PARTICIPATORY IRRIGATION MANAGEMENT

(A) Background of PIM in Andhra Pradesh

1. Irrigation Scenario

(a) Irrigation Facilities

Andhra Pradesh is the fifth largest state in India with a geographical area of 678lakh acres. It is
primarily an agrarian state with about 70 percent of its population dependent
on agriculture .Around 49 percent of the geographical area is the cropped area (333.58lakh
acres). Irrigation plays a vital role in agricultural production and the Government has been laying
great stress on improving the irrigation facilities through the Major, Medium, Minor Projects.

(b) Irrigation Potential

The Irrigation Potential, which was around 53.62lakh acres in 1956, has increased to about
158.14lakh acres over the years by 1997-98. However, due to various reasons, the Irrigation
Potential created is not fully utilized particularly under Major and Minor Irrigation sources and
A large extent of tail end areas remain un- Irrigated.

(c) Problems in Irrigation

(i) In all our Irrigation Projects , it is a common experience that we are not able to reap
the full benefits of the projects for various reasons. Viz (a) the distribution systems
are not adequately maintained (b) water regulation is not done satisfactorily, and (c)
farmers have practically no role in water distribution and in system management. As a
result, large chunks of tail end areas under all Distributaries Minors, and even within a
chak remain un-Irrigated.

(ii) In a situation , where supply of water is irregular and inadequate ,a constant scramble
for water exists leading to anarchy. On one side, the farmers lost faith in the Irrigation
Administration, since their expectations are belied, and on the other side irrigation
field staff feel that farmers do not abide by rules but take water arbitrarily, resulting in
damages to the system.
 (d) Farmers Participation

Experience all over the world have shown that farmers or users participation in management of
irrigation systems along with irrigation officials and other concerned government
departments is important to remedy the situation.

2. Low Irrigation Potential

The irrigation utilization ranged from 52 to 81 percent in earlie r days thus:

IRRIGATION UTILIZATION

Irrigation Irrigation Percantage of

Projects potential created Potential Utilized Utilization

(average)

Major and Medium Irrigation 88.95 46.21 51.90

projects

Minor Irrigation projects 29.65 23.97 80.80

Ground water Resources 39.54 36.32 91.90

Total 158.14 106.50 67.30

3. Investment in irrigation sector

 The investment for creating irrigation resources is also very high in Major, Medium and Minor
Irrigation sectors and the average cost per acre is Rs.50,000 ,Rs.40,000 ,Rs.36,000 respectively.
 The Irrigation sector has been one of the largest users of plan fund with an average investment of
24 percent of the plan. The gaps in irrigated area due to structural deficiencies, inadequate water
management with very little and no participation from the farming community has lead to
shrinkage in most commands over the years. Government has been making every effort to increase
the irrigation potential by continued investment in the irrigation sector in each plan.

4. Problems in Irrigation Management

(a) In a national seminar on participatory Irrigation Management(PIM) in India held in 1994,

the participants identified the following problems, with Irrigation Management.

 Inadequate water availability at the lowest Outlets.

 Poor condition/maintenance of the system.
 Lack of measuring devices and control structures.
 Inadequate allocation of funds for operation and maintenance.
 Inequitable distribution of water.
 Lack of incentives for saving water.
 Poor drainage.

(b) Under utilization of water resources has been a concern at the state level. To remedy the
situation, a policy to bring in Participatory Irrigation Management and transfer of irrigation
system from Government agencies to farmers organizations has been contemplated. The
fact that farmers managed irrigation systems are more effectively managed than those run
by the department and operational costs are economized and resources are effectively
utilized is the basic for shift in policy.

5. An experiment in PIM concept

(A Pilot Project)

(a) Selection of Area

In Andhra Pradesh , a pilot project to gain the experience and to demonstrate the utility
and practicability of the Water Users Association(WUA) in the management of irrigation
system was initiated in early nineties. A pilot programme was taken up on a small scale
covering a Minor with a command area of about 1,236 acres (5L of D-64) under sriramsagar
project. This was followed with a large- scale pilot programmed, covering area of about
49,420 acres, under six different distributions in sriramsagar project during 1995-97.
(b) Formations of Associations

Farmers in the above command area were helped to form into water users Association.
They were encouraged to take up minimum maintenance works that were feasible for
them for ensuring free flow of water up to the tail reaches in the system. They were also
allowed to organize water distribution in the entire system, resolve disputes, (if any)
internally and to adopt their own cropping system. This Water User Association was
registered as legal bodies to provide the required identity. To supplement their efforts a
Distributory committee was also formed federating them under the Distributory.

