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Government of India & Government of The Netherlands

DHV CONSULTANTS &DELFT HYDRAULICS withHALCROW, TAHAL, CES,ORG & JPS

Final Report

June 2003

(IN032501)

Final Report (June 2003) ToC

Table of Contents

Executive Summary i

1 Introduction 1

2 Project background 3

2.1 Hydrological information need 32.2 Hydrological Information System prior to HP 52.3 Constraints 8

3 Objectives of the Hydrology Project 9

4 Technical Assistance 11

4.1 Objectives of the Technical Assistance 114.2 Phased implementation 124.3 Logical Framework for the HIS 134.4 Developing the concept of the HIS 134.5 Process approach 144.6 Process management 154.7 Impact of the HIDAP 184.8 Continuing support for institutional development 194.9 Institutionalisation of a sustainable HIS 204.10 Extension of the TA 23

5 Scope of activities 25

5.1 Assessing the need of users 255.2 Review and establishment of observation networks 265.3 Management of historical data 315.4 Data collection and sample analysis 315.5 Data processing, analysis and reporting 335.6 Data exchange 365.7 Data Storage and dissemination 375.8 Institutional and human resources development 395.9 Overseas training and study tours in the Hydrology Project 44

6 Achievements 47

6.1 General 476.2 Standardized systems, networks and procedures 476.3 Staffing 506.4 Human resources development 516.5 Institutional strengthening 536.6 Innovative R&D projects 566.7 HIS Management 566.8 Accelerated cessation of the TA 576.9 Consolidation of HP achievements 616.10 Further potential for capitalising on HIS 64

Final Report (June 2003) ToC

7 Lessons learned 66

7.1 Expectations 667.2 Benefits 667.3 Management in implementing agencies 677.4 Deadlines 677.5 Process approach 687.6 Approach to implementation 697.7 Procurement 707.8 Staffing 707.9 Training 717.10 Summing up 72

8 Staffing and financial aspects 74

8.1 Organisation of TA 748.2 Staff input 78

Annex 1 Description of HIS 82

Annex 2 Logical Framework Analysis 90

Annex 3 Catalogue of HIS Resources Data Base 96

Annex 4 Table of Contents of SW and GW Manuals 100

Annex 5 Equipment for which detailed specifications have been provided 108

Annex 6 Training Courses developed and organized 112

Annex 7 Training Modules prepared 114

Annex 8 Abbreviations 118

Final Report (June 2003) Page i

Executive Summary

Objectives of the Hydrology Project and of the Technical Assistance

The development objective of the Hydrology Project (HP) for the implementing agencies wasto “support major aspects of India’s National Water Policy, particularly with regard to waterallocation and planning and management of water resources development at the national,state, basin, and individual project levels”. The immediate objective that was to be the focusof all activities in the HP was to “improve institutional and organizational arrangements,technical capabilities, and physical facilities available for: measurement, validation, collation,analysis, transfer, and dissemination of hydrological, hydro-meteorological, and water qualitydata; and for basic water resource evaluations”, in other words: establish a comprehensiveHydrological Information System (HIS). Specifically, the agencies were to develop“comprehensive, easily accessed, and user friendly databases covering all aspects of thehydrological cycle, including surface water and groundwater in terms of quantity and qualityand climatic measurements, particularly of rainfall”.

The objective of the Technical Assistance (TA) has been a derivative of these objectives: “toprovide broad technical and institutional support to the participating agencies, and to assistthe project authorities to implement the Hydrology Project in accordance with technicalcriteria, standards, and procedures agreed by the Bank and the Government”. Specifically,the TA was to deliver a number of relevant technical outputs, and otherwise advise andassist the agencies in their activities.

Development of the Hydrological Information System

Under the project, actual development and implementation of the HIS has been theresponsibility of the implementing organizations of the participating states and centralagencies. To this end, they employed the proceeds of the World Bank credit. It has beenthe function of the TA to support the organizations in carrying out this responsibility, throughdesign of the system, formulation of technical specifications for software, hardware and civilworks, formulation of organizational arrangements and job descriptions, providing amethodology for monitoring progress towards target achievement, and in general supportingthe implementing organizations in managing their activities under the project.

As designed by the Consultant, the HIS is conceptualized as a “distributed system”,comprising interrelated autonomous components in the different agencies. It represents aparadigm shift from the pre-existing data collection practices, introducing a scientific basisfor aquifer / basin-wide data collection, major improvements in data validation, a change infocus from collection and storage to analysis, and availability of the data to outside users.

