and diverse country like India, the decadal experience has also thrown up a few
challenges. One is regarding different set of guidelines. It was causing stress to field
level functionaries from different departments. To solve the problem, Hon’ble Finance
Minister of India, Shri Yashwanth Sinha declared during 1999 budget speech to have a
common framework regarding watershed guidelines.
To implement the vision of common
watershed guidelines, an interministerial working group under the leadership of Mrs. Sathi
Nair, Additional Secretary in the Ministry of Agriculture was constituted. Members were
drawn from Ministry of Rural Areas and Employment, Ministry of Environment and Forests and
of course - Ministry of Agriculture and Cooperation. It is essentially the team effort,
which has resulted in evolution of common principles – agreeable to all Ministries.
With a view to disseminate the
common agreed framework, this booklet is prepared and sent to as many field agencies at
the district level as possible. Our idea is to generate an informed debate at the level
where action is, and to receive the feedback. We would follow it up with a national level
seminar. Various suggestions are going to be incorporated for further fine-tuning.
MANAGE – the apex level
institute of the Ministry of Agriculture and Cooperation has been associated with
evolution of watershed guidelines at every stage. Ex-director General, Mr. S.K. Arora and
Dr. N.K. Sanghi and others have burnt midnight oil for years together during mid-nineties
towards this endeavour. The process continues even today and with renewed
vigour, it would
sustain in future too.
- (A.K. GOEL)
- DIRECTOR GENERAL
- MANAGE
CONTENTS
-
- Introduction
- Need for a
Common Approach/Principles
- Inter-Ministerial
Meeting and Constitution of Sub-Committee
- Terms of
Reference of the Sub-Committee
- The
Common Approach/Principles to Watershed Development
-
- A Implementation Strategy
- B Programme Content & Components
- C Principles of Project Management
- D Institutional Arrangements
- E Capacity Building
- F Financial Aspects
- G Monitoring and Evaluation
-
- Issues
specific to Ministry of Agriculture & Ministry of Rural
- Development
- Territorial Delineation
- General Recommendations
- List of Acronyms
-
1 Introduction
1.1 In the post Green-Revolution period the
thrust of Indian Agriculture is on enhancement of agricultural productivity through
sustainable practices. To achieve this end one of the major initiatives undertaken by the
Government of India was the implementation of a national level project/ programme for the
development of rainfed areas through the watershed approach. The Watershed Approach aimed
at augmentation and stabilization of production and productivity, minimizing ecological
degradation, reduction in regional disparity, opening up of greater opportunities for
employment of rural poor in the rainfed areas. A similar approach has been adopted for
developing the more resource poor areas -- drought prone, desert and wastelands -- and to
provide sustainable means of livelihoods to the rural poor in these areas.
1.2 A 25-Year Perspective Plan for holistic
and integrated development of rainfed areas, prepared by the Planning Commission,
envisages treatment of about 63 million hectares of land involving an estimated outlay of
Rs. 76,000 crore through various watershed development projects/ programmes. These include
the watershed development projects of the three Central Ministries (Agriculture, Rural
Development, Environment & Forest) as well as several externally aided projects.
2. Need for a Common Approach/Principles
2.1 For some time now the need has been
felt to bring about convergence and harmonization in the implementation of various
watershed development projects. However, this has not been possible so far as the aims and
objectives of these projects are different and the watershed approach – because it is
holistic, scientific and sustainable – has been adopted under these projects to
achieve their varied objectives. The latter include development of degraded arable rainfed
areas, desert and drought prone areas, wastelands, catchments of River Valley Projects and
Flood Prone Rivers, reclamation of alkaline soils and ravine lands, shifting cultivation
areas etc. While some of these projects had a very specialized focus resulting in special
norms as well as delivery mechanisms geared to meet those needs, the six major projects/
programmes, namely, National Watershed Development Project for Rainfed Areas (NWDPRA),
Watershed Development in Shifting Cultivation Areas (WDSCA), Drought Prone Areas Programme
(DPAP), Desert Development Programme (DDP), Integrated Wasteland Development Project
(IWDP), Employment Assurance Scheme (EAS) had elements of convergence and a considerable
common geographical area of operation. Significantly, these six projects/ programmes also
account for about 70 percent of funds and area under watershed programmes in the country.
2.2 The Union Finance Minister in his recent
Budget (1999-2000) Speech emphasized the need for unification of the multiplicity of
watershed development programmes within the frame-work of a single national initiative.
Consequently, Planning Commission desired that the Ministry of Agriculture hold
consultations with the Ministry of Rural Development to see whether it is possible to
arrive at a common set of guidelines for watershed development.
3. Inter-Ministerial
Meeting and Constitution of Sub-Committee
An Inter-Ministerial Meeting was held on
24.3.1999 under the joint-chairmanship of Smt. Sathi Nair, Additional Secretary,
Department of Agriculture & Cooperation and Shri. S.B. Mohapatra, Additional Secretary
Ministry of Rural Development with representatives from Planning Commission and the
respective Divisions of the two Ministries. Various aspects of the watershed programmes
were discussed in the Meeting. It was agreed that watershed projects with a specific focus
and unique characteristics such as Reclamation of Problem Soils (MoA), and Integrated
Afforestation and Eco-Development Projects (MoEF) would require a different approach in
keeping with their unique project components and special institutional requirements. The
major watershed development projects namely, NWDPRA and WDSCA of MoA, DPAP, DDP, EAS and
IWDP of MoRD which account for the major share of funds and geographical area would be
considered for arriving at a Common Approach/ Principles.