(c) Results

The net result was that the area irrigated increased

from pre- project level of about 55 percent to around
90 percent with the same quantity of water as was
Supplied in the earlier years and without any substantial
Investment on rehabilitation or repairs of the system.
These results were widely discussed and considerable
Confidence was generated among the farming community
Creating a conducive environment for the promotion of
Participatory irrigation management and formation of water
Users Association in the state.

(d) Government Initiative

The field experiences under the pilot project emboldened the government to bring about.
The legislation for the promotion of water user association in the entire state, covering all
Irrigation sources.
 (B) APEMIS ACT 1997

6. Legislation

(a) Government Initiative

The Government of Andhra Pradesh has taken a progressive and pioneering initiative to
empower farmers to manage the irrigation systems. After detailed discussion and
consultations with farmers, District Collectors , irrigation Department officials, political
parties through seminars-cum –Workshop, the Government of Andhra Pradesh have
enacted “AP Farmers” Management of Irrigation system Act,1997 ”(APFMIS Act). The bill
was passed by the legislative assembly on 27th march, 1997. This is a revolutionary legislative
extensively empowers Farmers Organizations and enables them as decision makers and
implementers in irrigation water management.

(b) Tiers of farmers organizations

 In Minor Irrigation systems there will be a singled tiered farmers organizations i.e.
water users Association (WUAS) for each tank.
 In Medium irrigation, the command of irrigation source is divided into a number of
viable water user areas followed by a project committee at project level (i.e.), it is
only two tiered structure.
 In Major Irrigation , the command of irrigation source is divided into number of water
user area followed by Distrubutory committee at Distributor level and project
committee at project level (i.e.) it is a three tiered structure.

7. Powers conferred by Act

 Give water rights to farmers.

 Provides functional and administrative autonomy to the association.
 Makes irrigation department accountable to the WUA’s.
 Enables WUA’s to resolve conflicts within themselves.
 Improvement of the irrigation system to make them effective.
 Allows access to information to the WUA on scheme operations.
 Provides freedom of cropping pattern to farmers.
8. Structure of farmers organizations

(a) Water user Association

Every command area under each of the irrigation system is delineated on hydraulic basis in
to a number of water user Areas. However in respect of Minor and lift irrigation systems, the
entire command area will be treated as a single water user area. Every water user area will
have distinct local name – All the WUA’s are sub divided in to territorial constituencies.

(b) Distributaries Committee

Every command area under the Major irrigation projects will be delineated in to a number
Of Distributor committee. Each Distributor committee will have a number of WUA’s
The presidents of the water users association under it will constitute the
Distributory committee. There will not be any Distributory committee for the farmers
Organizations under minor and medium irrigation sectors.

(c) Project committee

Every command area or part thereof ,of an irrigation system under medium and major
irrigation sectors, is delineated in to a project area. In Medium irrigation systems, all the
presidents of the WUA’s under the project constitute the general body of the project
committee. In major irrigation system all the presidents of the Distributory committee
constitute the general body of the project committee.

9. Delineation of area of operation

 Every water users association is to have an area of operational notified, which forms its
operational area. The areas are delineated on hydraulics basis on extensive
consultation with the farmers by irrigation department. In identifying the areas
adequate care is taken to see that areas delineated are viable entities.
 In respect of tank or lift irrigation scheme, the entire aya cut is delineated into one
water user association.
 However, in respect of Major and Medium Irrigation projects , a group of minors and
direct pipe outlets constitute area of operation to the water user association.
10. Membership

In a water user association , all water users are its members. The Act provided for two types of
membership:

(a) Members with voting rights

 Those members who have been registered as owners or tenants in the record of
rights.
 In respect where both the owner and the tenant are land holders of the same land
,the rights are given to the tenant.
 Any person who is in lawful possession and enjoyment of the land under a water
source in a crop year.

(b) Other water users

All other water users are categorized as members with no voting right. These include
Individual or body corporate or a society using water for domestic power, non domestic
Commercial, industrial or any other purpose froma Government or the corporation
Source of irrigation.