Data is being collected either directly in the field at surface and groundwater observationsites or, from water samples taken at these sites, through analysis in different types oflaboratories. This data is then entered into databanks at the subdivision / subdistrict level(and for WQ data in the laboratories), where it undergoes primary validation to eliminate themost obvious anomalies. The data is then sent to the division / district level offices forsecondary validation, and finally to the state data processing center for final validation andultimate storage in the state data storage center.

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To assist in the implementation of the system, the Consultant has worked with the individualorganizations at the local level as well as at the inter-agency level, to ensure appropriatearrangements between the components (within and between the agencies) for system-widecommunication to facilitate data validation, integration of databases, and broadening ofscope.

Activities of the Technical Assistance

Project implementation required a significant administrative / logistical effort, for which manyof the agencies were poorly prepared, involving inter alia the creation of dedicated HIS units,procurement of equipment, construction of civil works, establishment of new positions, andtraining. Because of the many different locations at which the system was to be implementedand the varying levels of readiness, the participating organizations carried out theseactivities at their own pace. Hence, the project adopted a phased implementation: aninception phase to lay the necessary groundwork; a development phase for standardizationof procedures, specifications for system design, and training development; animplementation phase to put all the new procedures and structures into place; and aconsolidation phase to arrive at sustainable operation of the system.

This necessitated a strong framework for planning and monitoring of the agencies’ activities.The Consultant provided this in the form of the HIDAP, which categorized everything to bedone in a logical grouping and sequencing of activities. In each of the HIDAP categories, theConsultant provided the necessary support. The relevant TA activities are summarizedbelow (following the HIDAP categories):

• Assessing the needs of the users – the Consultant provided inter alia a questionnaire fordata need assessment, terms of reference and model agendas for Hydrological DataUser Groups

• Review and establishment of the observation network – the Consultant provided interalia all manuals for the design, operation, and maintenance of the hydro-meteorologicaland surface water and groundwater quantity and quality networks. This included thereview and integration of the observation networks, and guidance for the establishmentof a network of water quality laboratories.

• Management of historical data – the TA developed an approach for systematic inventoryof data availability and planned data entry and processing.

• Data collection – the TA developed the relevant manuals and training documents, andconducted regular field inspections to investigate actual data collection practices. Thisincluded the development of standard analytical procedures for WQ data.

• Data processing, analysis, and reporting – the Consultant assisted the agencies in thedesign of their data processing centers, developed a comprehensive set of HISoperation manuals, and formulated specifications for all hardware and software to beused in the data centers. The TA provided the SW data processing software and fullytuned it to the needs of the HIS. The TA continuously supported the outside Consultantengaged for the GW software, who did not have the necessary domain experience. Onsubstantive processing, the TA initiated research studies in the Sabarmati and Godavaribasins.

• Data exchange and reporting – the TA provided specifications for relevant equipmentand incorporated data exchange procedures in the processing phases in the HISoperation manuals and embedded them in the SW and GW protocols.

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• Data storage and dissemination – the Consultant assisted the agencies in the design oftheir data storage centers, formulated hard and software specifications, and producedthe relevant design and operation manuals. The TA also gave extensive support to theoutside Consultant engaged to develop the DSC software.

• Institutional and human resources development – the Consultant provided assistance inplanning of HP activities through HIDAP, and monitoring and evaluation of progressthrough the MIS. The Consultant also arranged long-term relationships with establishedtraining institutes to include training on the HP approaches in their respective programs(ranging from field-level data collection to data processing, storage, and analysis),arranged overseas training for key HIS personnel, assisted in setting up HDUGs,conducted workshops on cultural assessment and change management, and undertookpromotional activities to disseminate the utility of the HIS to different target groups withinand outside the participating organizations.

Each agency implemented its part of the project in line with the design, specifications, etc.outlined by the Consultant in generic activities. However, where local conditions andcircumstances presented specific problems, the Consultant also assisted the agencies infinding or identifying specific solutions. The first line of assistance in this regard wasprovided through the office of the State Management Consultant (SMC). Especially in theearly years of the project, the SMCs were able to help the agencies keep their activities ontrack, implement their activities in line with general specifications, rules for procurement, etc.,and generally liaise with the central TA office in New Delhi for additional support if need be.Later on in the project, generally after the physical elements of the HIS had been put inplace, the SMCs were replaced by HIS Management Consultants (HMCs), who focusedmore on the substantive operationalization of the system.