A four-member Sub-Committee was constituted
to formulate Common Approach/ Principles for implementation of the selected watershed
development programmes of the two Central Ministries within the following broad
frame-work:
- Convergence on selected programme components/ activities with
commonality in approach
- Rationalization of unit cost norms depending on nature of
programme content, work items and institutional arrangements
- Feasibility of territorial delineation to be decided in terms
of eligibility criteria, Ministerial mandate, programme focus and development objectives
- Scope for enlarging the process of capacity building involving
local bodies/NGOs, community groups and extension functionaries
- Broad-basing of financial resources through forging
inter-institutional credit linkages
- Unified approach supporting programme measures and building
suitable institutional framework for ensuring long-term sustainability
The following is the composition of the
Sub-Committee:
- Dr. Rita Sharma, Joint Secretary, MoA
- Shri Satish Chandra, Joint Secretary, MoRD
- Shri J.D. Sharma, DIG(F), MoRD
- Dr. A.N.Sarkar, Deputy Commissioner, MoA
It was decided by the Sub-Committee to co-opt
the following members from the National Institute of Agriculture Extension Management
(MANAGE) and the Ministry of Rural Development.
- Dr. N.K. Sanghi, Director, MANAGE
- Dr. D. Ramakrishnaiah, Deputy Commissioner, MoRD
4. Terms of Reference of the Sub-Committee
4.1 The mandate of the Sub-Committee was
to examine the existing guidelines of watershed development projects/ programmes of the
Ministries of Agriculture and Rural Development with a view to identify the convergence
and commonalties in approach in respect of specific criteria for selection of rainfed
areas for treatment, programme components/interventions, institutional frame-work and
modalities of implementation.
4.2 Three Meetings of the Sub-Committee were
held on 21.4.99, 1.6.99 and 14.6.99 after which the Report of the Inter-Ministerial
Sub-Committee on Formulation of Common Approach/ Principles for Watershed
Development was presented before the larger Inter-Ministerial Meeting chaired by Smt.
Sathi Nair, Additional Secretary, MoA on 5.7.99. The suggestions provided in this Meeting
have been incorporated in the Report.
5. The Common
Approach/Principles to Watershed Development
A. Implementation Strategy
5.A.1
Participatory Approach for Empowerment of Community: People’s
participation will be the key to watershed development programmes. This will not only
ensure long term sustainability of the watershed development process through ownership of
the programme by local communities, but also empower the watershed communities to initiate
activities on their own and take optimal advantage of other on-going development
programmes of the Central and State Governments. The participatory approach will enable
the programme to evolve into a "National Movement of Watershed Development that
fosters implementation ability at the local level and creates community infrastructure for
micro watershed projects through active involvement of Gram Panchayats, Local Self Help
Groups and NGOs"*.
(* Finance Minister's Budget Speech 1999-2000)
5.A.2 Implementation
of the Watershed Project through Watershed Community: The most critical
step for empowerment of the local community and assurance of their active participation in
the programme is to entrust the planning and execution of development works under the
Project to them. Under this approach it will be necessary to inform the watershed
community about the total financial resources available to them before commencing the
planning process. Likewise, they will need to be informed and educated in the mode of its
expenditure before starting the implementation phase so that the entire process is
facilitated thereby reducing to a minimum any likely conflicts among community members.
5.A.3 Role of the
Project Implementation Agency (PIA): While the main development
activities will be carried out by the watershed community itself, the overall
facilitation, coordination and supervision of the whole programme will be the
responsibility of the PIA. The role of PIA shall be to motivate gram panchayats to pass
necessary resolutions regarding implementation of watershed programmes; organize watershed
communities at the village level; train office bearers and other community members on
technological, management as well as accounting aspects; carry out Participatory Rural
Appraisal (PRA) exercises for preparation of Watershed Plan; inspect and authenticate
project accounts during implementation phase; undertake action research to identify low
cost technology wherever possible; validate as well as build upon indigenous technical
knowledge; create institutional arrangements for post project maintenance of the assets
created under the project; assist community organizations in forging functional linkages
with panchayats, credit institutions, research organizations and on-going programmes of
line departments etc. PIAs will be allowed adequate time to mobilize the community and
generate awareness about the principles of watershed development in the community.
Selection/ nomination/ election of office bearers of various community based organizations
need not be undertaken immediately upon entry in the village. A capacity building phase
may take from 6 to 8 months of the first year of the Project during which time the PIA may
work with volunteers from the village. Formal institutional arrangements may be finalized
after this phase.
5.A.4 Selection of
PIA: Selection of
PIA: Success of the watershed programme will depend upon the selection of a
suitable PIA as well as a responsive community. The selection of PIA would be through a
process by which potential PIA’s would be required to prepare project reports/
feasibility studies of identified watersheds. The project reports/ feasibility studies
would include assessment of the responsiveness of the community on the basis of their
willingness to contribute towards watershed development; promote equity for poor and
women; and to participate in shramdan. These Project Reports and the PIAs would be
assessed/ evaluated for strengths based on fixed criteria and the final selection would be
made by a Selection Committee.
5.A.5 Project
Proposals to be Demand Driven and Reflect Felt-Needs of the Community: To
ensure that the involvement of watershed communities in the planning process does not
remain merely passive, the formulation of the project proposal will be through a
"bottom up" process. Subject Matter Specialists will orient the watershed
community with respect to technological options and leave the final choice of technologies
to the users. While exposing the participants to various options, particular attention
would also be paid to indigenous innovations evolved by the community itself.
5.A.6 Replication of
Successful Watershed Development Projects: A number of successful and
sustainable watershed development projects both under Government and Non-Governmental
efforts have demonstrated the strength and utility of the watershed approach. In addition,
innovative members of the community have also created replicable techniques in management
of natural resources. Such success stories would be "shown" to the potential
watershed communities and the extension functionaries involved therein and the community
members motivated through focussed exposure visits to these examples. Action plans
prepared by the community after exposure to such projects would incorporate elements of
their demonstrated successes thereby ensuring a higher likelihood of sustainability.