11. Elections

(a) Election to WUA’s

A procedure similar to that of gram panchayat elections was adopted originally. Detailed
rules for conducting elections are given through an election manual. In pursuance of the
APEMIS Act 1997,Election were held on 17 thJune 1997 and in all 10,292 WUA’s have been
constituted spread over in all the districts in the state and 172 Distributory committee
were also constituted there on. Around 56 percent of the WUA’s have been unanimously
elected while for the balance WUA’s elections were conducted.

(b) Recall provision

Under section 10 of the Act , a chairman or a president or a member of the managing

committee can be re called by the members, after a period of one year by giving a of the
 farmers organizations. The motion for recall has to be adopted by a simple majority of the
members present in the meeting specially convened for the purpose.

12. Involvement of Irrigation and other Authorities

With a view to bring about a closer interaction and greater accountability of the irrigation
department with WUA’s ,an officer of the irrigation department is nominated to work with
WUA as “Competent Authority”. He will also coordinate with other departments with the work
of WUA. This is done to ensure that the partnership between the irrigation, Revenue and
Agriculture Departments became effective with the WUA.

13. Transparency in the working of WUA

One of the essential requirements for the successful functioning of any organization is that it
should be transparent in all its dealings and also develop accountability to its member.
The functioning of the WUAs provides these two requirements and are incorporated in its rules.
The regular financial audit and the social audit provides to take care of the required
transparency in its functioning.

(C).Activities of farmers Organizations

14. Water Management

The most important duty of the WUA is efficient water management and better crop yields. To
achieve these goals, WUA has to train its members in water use efficiency and adopting of
appropriate crop management technology.
15. Settlement of disputes

The disputes between the famers within the association and between the farmers Organizations
will be settled internally by them selves. There is also a provision for the aggrieved party to
appeal in the higher tier of organization.

16. Works by famers Organizations

( a) APERP Works Programme

The Andhra Pradesh economic restructuring project (APERP) (Irrigation Component) is

basically designed as a WUA support programme. The famers Organizations themselves
undertook the minimum rehabilitation works and operation and maintenance (O&M) work In
respect of irrigation schemes. This process enabled the farmers to acquire experience in
undertaking maintenance works and also to understand the complexity of maintaining and
operating and operating the irrigation systems. This involved executing maintenance works as
per the prioritization of the works after a walk through survey.
In order to rehabilitate and modernize the existing irrigation system, the Government has
obtained financial assistance from the world bank under the APERP (irrigation component) with
a project cost of Rs. 96,224lakhs for achieving the following objectives.

(i) Place the irrigation sector on a sustainable basis through involvement of farmers in
irrigation management and effecting the cost recovery
(ii) Reverse the decline in irrigated area
(iii) Improve the productivity of irrigated agriculture
(iv) Strengthened cost recovery for operation and maintenance
(v) Expansion of effectively irrigated areas in existing systems

(b) O&M works

The works taken up by the farmers organizations during the last 6 years is given below

O&M works by farmers organization (Rs. Inlakhs)

s.no Year Number of works Value of work Remarks
done
 (1) (2) (3) (4) (5)

1 1998-99 21,406 11756 Completed

2 1999-00 17,186 13670 Completed
3 2000-01 6,768+147 tanks 9894 Completed
4 2001-02 6,100+1,144 tanks 11281 Completed
5 2002-03 820+1703 tanks 11953 Completed
6 2003-04 17,209 18421 Up to March,2004

Total 69489+2994 tanks 76975

The total expenditure so far up to the end of March,2004 incurred under APERP is
Rs.76975lakhs.

(c) Minimum Rehabilitation (Minor irrigation )

The Minimum Rehabilitation Programme of Minor Irrigation Tanks up for 2934 tanks at a
cost of Rs.13618lakhs covering an ayacut of 9.07lakh acres in phase I and another 2014
Minor irrigation tanks covering an ayacut of 5.24lakh acres in phase II.

(D) Capacity Building

17. Trainings

In order to disseminate technical Know-how on Agriculture & irrigation, the WUA presidents
And territorial constituency (TC) members have been imparted training on the provisions of the
APFMIS Act 1997, execution of maintenance works water regulation maintenance of records
Agricultural aspects etc., by water and land management and research institute.