Approach

From the start, HIS development has not been approached as development of a meretechnical instrument, but as a change in how the agencies deal with hydrological information,in general representing a shift from very instrumental data gathering (for individualdevelopment projects) to a more systemic approach (to improve the general overview andunderstanding of the state of water resources in the hydrological cycle). While emphasizingthis systemic character, it was at the same time necessary to ensure that the distributedelements of the system would meet all individual requirements of the participatingorganizations. This necessitated intimate involvement of the organizations from the verybeginning of the project, in order to create a sense of ownership. In turn, this precluded theuse of a blue print approach. Instead, a process approach was employed allowing thedifferent agencies to specify their individual needs and priorities, as well as accommodatingtheir different capabilities and capacities for change.

These two seemingly conflicting principles – striving towards system integration andstandardization while leaving room for individual differences and abilities – made itnecessary to develop and adhere to a rigid logical framework of activities. To this end, theConsultant assisted the agencies in identifying their objectives and related outputs of theiractivities in the project, together with an identification of possible obstacles and threats to thesuccessful completion of these activities. The Consultant then identified relevant advisoryactivities in relation to these findings, i.e. in support of the agencies’ own development workor in trying to address the obstacles and threats (e.g. through addressing these at higherlevels to which the individual organizations have only limited access).

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An important question throughout the project has been the relative involvement of the TAwith the different agencies. In the beginning, when all agencies had to find their way in theproject, all required and received equal assistance on the same aspects of development. Asthe agencies diverged in their progress, the nature of the individual assistance began tovary, but all agencies nonetheless still received equal attention. However, as time went by, itbecame clear that a number of agencies could not create the basic conditions for HISoperationalisation. Therefore, towards the end of the project it was decided that the TA’sattention should focus more on agencies that showed real potential for full-fledgedoperationalisation of the HIS. The expectation was that concentrating TA support onagencies that were most likely to be successful offered the best probability that the successwould be sustained and thus become an example for the other agencies to follow on theirown, possibly with additional government support post-HP.

A key principle of the approach has been that the Consultant should limit himself toassistance, while leaving detailed implementation to the agencies. Accordingly, in thebeginning of the project, TA consultants travelled extensively to assist the agencies indetailed implementation of network identification, data need identification, etc. Mid-project,the Consultant focused much more on general organization and structuring of the system(formulating staffing requirements, job descriptions, training approaches, etc.), whereastowards the end of the project the attention was on operationalisation. The change inemphasis was reflected in the change in how the TA provided support at the local level: inthe first few years the TA maintained a “State Management Consultant” (SMC) in each of thestates, whose job was to assist in matters of procurement, monitoring general direction ofthe project, etc. Once the physical aspects of the HIS fell into place, the SMCs were phasedout and replaced by HIS Management Consultants (HMCs) and Data ManagementConsultants (DMCs). The function and operations of the HMCs was significantly differentfrom those of the SMCs, in that they were much more substance oriented and, moreover, didnot devote their entire attention to only one state but generally managed the developmentactivities in a few states. The DMCs, mostly operating from the central TA office in NewDelhi, focused on the technical aspects of HIS implementation.

Hydrology Institution Development Action Plans

The systematic identification of activities for the agencies took place in the formulation of theHIDAP. This planning instrument was identified in the Appraisal Report as crucial tosuccessful project implementation, and was intended to underpin annual review of progressand subsequent action. The Consultant developed the HIDAP instrument along the lines oflogical framework analysis, taking care to present only concepts to the agencies and leavingthe ultimate detail up to them. Since the first HIDAPs were developed individually in and bythe different agencies, this resulted in varying quality and content. The Consultant thenassisted in focusing HIDAP development on the best elements revealed in this process, bydeveloping a Model HIDAP. Application of the model did justice to the standardizationelement in the project, while leaving room for the agencies to identify relevant activities inwidely diverging circumstances and to do so in a systematic manner. Moreover, as itpresented the key elements of the entire project in a logical inter-related framework, theModel HIDAP as applied in the individual agencies became a powerful tool for introduction ofnew participants in the organizations.