5.A.7 Development
of Common Property Resources (CPRs) and Sharing of Usufruct Rights: Wherever
there exist community lands in micro-watersheds the development of such lands, especially
the contribution of the community in the form of cash or labour, will depend upon the
sharing of the usufruct likely to accrue as a result. The usufructs after meeting the
needs of the beneficiaries will be sold. Of the net proceeds 10 percent may be deposited
in the village development fund of the Panchayat, 15 percent be deposited in the Watershed
Development (Corpus) Fund of the Watershed Committee to meet future needs of maintenance
of CPRs to ensure continuous generation of usufructs from such CPRs. The remaining 75
percent may be shared by the members of the Watershed Association, including the landless.
5.A.8 Development of
Forest Lands in Watershed Areas: Some watersheds may encompass, in addition to
arable land under private ownership, forest land under the ownership of State Forest
Department. Since nature does not recognize artificial legal boundaries of forest and
non-forest lands in watersheds, entire watershed is to be treated in an integrated manner.
Though the criterion for selection of watersheds primarily remains predominance of
non-forest lands, the forest lands forming part of such watersheds are also to be treated
simultaneously as per guidelines:
- Technical sanction of the treatment plans should be given by
the Divisional Forest Officer concerned
- The programme should as far as possible be implemented by
Village Forest committees existing in that area. If no such Committee exists, their
formation may be encouraged, or else the project activities in such watersheds should be
taken up by the Forest Department.
- Village Forest Committees should be treated at par with
Watershed Committee. Since Village Forest Committees are registered with the Forest
Department of the respective States, there would not be any need for getting them
registered under the Societies Registration Act.
- The Micro-watershed Development Plan for the forest areas
should be in conformity with the Forest Conservation Act
- Where a relatively larger proportion of the watershed is
covered by forest lands, Forest Department at the district level should be encouraged to
take up the work of development as Project Implementation Agency.
- A forest official should invariably be included as a member of
the Watershed Development Team wherever forest land falls within the watershed.
5.A.9 Linkages of
Watershed Community with Panchayat Raj Institutions: An important element of
long term sustainability is to forge linkages with permanent institutions in the area.
Efforts will be made to strengthen linkages between watershed community organization and
Panchayat Raj Institutions (PRI). Since PRIs are in varying degrees of administrative
effectiveness in the States, the latter are likely to follow different mechanisms for
linkages between the watershed institutions and the PRIs. Wherever possible Panchayats
should be encouraged to undertake direct implementation of the Watershed Project.
Elsewhere linkages should be forged between the Panchayats and the watershed communities.
Some of the mechanisms being adopted at present include: (i) provision of nominating two
representative of the Village Panchayat into the Watershed Committee of which one is a
woman; (ii) declaring Watershed Committee as a sub-committee of the Land Management
Committee under the Panchayat Raj Act*.
(*In Uttar Pradesh under the U>P> Sodic Land Reclamation Project, the
Watershed Committee(called Site Implementation Committee) has been declared a
Sub-Committee of the land Management Committee of the Village Panchayat.Under the State
Panchayati Raj Act there is provision of establishment of such subcommittees which
function as the technical/operational arm of Village Panchayat. With this arrangement, it
would become possible to formally transfer the permanent assets created under watershed
programme to the WC for subsequent utilization and maintainence.)
5.A.10 Linkages with
Credit Institutions: During the Project lifetime the PIA and WDT will work to
develop linkages with the credit institutions such as the Regional Rural Banks,
Cooperative Banks etc. The credit requirements of the Watershed Project would get
reflected in the District Credit Plan. Watershed Projects would form a regular agenda item
in the District Credit Coordination Committee, the State Level Coordination Committee as
well as at the National Committee. Credit would flow to constituents of the watershed
through (i) credit for production activities as reflected in the Watershed Plan such as
short-term crop loans, medium term loans for Livelihood Systems such as dairy animals,
etc. (ii) credit support to Self Help Groups (iii) Watershed Development Fund at NABARD.
5.A.11 Promoting
Equity for Resource Poor and Women: In all watershed development projects
thrust would be on improving equity through special efforts at strengthening the
socio-economic status of landless and women. The following specific steps may be
considered while promoting equity under the watershed programme:
- Focus on development of poor quality and marginal lands owned
by resource poor families
- Preferential allocation of usufruct rights over produce from
the developed common land to landless households / women groups
- Equitable right to all households in any new water resource
developed under the project
- Construction of new water harvesting structures near the land
/ recharged wells including drinking water wells owned by resource poor
- Groundwater to be treated as a common property resource
- Equal employment opportunities and wage rates for
implementation of watershed works
- Due emphasis on livelihood support systems for landless
households
- Utilizing the services of the landless poor and women in the
post-project management of common property resources.
B Programme Content & Components
5.B.1 The watershed programme is categorised into two major
components
Development Component
to be executed through the watershed Association, for which the funds are to be released
directly to the Watershed Committee;
Management Component
to be undertaken by the Project Implementing Agency(PIA) for which funds will be released
to PIA.
5.B.2 Development
Component consists of two sub-components, namely, natural resource management
and production system management. The natural resource management sub-component includes
management of private land, management of common land and management of rain water on the
scientific ridge-to-valley approach; whereas production system management sub-component
includes on-farm production system for land owning families and household livelihood
support system for landless families. Overall allocation of funds for each of these
components and sub components is under section 5.F.3.
5.B.3 Management
Component consists of three sub-components, namely, administration, community
organization and training. The sub-component of community organization includes activities
not only related to organization of new institutional set up at the village level but also
items such as entry point activities, infrastructure development, preparation of project
proposal, adaptive research etc.
5.B.4 Integrated
Development of Natural Resources: Watershed projects will aim at an integrated
development of natural resources. This will be achieved through the preparation of a
Watershed Plan which reflects the felt-needs of the watershed community in a holistic
manner.
5.B.5 Approach
for Problem Soil and Leased/ patta land: Through the watershed approach,
problem soils and marginal lands usually owned by or under lease to the poorer sections of
the village community, will be suitably treated and developed leading to conservation of
natural resources, enhancement of productivity and improvement of equity for poor. The
process will be facilitated through the mobilization of farmers (particularly women
members of the households) owning such land into Groups.