18. Conduct of Conferences/Sadassu

To create awareness among WUAS about their role in participatory irrigation Management and
to make them know the policies of the government , conference/sadassu were regularly held at
district/region/state level. The conducting of these sadassu have helped the WUAs to ventilate
their problems and get solutions on the spot for some of their problems

19. Monitoring and evaluation

Evaluation studies have been conducted at regular intervals regarding the conduct of general
body meetings managing committee meetings, execution of works audit and co-operation from
members from irrigation and other officials some indicators are developed for monitoring the
performance of the farmers organizations and their performance is being monitoring every year.

20. Resources for farmers organization

 (a) Water Charges

The water charges collected in the area of to WUA forms an important component of the
resources. The Government has decided to transfer the water charges on a percentage basis
to the farmers organizations.

(b) Distribution of water Tax

One of the most important decisions that has been brought in the field of operations and
maintenance is the linkage between water charges collected by revenue department and
the distribution of water charges for operation and maintenance work. The government as
taken yet another land mark decision by issuing orders for apportioning the water tax
collected among the farmers organization for the operation maintenance of the irrigation
systems.

The water tax collected is to be adjusted in the following ratio (vide GO Ms. No. 115
Revenue (LR 3) department dated on 13th February ,2001).

(c) Levy of fec

The act also empowers farmer organization to levy a fee to achieve the objects of the act
and for performing the its functions . All the members are mandated to pay the amounts as
decided by the general body of the farmers organization.

(d) Other sources

In addition the WUAs can collect contributions from the members. They can also raise
income from properties with in the system such as auction of usufruct of trees, rents on
irrigation properties etc., other funds as received from the central government as
management subsidy or calamity relief would also contribute to its resources.

(E) Further Reforms

21. Need for Reforms

 After completion of five years tenure by the farmers organizations the performance of
these bodies was reviewed and it was decided to change the WUA set up with certain
amendments to the Act. These are contemplated to broad base the managing
committee and bring more transparency in the working of farmers organization.
 Various alternatives to the existing WUA set up were examined and public debate was
initiated a district level and state level with the precedence of WUA, public
 representatives etc. It is decided to make the WUAs as continuous bodies. The
amendments to the Act are brought out through Act 7 of 2003 during April 2003.

22. Revised structures of farmers organizations

 The water user associations are made as continuous bodies. Each water users area is sub
divided in to a number of territorial constituencies (TC’s). Farmers (land holders) elect a
territorial constituency member from each Territorial constituency , who in turn elect the
president and the vice president of the WUA from among themselves. 1/3 rd of the TC
members retire for two years.
 A graphic depiction of the set up of the water user association in major , medium, and
minor irrigation sectors is as under:
(i) Major Irrigation projects- Revised Setup

(ii) Medium Irrigation projects – Revised Setup

 (iii) Minor Irrigation Projects –Revised setup

23. Salient features of the Revised set up

(a) Structure

 Every water users association is divided into 12 Territorial constituencies (TC’s) in

major and Medium Irrigation projects and into 6 TC’s in minor schemes.
  Managing committee of the water users association are made continuous bodies with
1/3rd of the members retiring every 2 years and new members getting elected in their
place.
 Farmers elect the TC members and TC members in turn elect the president and the
vice president from among themselves.

(b) Vice president

Vice president post is inducted into the set up of the farmers organizations.

(c) Terms of office

The term of the TC members is 6years and that of the president and vice president is 2
years.

(d) Competent Authority

Agriculture officers from the agriculture department are also appointed as Competent
Authority (Agriculture) to guide the Farmers Organization on agriculture aspects.

(e) Accountability

President is made personally responsible for conduct of audit, formation of sub committee,
conduct of General body meeting, etc.

(f) Equal Representation

Provision is made in the rules for due representation of TC members in the managing
committee of WUAs by stipulating that if the president is from upper reach. Vice president
should be from the lower reach and vice versa.

(g) Elections

Election procedure is simplified to be in consonance with the true spirit of self help bodies.
Election schedule for the WUAs in major &medium irrigation systems is of two days and is of
one day for Minor irrigation system.

24. Strengthening of farmers organizations

 The focus of government is to build up viable and sustainable farmers organizations through the
process of interaction, work shops and simplifying office procedures and works procedures
besides consolidating the lessons already learnt in the irrigation management, provision of Act
and Management aspects, etc.

25. Elections in the New Setup

Water users associations have been delineated and the elections for these bodies in 13 Districts
of the state have been completed during October,2003 as per the revised setup. Elections to
WUAs in the remaining 9Districts are due and will be conducted in due course.