Taking the step towards the intended systematic progress review, the Consultant identifiedthe key information to be extracted from the HIDAP for annual progress monitoring at allrelevant levels in the organizations. This was done with the help of the SW and GWagencies in Andhra Pradesh, which actively participated in identifying what informationneeded to be reported to different levels of management and what form such report shouldtake. This became the basis for the Status Reports, which were subsequently developed by

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all agencies for the Mid-term Review Mission. Finally, further distillation of only the mostimportant information resulted in HIS Balanced Scorecards, which showed progress on threedimensions of performance: internal perspective, user perspective, and sector perspective.

The Status Reports also gave shape to the agency-level MIS subsequently introduced in theagencies. However, whereas in HIDAP all activities were always related to outputobjectives, it appeared that in many agencies the focus of progress reporting through theMIS remained on the use of inputs rather the production of outputs. It is on the latter aspectthat the MIS was to link to the HIS, but for a long time the agencies have had limitedattention for monitoring the data collection and processing activities either in quantitative orqualitative terms. This appears to have changed now that a data flow monitoring applicationhas become available in the HIS, which has generated considerable enthusiasm among fieldlevel management.

Further development of the HIDAP as a planning and monitoring instrument stopped afterthe Mid-term Review Mission which reported annoyance among some agencies about theemphasis on the related activities. Hence, with most progress reporting conducted throughthe MIS, the HIDAP ceased to be annually updated, although at project end one or twoagencies expressed a desire to rekindle the HIDAP planning process.

Procurement

At the beginning of the project, specifications were provided for all manner of equipment.With respect to specific hydrological monitoring equipment and computers, the Consultanthas made many inspection visits to the field to assist the agencies in properoperationalisation, etc. It quickly became apparent that many items of equipment did notmeet the specifications, usually as a result of a bias towards lowest cost procurement inexisting government regulations coupled with inadequate technical knowledge of theprocurement officers. The problems were exacerbated by the fact that procurement wasoften centralized and conducted in large batches. Had smaller batches been procured,procurement of subsequent batches might have been able to reflect experience withequipment already received and operationalised. Despite the best efforts of the TA, agencieshave also ignored documented or otherwise known misprocurement by others. In futureprojects, a Technical Procurement Committee, supported in an advisory capacity by theConsultant, should decide on purchases, extensive field testing should be conducted, andtaking into account experience with similar procurement elsewhere should be mademandatory.

The Consultant has formulated specifications for hardware and software, including for dataprocessing and data storage, in support of system development. In the case of surfacewater, the data processing software was provided “off the shelf” through HYMOS fromDelft|Hydraulics, but for groundwater and the DSCs the GoI let separate softwaredevelopment contracts to local providers. The related process for procurement/contractingbecame seriously delayed due to limitations faced by the Client. Moreover, in hindsight itmay be argued that the TA’s early recommendation to let the contracts for groundwater dataprocessing software in combination with the supply of the relevant computer hardware wasin error – since the cost of all the items of equipment to be procured was far higher than thecost of software development. Hence, the resultant bias towards hardware under lowest-costprocurement rules for a combined package limited the degrees of freedom for selection ofthe software developer. In fact, the provider eventually selected lacked the necessarydomain expertise and had to go through a significant learning curve in implementing thesoftware component of the contract. The Consultant has attempted to guide this processearly on, but cooperation from the provider developed only slowly.

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Achievements

By and large, the objectives of the project have been met. The major achievement is theestablishment of standardized systems, networks, and procedures. The technical systemhas become an operational reality in most participating states. Networks have beenrationalized, data is being shared, and data validation is gradually gaining ground. A waterquality monitoring network has been introduced in the SW and GW domains. Hydrologicalinformation is now being collected systematically and processed in a standardized manner, itis stored in a manner that allows analysis, and it is available to many different users.Institutionally, the implementing agencies have significantly improved their capacity andcapabilities for data collection and processing, although the sophistication of processingcapability is greater for SW than for GW. Sophisticated data collection equipment has beenintroduced. Standardized practices for technical procedures have been laid down inmanuals that are available in all the agencies. While the development of the HDUGs hasbeen delayed, there is nevertheless still scope for development of a strong role for datausers in the operation of the HIS. Most importantly, a real enthusiasm has developed in theagencies for the benefits associated with the HIS.

The improvements brought about under the HP could not have been possible withoutsignificantly increased staffing levels. In this connection, the TA has produced staffingschedules and job descriptions. However, in many cases staffing levels remain lower thanproposed by the TA. Two factors contributed to this: a recruitment ban that necessitated thefilling of new HIS positions through redeployment of existing staff from elsewhere, and –especially in SW organizations – a lack of enthusiasm among staff to take up HIS posts.Especially the water quality and data management positions remain difficult to fill in moststates, as there are few staff with requisite experience that can be redeployed to thepositions in question. Ultimately the best approach seems to be to train otherwise well-educated personnel of other disciplines for such redeployment.