5.B.6 Water
Harvesting Structures: Water harvesting structures for micro-level
situations (village or part of village) are based on different principles and perceptions
compared to large sized structures for macro-level situations. In the former situation,
indigenous structures are found to be more appropriate as they are low cost, easy to
construct and maintain and are beneficial to resource poor families*.
However, for larger structures which require higher financial investment, the State
Watershed Committee may set an upper cost ceiling for construction of such structures for
the State. If, however, a watershed community desires to exceed the ceiling fixed by the
aforesaid Committee they may do so by making a community contribution in excess of the
limit fixed. For preparation of estimates for larger water harvesting structures and
supervision of its quality during implementation the services of a qualified person at the
local level may be engaged by the Watershed Committee.
(* Examples of such indigenous structures are khadin in Rajasthan,
percolation tank in Southern states, diversion channels(guls) in semi perennial water
courses; farm pond in high rainfall black soil areas; sunken dug out ponds etc.)
5.B.7 Strengthening
Linkages between Conservation Measures and Production/ Livelihood System: Soil
and water conservation measures must necessarily be followed by appropriate production
systems. Enhancement of rural incomes and long term sustainability can only be
ensured through the development of natural resources. To achieve this end (i) the natural
resources in the watershed area will be developed in accordance with their realizable
potential and the ridge to valley approach; and (ii) simultaneously production/
development activities will be undertaken on the treated lands through the use of
appropriate technologies. Both conservation and development measures would be implemented
in accordance with the Watershed Plan which reflects the needs of both individual farmers
for private lands, user community for common lands and water sources and the scientific
input of subject matter specialists.
5.B.8 Flexibility in
Choice of Technology: Taking account of the high degree of heterogeneity
in the socio-economic and agro-ecological conditions in rainfed areas a high degree of
flexibility will be provided in the choice of appropriate technologies at the watershed
level. A menu of the technological options for each component and sub-component under the
watershed programme will be available to the watershed community in the detailed
Operational Guidelines of different Projects. Necessary additions, including indigenous,
low cost technologies, could be incorporated by PIA at the watershed level based upon the
location specific requirement. As far as production technologies are concerned these are
being evolved through a number of sources namely public sector, private sector, NGOs,
innovative farmers, etc. The watershed community may in consultation with subject matter
specialists choose appropriate technologies from any of the above sources.
5.B.9 Research
Input in Watershed Development: In recognition of the fact that
technologies for rainfed farming are more heterogeneous than technologies for irrigated
systems, greater attention will focus on promotion of on-farm-research. Under the
watershed programme provision is made for Research Organizations such as ICAR research
centres, Krishi Vigyan Kendras, Zonal Research Stations, State Agriculture Universities,
lead NGOs with professional expertise, etc. to develop mini/ microwatersheds ranging from
100 hectares upto 500 hectares. The mini-watershed will serve as a field and action
laboratory for the research organization where adaptive research on land and water
management as well as on different production systems can be undertaken. Such a
mini-watershed where new technologies can be developed, tested and demonstrated by the
research organization may develop into a model watershed, which could be replicated
elsewhere. The research proposals from eligible/ competent R&D Institutions will be
approved by a Selection Committee. The Project Implementing Agency will forge linkages
with research institutions, namely ICAR Institutes, State Agriculture Universities, Krishi
Vigyan Kendras and others to ensure effective technical backstopping to the watershed
programme.
5.B.10 Extension
Support through Line Departments: Extension support to Watershed
Community will be provided partially by the members of the Watershed Development Team and
more so by the Subject Matter Specialists of the Line Departments and KVKs in the
execution of the Production System component of the Watershed Plan. Extension activities
will comprise primarily of (i) conducting orientation training courses on the concept,
strategy, technical programmes, implementation mechanisms and on the modalities of
technology transfer of the improved package of agronomic practices and allied activities
in the watershed: (ii) organizing frontline/ on-farm demonstrations in the farmers’
field by the trained extension personnel in close supervision of local research
institutions; (iii) conducting suitable training courses for farmers, NGOs, Panchayats,
etc. to help develop participatory skill and technological know-how which can be
effectively utilized for Watershed Development and (iv) organizing exposure visits to
model watershed projects/ success stories.
5.B.11 Convergence
between Watershed Project and On-Going Production and Rural Development Programmes:
Not all of the felt needs of the watershed community as reflected in the PRA exercise
will be able to be financed through the Project resources. Advantage must be taken of the
regular on-going production programmes of the Line Departments, -- Agriculture,
Horticulture, Livestock, Fisheries, Sericulture, Forest as well as rural development
programmes of the DRDAs/ ZPs to bring about requisite convergence. The District Watershed
Committee which comprises representatives from Line Departments and where the Watershed
Plans would be coordinated and reviewed would be the appropriate forum wherein dovetailing
with on-going programmes would be achieved.
C Principles of Project
Management
5.C.1 Size
of Watershed Unit: Field experience indicates that smaller watersheds
are simpler to manage particularly when developmental funds are to be operated directly by
the watershed community. The average size of a watershed would be 500 ha. making it
coterminous with a single village in most cases. In case of larger sized villages more
than one watershed can be identified whereas more than one smaller sized villages may be
considered part of a single watershed. Selection of micro-watershed should be based on the
scientific principles of priority setting where watersheds with higher degree of
degradation be accorded precedence. Use be made of land degradation mapping being
undertaken by several national and state level organizations such as National Remote
Sensing Agency and All India Soil and Land-Use Survey.