With respect to the creation of favourable institutional conditions for sustainable operation ofthe HIS, most states have managed to formally establish an HIS organization, formulate aproper WQ mandate, make available an adequate HIS budget, and establish an HIShelpdesk. The HIS protocols have been adopted into the regular government procedures inalmost all states, as has been the execution of the analytical quality control program.However, not all states have established training cells in the HIS organizations.

The achievement is sketchier with respect to effective communication with users. All stateshave established HDUGs and adopted the relevant terms of reference, and almost all haveproduced system maps. However, with the exception of a model Hydrological InformationNeed (HIN) document for Maharashtra, as yet no HIN documents have been prepared todocument the underpinning of the networks’ layout, nor have thematic yearbooks beenproduced or user satisfaction surveys conducted. The latter is due to the fact that, unlike theHIN documents, yearbooks and satisfaction surveys require the (full) functioning of the HIS,and that has been seriously delayed by late production of the software for groundwater dataprocessing and for the data storage centers. In fact, the agencies themselves are onlygradually developing a perspective on the utilities of HIS data as operation of the system isbecoming more routine.

It appears that HIS manuals are not available at all observation sites and that thepossibilities afforded by the HIS to collect management information on data collection andprocessing are not being utilized sufficiently. On the other hand, there is genuineenthusiasm among data processing staff for the possibilities of data analysis afforded by the

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HIS, for SW with the fully adapted version of HYMOS and for GW and WQ even at thelimited level that was possible with the data entry systems produced by the TA while the dataprocessing software was not yet available.

Sustainability

In order to address the varying performance levels of the different agencies, the Consultantcommenced a series of Organizational Assessments to identify how existing conditionsimpacted on the implementation of the HIS in relation to three basic functions in theorganization: the traditional hydrology function, the information function, and themanagement function. The assessments inter alia identified “organizational culture” as acritical factor for sustainability. Subsequently, the institutional development activities of theTA focused on this aspect through a series of workshops, in which participants sought toformulate specific action plans for improvement. This approach was similar to that of theearlier HIDAPs. However, whereas the HIDAPs had focused on detailed operational issuesin the HIS, the cultural assessment workshops focused on developing mission and valuesstatements to create a central focus for sub-ordinate objectives and to identify the valuesthat are appropriate for an organization that wants to successfully operate the HIS over thelong term. The workshops then formulated the action plans to fill the gap between the actualand desired situation.

Even with an appropriate sense of mission and values, the HIS as developed in the differentagencies can only sustain in a conducive institutional environment. Hence, the institutionaldevelopment activities of the TA also focused on aspects in the fields of structure andsystems, policy and procedures, and people and processes. In this connection, TAinvolvement has been instrumental in the establishment of a National-level CoordinationCommittee (for post-HP coordination of updating the system, etc.), a national level WaterQuality Assessment Authority, a National HIS helpdesk (to be transferred for post-HPoperation to the CWC and CGWB), HIS training cells in the different agencies (for post-HPcontinuation of training solutions), protocols detailing the different aspects of operating theHIS, etc.

Lessons learned

The HIS has been conceived as a dynamic system, able to accommodate growing andchanging demand patterns of data users. This requires not only a demand orientation in theHIS organizations as data providers, but also the development of active external demandfrom the outside users. The HDUGs were intended to play a pivotal role in stimulating thisdemand and to become a steering element in further HIS development.

However, since at the start of HP the data providers were also the largest data users, theneed to establish HDUGs was initially not widely perceived. At the same time, outsideparties until then not using hydrological data were themselves not clear about their needs.Indeed, the understanding of these needs was not possible until a working HIS could delivera range of outputs. Having such outputs available would help in “educating” potential“customers” as to their possible data needs. Conversely, not having outputs from a fullyfunctional HIS risked disappointing – and possibly alienating – users if they discovered thatthe need they had just learned to express could not be met.