5.C.2 Selection of
Project Implementing Agency (PIA): Reputable NGOs, Research and
Training institutions, Krishi Vigyan Kendras, Panchayat Raj Institutions and state
government line departments would be eligible to become Project Implementing Agencies. In
case of NGOs, experience of 4-5 years on watershed development would be a requirement. In
the event there is more than one NGO desirous of working as Project Implementing Agency, a
selection procedure would apply whereby each PIA would submit a Project / Feasibility
Report, which would be assessed and selection made by the Selection Committee. The number
of watersheds managed by a PIA can range upto 10 in a district and should preferably be
contiguous for effective supervision by the PIA.
5.C.3 Broadbasing of
Watershed Development Team(WDT) : Each PIA shall be eligible to engage
(from the administrative funds provided) on a purely temporary basis four persons to work
on a full time basis as members of the Watershed Development Team (WDT). In situations
where the state government department is entrusted with the task of PIA, it may have
freedom to either engage on an honorary basis or on purely contractual terms WDT members
or to identify its own qualified persons to act as WDT on full time basis. One of the WDT
members should be a woman. A Sociologist may also be included in every WDT. The other
three members should be at least graduates in subject disciplines of relevance to the
watershed e.g. agriculture, forestry, animal sciences or related basic sciences, etc. Retired
government officials with requisite experience in the area may also be considered. If
requisite number of graduates of the aforesaid qualification are not available, then the
District Watershed Committee may relax the qualifications. The latter may be done only in
rare circumstances and only when the search for qualified graduates, as mentioned above,
has not brought forth the desired result.
5.C.4 Approval
of Watershed Plan / Action Plan by Community: The PIA shall help in
organizing the watershed community, carrying out PRA exercises, arranging focussed
exposure visits to successful watersheds etc. and assist individuals or User Groups to
prepare their portion of the Action Plan. Later, the secretaries and volunteers of the
Watershed Committees would help in synthesizing individual Action Plans into a
consolidated Plan for the entire watershed area. Each Watershed Plan would have a clearly
identified "withdrawal strategy" for the last year of the Project which would
ensure the take over of the all project activities by the community. The overall Plan
would comprise of the following:
- Management of natural resources (private land, common land and
water resource)
- Improvement of farm production system of the land owning
families
- Improvement of livelihood support systems for landless
families
The approval of the Watershed Plan would be
given by the Watershed Association at the village level in a formal meeting in the
presence of Watershed Committee members and the Watershed Development Team after which it
will be submitted for Administrative Approval to the District Nodal Agency.
5.C.5 Administrative
Approval of the Watershed Plan: The District Nodal Agency will accord
administrative and financial sanction to the Watershed Plan after the Watershed
Association has approved it. After the above approval the Watershed Committee shall become
eligible for drawing the first installment of funds for initiating the developmental
works.
5.C.6 Empowerment of
Watershed Association: All decision- making power would vest with the
Watershed Association. The Watershed Association would not only approve the
Watershed Plan and the Annual Action Plans of the watershed but also carryout review of
progress during implementation phase. For this purpose meeting of WA may be arranged
frequently.
5.C.7 Transparency
in all aspects of project management: Transparency under the programme
would be promoted as follows :
- Preparation of Watershed Plan/ Action Plan through application
by each user / User Group.
- Approval of Watershed Plan/Action Plan at the open meetings of
Watershed Association.
- Display of approved Watershed Plan/ Action Plan on a Notice
Board at the Watershed Association office and through prominent painting on the wall of
Village Community Hall.
- Review of physical and financial progress of work during
implementation phase through monthly meeting of WA
- Payment to concerned labourers directly and through cheques,
wherever possible
5.C.8 Post project
maintenance of community assets: Under the watershed programme various
community assets are created such as water harvesting structures, community nurseries,
community meeting halls. During implementation phase peoples contribution being collected
for private works and community works and deposited under watershed development fund would
be used for post project maintenance. The following specific steps /guidelines may be
adopted for maintaining the community assets after completion of the Project:
- All community assets created under the project would be
formally transferred to the Watershed Associations for its operation and maintenance
- The community assets would be divided into two categories (i)
those which are to be used by the same families on a regular basis (eg. water tanks, field
drains, etc.) (ii) those which are annually auctioned (eg fishing right, biomass from the
common land / forest land etc.)
- A list of beneficiaries would be prepared for assets under
category-I
- The Watershed Association shall have the right to decide the
service charges to be collected from beneficiaries associated with first category of
structures and also collect the amount through auction regarding use of assets under
second category of structures. The amount from both the sources shall be deposited under
Watershed Development Fund (WDF) account.
- The Watershed Committee will maintain these community
structures by using the money in the Watershed Development Fund. In case of structures
under category-I WC shall meet 25 percent of the cost from WDF. The remaining 75 percent
will be borne by the beneficiaries of these structures. In case of structures under
category-2 the entire cost towards repair / maintenance may be borne out of WDF subject to
its availability.
- For carrying out above requirements the Watershed Committee
may engage the services of a watershed secretary on a regular or part-time basis depending
upon the need and financial resources available
- The details about income and expenditure shall be presented in
regular meetings of the Watershed Association and put on the notice board of panchayat on
six months basis.
3 In the event that the Watershed Association becomes
defunct, the community assets and the Watershed Development (Corpus) Fund will transfer to
the Village Panchayat.
D. Institutional
Arrangements
5.D.1 Under the participatory
approach the Watershed Development Project is to implemented by the watershed community
and funds for development activities are to be released directly to the community for
execution of works. Similarly, preparation of the Watershed Plan and the annual action
plans is to be undertaken with active participation of community members. –
individually or through different User Groups. The following three organizations will be
established/ identified for the implementation of the project (i) Community Based
Organizations (ii) Project Implementation Agency for a cluster of 2-10 watersheds and
(iii) Autonomous Support Organization on a pilot scale in districts where there may be
several NGO Project Implementing Agencies.
5.D.2 Community
Based Organizations: Community Organizations at watershed level would
consist of User Groups (Land & Water Resource based), Self Help Groups (consisting of
women and landless families); Watershed Committee (consisting of representative
members from UG, SHG, Panchayat etc.) Watershed Association (consisting of all members of
the watershed). The Watershed Association shall be registered under the Societies Act
whereas User Groups and Self Help Groups would remain as informal groups.
5.D.3 Project
Implementation Agency: PIA shall be selected for each cluster of 2-10
watersheds. PIA shall hire a four member watershed development team to work on full time
basis for the above watershed. The headquarter of the WDT members shall be kept at one of
the watershed villages and they may be encouraged to stay in these villages in order to
provide opportunities for working closely with the community.
5.D.4 Autonomous
Support Organization: Support Organization may be
established/ identified on a pilot basis where there are several NGO Project Implementing
Agencies functional. These Support Organizations may be created in each district or for a
cluster of districts or even at state level depending upon the number of PIAs . Each
Support Organization would serve about 10 PIAs.
5.D.5 Management
Committees: Under the project the following four types of management
committees are envisaged to review and guide the programme at different levels. These
include: National Watershed Committee, State Watershed Committee, District Watershed
Committee and Watershed Association.
5.D.6 National
Watershed Committee: This Committee may be jointly chaired by Secretary
(A&C) and Secretary (RD) on rotation and have its members from various organizations
including ICAR, Departments of Animal Husbandry & Dairying, Planning Commission,
Ministry of Environment and Forest, Ministry of Rural Areas and Employment and Experts in
the field. This Committee may meet once in a year for reviewing the progress and providing
policy direction to the programme.
5.D.7 State
Watershed Committee: This Committee may be chaired by Chief Secretary or
Agriculture Production Commissioner and the members of the committee may be drawn from
concerned line department of the state govt. including rural development and panchayat raj
department; representative from SAU /ICAR institution in the state, representatives of
selected autonomous support organizations, NGOs and Presidents of selected Watershed
Associations. The above committee may meet once in six months to issue policy directives,
review progress, resolve management issues.
5.D.8
District Watershed Committee: This Committee may be chaired by District
Collector or Chairman of District Panchayat/ Zila Parishad. The committee may meet
frequently depending upon the need. Its members would be drawn from concerned district
line departments, KVK, Autonomous Support Organization in the district, selected PIAs from
Government Organizations, Non-Government Organizations and peoples organizations; chairmen
of selected Watershed Associations etc. The committee would review the progress of the
watershed project, assist in resolving management and administrative problems, guide in
implementation, identify policy issues, if any, for reference to state and national
committees.
5.D.9
Watershed Association/ Watershed Committee: The Watershed Association
(registered under the Societies Act) will be the General Body comprising all members of
the watershed community who agree to participate in the watershed development project. The
Watershed Committee shall act as an executive body of the Watershed Association and carry
out the activities of the Watershed Plan through paid employees. The Watershed Association
will be the final decision making body. The Watershed Association may meet in respective
watershed villages on monthly basis to plan and review the activities particularly during
implementation phase.
E Capacity Building
5.E.1 Orientation
and Capacity Building: To overcome the constraint of inadequate capacity
particularly at Project Implementing Agency and Watershed Committee level a major
orientation in the tools and techniques of participatory approaches and capacity programme
is a pre requisite to finalizing the selection of PIA or watershed site. For this purpose
the following specific steps are being proposed:
- Orientation of members of various management committees and
institution heads
- Training of state level trainers drawn from various
organizations in the state
- Training of faculty members of autonomous support
organizations at district level
- Training of Project Implementation Agency / Watershed
Development Team identified for each cluster of 2-10 watersheds
- Training of office bearers of Watershed Association, Watershed
Committee, User Groups, Self Help Groups etc.
5.E.2 Autonomous
Support Organization at District Level: In districts where several NGO Project
Implementation Agencies are likely to be involved with implementation of watershed
development projects, the district nodal agency* may identify
an Autonomous Support Organization at the district level to undertake responsibilities
related to identification of appropriate NGO Project Implementation Agencies; building the
capacity of the PIAs / WDTs, coordinating and supervising the progress of work of
concerned PIAs; reviewing and evaluating performance; liaisoning between PIAs and district
nodal agency. The Support Organization may hire a multi-disciplinary team of four persons
to provide the services. These support organizations may be started on a pilot basis in
selected districts where there are likely to be a large number of NGOs**.
(* Joint Director Agriculture /District Agriculture Officer in case of
Ministry of Agriculture and the DRDA in case of Ministry of Rural Development)
(** This
institutional mechanism has been usefully adopted under the Indo-German Watershed project
in Maharashtra and DFID watershed Project in Karnataka)
5.E.3 Training of
Personnel: Orientation / training of persons for persons under serial 1 and 2
above may be undertaken by national institutions such as National Institute of Rural
Development (NIRD), Central Arid Zone Research Institute (CAZRI), Central Soil and Water
Conservation Research and Training Institute (CSWCRTI), Central Research Institute for
Dryland Areas (CRIDA) and National Institute for Agricultural Extension Management
(MANAGE) etc. Subsequently state level trainers may build capacities of faculty members of
autonomous support agencies, wherever these may be established. These agencies in turn
would train PIA / WDT. Responsibility of training office bearers of Watershed Committees,
Watershed Association, User Groups, Self Help Groups would rest with Project Implementing
Agency / Watershed Development Team. Autonomous Support Organizations at district level
can play a key role in building the capacity of PIAs. The funds for capacity building
would be met out of training budget of the Project.
F Financial Aspects
5.F.1 Unit
Cost Norms: The unit cost norms will range from Rs. 4500 to Rs. 6000 per
hectare depending upon the nature of location during the Ninth Plan period. With this
provision the total amount for a 500 hectare unit watershed would range between Rs. 22.50
lakhs and Rs.30.00 lakhs.