A pragmatic solution then was to first develop the HIS with the existing data providers and tofocus on HDUGs later. This was also in line with the TOR, which foresaw an increasinglyoperational HIS for the second half of the project period, during which the Consultant could

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assist in dealing with the “growing pains” that plague any new system, and in the processacquaint the users with demand identification through the HDUGs. Ultimately, the HDUGswould then become able to interact with the HIS providers and identify feasible adjustmentsto the system. It was not expected that during this period there would be a need forsignificant adjustment of the network layout and monitoring practices, but the experiencegained in data need identification and formulating practicable ways to accommodate theseneeds would prepare the HDUGs for their post-project role in this respect.

The late delivery of software for data processing and data storage meant that the activitiesas originally foreseen for the second half of the project could not take place. AlthoughHDUGs have been established in all states during the project, the limited functioning of theHIS made that they have had little of substance on their agenda. Hence, they are not yetfully prepared for their important post-HP role in ensuring the dynamic development of theHIS, and do not yet develop a strong interactive role with the agencies in shaping the HIS.

As a result, the HIS remained the “property” of the original agencies. This has to someextent perpetuated the originally prevailing supply orientation in those agencies. The lessonfrom this chain of events may be that the establishment of the HDUGs should have beenfurther postponed until completion of the software development for GW and WQ dataprocessing and especially for DSC operation. Although this could not have been foreseenearly on, this would have meant that the initialization work on HDUGs should have begunduring the first year of the project extension, which would have made it possible to activelyinvolve the data users in the operationalisation phase of the respective software items in theagencies from April 2003 onwards.

The delayed activation of the HDUG concept could have benefited from strongerprofessional pride and capabilities in the agencies, and this could have been supportedthrough the establishment of “quality circles”. Such circles would involve data practitioners,i.e. HIS staff of the different national and state agencies collecting, processing, and applyingdata. While establishing “quality circles” could have risked exacerbating the proprietaryimage of the HIS from the agencies’ perspective, by building appreciation for the potentialutilities of the HIS it could have created a stronger platform for HDUG activation. Forexample, with stronger professional commitment, HIN documents for all networks mighthave been available earlier on, setting the stage for future demand-supply interaction in theHDUGs. In turn, the availability of such documents might have provided more focus fordevelopment of the HIS as a technical system, thus perhaps avoiding some – though by nomeans all – of the obstacles that have delayed implementation.

Potential for future development

At the end of the HP, all agencies in all states had set up observation networks and starteddata collection and processing in a standardized manner. Groundwater data processingsoftware has finally been completed and installed, and agencies are beginning to work withit. Fortunately, they have been able to do some processing for several years already usingthe Data Entry Software developed by the TA. A real enthusiasm for the system and what itcan do is growing among the staff of the agencies. As could be expected given the differentcircumstances and conditions, some agencies have proved to be more successful thanothers in operationalising the HIS.

Due to the delays in especially the development of the software for data processing (GW)and data storage (both SW and GW), the two years originally planned for a consolidationperiod have been lost. Hence, now that the mentioned software is finally coming available, it

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is of utmost importance to consolidate the infrastructure established in the peninsular statesto ensure long-term sustainability. Consolidation would involve:

• Optimization of monitoring activities, involving expansion or intensification of thenetworks, adjustment of monitoring frequencies, etc.;

• Consolidation of day-to-day operational procedures and maintenance – particularlyinternalization of the need for data validation, collection of and taking action on datarelevant for network management, etc.;

• Retraining of existing staff lacking requisite specialist background (as recruiting newproperly qualified staff is not possible);

• Taking inventory of the potential users and their data needs in the private sector, andnon-WR institutions in the public sector, to assess how their needs can be met and howthey can be involved;

• Preparation of water resources assessment reports;

• Assisting the HDUGs in assuming their interactive role with the HIS agencies to guidefuture changes to the network layout and monitoring practices to accommodate theneeds of data users as they change over time.

These activities are important for consolidating the achievements to date. They also providethe basis for further development.

One opportunity that presents itself now that the HIS has become functional in all respects isto replicate the system to states that did not participate in the HP. This horizontal expansionwould involve essentially the same activities as under the HP in peninsular India, i.e.focusing on the technical processes of data collection, data processing, and datamanagement.

However, for long-term sustainability of the HIS it will be necessary to shift from datacollection and processing towards using the data in the planning and management of waterresources. One of the limitations of the HP has been that it was being implemented bytechnical units with direct responsibility for data collection and processing, without muchinvolvement of planning and development units. This has resulted in underexposure of thebenefits of the HIS, and this has also made it difficult to generate interest among other usersoutside the department. Effective demand for hydrological information will often exist in abroader water resources and inter-sectoral development context. Therefore, a verticalextension of the HIS is highly recommended, shifting from data collection and processingtowards using the data in the planning and management of water resources.