5.F.2 Exception to
Unit Cost Norms: In cases where treatable forest area in the selected watershed
is in excess of 25 percent, the unit cost norms as indicated in 5.F.1 may be modified
upwards by the State Watershed Committee*. In case of the
Centrally Sponsored Scheme of Watershed Development for Shifting Cultivation Areas, being
implemented in the North Eastern States, the unit cost norms would be in accordance with
norms approved by the Cabinet Committee on Economic Affairs and not necessarily in
conformity with those prescribed in 5.F.1
(* This
proviso does not have the approval of the Expenditure Finance Committee(EFC). It has
been added as a result of the Meeting on Operationalization of the Watershed development
Fund at NABARD on 1.7.99 under the Chairmanship of Secretary (Agriculture) where MoRD,
MoEF, were also represented, since the common guidelines will apply to projects taken by
the states with 67% of the WDF. This section of the Common Approach will be highlighted in
the CCEA Note for the NWDRA currently under finalization.)
5.F.3 Allocation of
Funds by Component: The allocation of funds for major components is as given
below :
| Sl.No. |
Components |
Allocation of Funds (%) |
| A. |
Management component
- Administration cost |
10.0 |
| |
|
|
| |
-
Community organization |
7.5 |
| |
-
Training programme |
5.0 |
| B. |
Development component
- Natural Resource Management |
50.0 |
| |
- Farm
production system for land owning families |
20.0 |
| |
-
Livelihood support system for land-less families |
7.5 |
| |
Total |
100.0 |
5.F.4 Cost Norms for
Structures: Keeping in view high variability in labour cost from place
to place there will be flexibility in cost norms for each structure regarding natural
resources management. The cost estimates would be worked out as per Standard Schedule of
Rates (SSR) in the respective areas.
5.F.5 Financial
Ceiling on Selected Items of Work: Development funds under the Project
are to be utilized primarily in three components (i) natural resource management
(ii) production system management (iii) livelihood support systems. While considerable
flexibility is provided in choice of individual technologies the overall unit area cost
norms are to be adhered to as indicated in 5.F.1. For large water-harvesting structures
which require higher financial investment, the State Watershed Committee may set an upper
cost ceiling for construction of such structures for the State. If, however, a watershed
community desires to exceed the ceiling fixed by the aforesaid Committee they may do so by
making a community contribution in excess of the limit fixed. For preparation of estimates
for larger water harvesting structures and supervision of its quality during
implementation the services of a qualified person at the local level may be engaged by the
Watershed Committee.
5.F.6 Ceiling on
Entry Point Activity: Entry point activities may require high investment. For
this purpose a ceiling of three percent of project cost, to be met from the Management
Component (Section 5.F.3) is considered appropriate for each unit watershed.
5.F.7 Ceiling on
Sundry Other Items: Various other items under administration, community
organization, training etc. may be determined by the District Watershed Committee at the
district level.
5.F.8 Flexibility in
Re-allocation of Funds: As far as possible the PIA shall restrict the
fund utilization within the broad allocations indicated in the guidelines. However in
special situations the budget may be re-allocated to the extent of 10 percent from one sub
component to another sub-component. No budget shall be transferred from development to
management component, however, any savings from the management component may be
transferred to the Development Component.
5.F.9 Cost Sharing
by Community: The project shall provide 100 percent grant for the
management component as well as development component. However in case of development
component the participating families are required to contribute at the rate of 10 percent
for individual works and five percent for community work. In case of SC/ST the
contribution for individual work shall be reduced to only five percent. The same pattern
shall be applicable for the natural resource management as well as farm production systems
/ livelihood support systems. The entire contribution from participating families shall be
deposited in the watershed development fund. In case of works related to natural resource
management, the families may have the choice to contribute either in cash or as labour.
5.F.10 Watershed
Development (Corpus) Fund for Maintenance of Community Assets: One percent of
approved project cost will be earmarked as Corpus Fund to ensure suitable maintenance of
community assets created in the watershed under the project. The one percent project
contribution will have to be matched by the contribution from the watershed community and
partially from the state government. This Fund may be further augmented from the sale of
produce from common resources as well as borrowings from credit institutions as well as
other sources of maintenance under Jawahar Rozgar Yojana, Panchayat Development Fund, etc.
The Corpus Fund may be accessed from Community Organization sub-component.
G Monitoring and
Evaluation
5.G.1
Monitoring of Progress at District Level: At the district level it is essential
to review the progress of each Project Implementing Agency on a monthly basis. Likewise
Project Implementing Agency may review the progress of each watershed before participating
in the district level meeting. During implementation phase it may be advisable to prepare
a monthly plan for achieving required financial and physical progress in each watershed.
Watershed Associations may also undertake monthly meetings to review progress. This
approach would help in achieving a steady progress and also timely resolution of
bottlenecks in implementation.
5.G.2 Monitoring of
Physical & Financial Progress: Periodic review of progress during
implementation phase at the district, state and national level will be undertaken
regularly and suitable standard formats will be evolved so that a uniform system is
developed for various levels.
5.G.3 Concurrent
Evaluation by Internal as well as External Agencies: A system of concurrent
evaluation would be evolved through internal as well as external agencies. In this
evaluation, a critical assessment may be made of the relevance of technological content,
involvement of people in the programme, equity for poor and women, facilitation of group
action in addition to physical and financial progress. Requisite budgetary provision will
be made for the purpose from the project budget. On completion of project an impact
evaluation will be undertaken. Use will be made of remote sensing, satellite imagery and
other modern techniques for evaluation of watershed project.
6. Issues
specific to Ministry of Agriculture & Ministry of Rural Development
6.1
Mandate of Watershed Programmes of the Two Ministries: The mandate of the
Ministry of Agriculture is to enhance production and productivity of rainfed areas through
sustainable agricultural practices. Mandate of Ministry of Rural Development is
development and maintenance of the natural resource base in rural areas for increased
employment generation and improvement in the general socio-economic conditions of the
rural poor on a micro-watershed basis through people’s participation.
6.2 Selection
Criteria for Watersheds: The selection criteria of Blocks for the programmes of
the two Ministries, namely, NWDPRA, DDP, DPAP, EAS and IWDP are different and specific to
each Ministry.
6.3 Project Specific Choice of
Technologies: Technologies for the Projects will be specific to the nature of
the project and the location where these projects will be implemented.
6.4 Fund Flow
Mechanism to District Level: Fund flow mechanism would be specific to
each Ministry. In case of Ministry of Agriculture it would operate as follows:
- From Ministry of Agriculture, Government of India to the State
Government nodal department namely Department of Agriculture/ Soil & Water
Conservation
- From the State Department to the district head of Department
of Agriculture / Soil Conservation.
- From the district head of the Department of Agriculture / Soil
Conservation to the concerned watershed institutions (PIA for the management component, WC
for the development component and support agency, if any, for capacity building
component).
In the case of Ministry of Rural Development
it would operate as follows:
1 Centre and State Government would release
their share of funds directly to the District Rural Development Agency / Zila Parishad
2 DRDA/ZP in turn would further release funds
to watershed institutions (PIA for the management component, WC for the development
component and support agency, if any, for capacity building component).
7. Territorial Delineation
7.1 Territorial
Delineation between Projects: For new watershed projects to be taken up the
following will be the territorial delineation:
(i) All Watersheds located in Blocks
identified as DDP Blocks by the MoRD will be saturated under the Desert Development
Project. NWDPRA and IWDP would not operate in these Blocks.
(ii) All Watersheds located in Blocks
identified as DPAP Blocks by the MoRD will be saturated under the Drought Prone Areas
Project. NWDPRA and IWDP would not operate in these Blocks.
(iii) In the remaining Blocks either NWDPRA,
IWDP and EAS would operate.
(iv) Reports of Land Degradation Mapping
prepared by NRSA and AISLUS Watershed Atlas should be utilized by the State and district
levels agencies for identification of watersheds to be taken up under the watershed
programmes of the MoA and MoRD.
(v) For the purpose of approval of new
watershed project in a new project site in a block, necessary Certificate will have to be
obtained from the Competent District Level Authority namely the District Collector
indicating therein that no other watershed programme / projects will be taken up in the
same Block/ Watershed.
8. General Recommendations
8.1 Applicability
of Common Approach/ Principles: Common Approach/ Principles will be effective
in respect of new watershed projects/ programmes being implemented by two Central
Ministries, namely, Agriculture & Rural Development. However, for other Centrally
Sponsored Schemes which address special problems through the watershed approach and have
unique institutional arrangements to address those problems and significantly different
programme content such as reclamation of alkaline lands and the inter-state projects of
Flood Prone Rivers / River Valley Projects, separate approach and guidelines will be
followed. The Common Approach/ Principles will however, be applicable to the Centrally
Sponsored Scheme of Watershed Development in Shifting Cultivation Areas albeit with higher
unit cost norms as approved by the Cabinet Committee on Economic Affairs.
8.2 Preparation of
Detailed Operational Guidelines: Based on the Common Approach/ Principles each
Ministry will prepare a Manual of Operational Guidelines for use of all institutions and
agencies involved in the execution of watershed development projects. The Manual of
Operational Guidelines will be made available in the local language to all implementing
agencies.
8.3 Orientation
Courses for Common Approach/ Principles: Common Approach/ Principles include
uniform cost norms, size of watershed, project cycle, institutional arrangements,
mechanism of monitoring, review and impact evaluation, cost and benefit sharing,
post-management and financial management aspects. Common Approach/ Principles should be
universally adopted for implementation at the Project/ field level. To ensure orientation
of all concerned personnel in the New & Common Approach it will be useful to organize
workshops and training courses for Central, State and District level officials to arrive
at common understanding about the principles, approaches and implementation strategies of
the new dispensation.
List of Acronyms
CBO |
Community Based Organization |
| CAZRI |
Central Arid Zone Research Institute |
| CPR |
Common Property Resources |
| CRIDA |
Central Research Institute for Dryland Areas |
| CSWCRTI |
Central Soil and Water Conservation Research and
Training Institute |
| DDP |
Desert Development Programme |
DPAP |
Drought Prone District Programme |
| DRDA |
District Rural Development agency |
| DWCRA |
Development of Women & Children in Rural
Areas |
| EAS |
Employment Assurance Scheme |
| FPR |
Flood Prone Rivers |
GOI |
Government of India |
ICAR |
Indian Council of Agricultural Research |
| IRDP |
Integrated Rural Development Project |
| IWDP |
Integrated Wasteland Development Project |
| KVK |
Krishi Vigyan Kendra |
| MANAGE |
National Institute of Agriculture Extension
Management |
MoA |
Ministry of Agriculture |
| MoRD |
Ministry of Rural Development |
| MoEF |
Ministry of Environment and Forest |
| NABARD |
National Bank for Agriculture and Rural
Development |
| NGO |
Non-Governmental Organization |
| NIRD |
National Institute of Rural Development |
NWDPRA |
National Watershed Development Project for
Rainfed Areas |
| PIA |
Project Implementing Agency |
| PRA |
Participatory Rural Appraisal |
| PRI |
Panchayat Raj Institutions |
| RD |
Rural Development |
RVP |
River Valley Projects |
| SAU |
State Agricultural Universities |
| SC |
Scheduled Caste |
| SHG |
Self-Help Group |
SMS |
Subject Matter Specialist |
| SSR |
Standard Schedule of Rates |
| ST |
Scheduled Tribe |
| TRYSEM |
Training Rural Youth for Self Employment |
UG |
User Group |
| WA |
Watershed Association |
| WC |
Watershed Committee |
| WDT |
Watershed Development Team |
WDSCA |
Watershed Development in Shifting Cultivation
Areas |
| ZP |
Zila Parishad |
| ZRS |
Zonal Research Station |
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