Two possibilities are real-time use of data for operational purposes and planning andimplementing integrated water resources management (IWRM). Real-time data useincludes early flood warning, operational management of irrigation systems and reservoirs,and drought monitoring (conjunctive use, watershed management, resource assessment).Developing IWRM involves expanding the HIS into a Water Information System (WIS), i.e.linking the hydrological information collected under the “basic” HIS (data describing thenatural system) to data describing the socio-economic system and the administrative andinstitutional system. In line with the existing National Water Policy, the development ofIWRM would involve the creation of river basin organizations. Such organizations have as aprime technical function the development of a network of data banks and databases at basinlevel, which should be freely accessible to all user agencies. The existence now of a useroriented HIS is a significant contributing factor to the establishment of RBOs.

Final Report (June 2003) Page 1

1 Introduction

The Hydrology Project was set up to improve the Hydrological Information System in India toarrive at comprehensive, easily accessible, and user-friendly databases covering all aspectsof the hydrological cycle. Such data are a prerequisite for wise water resources planning andmanagement in a country facing already severe water shortages in the present, not tomention in the near future. The Terms of Reference for the Hydrology Project were laid downin the World Bank’s Staff Appraisal Report No. 13952-IN of 14 July 1995. It outlined therequired improvements regarding institutional and organizational arrangements, technicalcapabilities, and physical facilities available for collection and processing and exchange ofhydrological and hydro-meteorological data. The Hydrology Project concerned manyorganizations, both at Central and State level. The Central agencies involved were the CentralWater Commission (CWC), Central Ground Water Board (CGWB), National Institute ofHydrology (NIH), Central Water and Power Research Station (CWPRS), and the IndiaMeteorological Department (IMD). At the State level, the relevant organizations comprised theIrrigation (or Water Resources) and Groundwater Departments in Andhra Pradesh,Chhattisgarh, Gujarat, Kerala, Karnataka, Madhya Pradesh, Maharashtra, Orissa and TamilNadu (see Figure 1.1).

Figure 1.1:States in the HydrologyProject

The World Bank, through the International Development Association, signed on 22September 1995 a Development Credit Agreement and Project Agreement with the Go-vernment of India and the participating States to execute the Hydrology Project (Credit No.2774-IN). The amount of the credit was 90.1 million Special Drawing Rights (USD 142million equivalent), whereas the total cost of the project was estimated at USD 162.4 million.The project was originally scheduled to be implemented in a period of six years (1996 to2001). Due to delays in implementation its duration was extended and the closing date of theproject was revised to 31 December 2003, while the credit was reduced to 75.1 SDR(equivalent to USD 122 million).


The World Bank's Staff Appraisal Report included a Technical Assistance (TA) component toassist the Central and State agencies in the implementation of the Hydrology Project. TheGovernments of India and The Netherlands, in consultation with The World Bank, agreed tofinance the Technical Assistance under the bilateral Indo-Dutch program through a grantequivalent to Euro 12.76 million (later increased to Euro 14.85 million).

The contract for the execution of the required consultancy services under the TA componentwas awarded to DHV Consultants BV of The Netherlands, which established a joint venturewith WL|Delft Hydraulics, also of The Netherlands. The joint venture implemented theProject in association with HALCROW (UK), TAHAL (Israel), and the national consultingfirms JPS and Associates, MDP, ORG and CES. The agreement with the Consultant wassigned early July 1996, although the Technical Assistance started on the ground in May1996.

This Final Report summarizes both the Hydrology Project and the Technical Assistance,their objectives, implementation, achievements and lessons learned. Chapter 2 of this reportdescribes the background of the project, highlighting the nation’s increasing decline into asituation of water crisis, the importance ascribed to integrated planning and development inthe National Water Policy, and the related need to improve the accuracy and availability of,and access to, data on water resources.

Chapter 3 descries the Objectives of the Hydrology Project and gives brief outline of the HISestablished under the Project.

Chapter 4 describes the general “advise and assist” role of the TA under the project,involving specific institutional development-type of activities aimed at sustainability, and alsoguidance to the participating authorities for overall management of the implementationprocess.

Chapters 5 and 6 describe the scope of activities for the agencies and their relatedachievements, respectively. Specific contributions of the TA to HIS development arehighlighted in “boxes” in these chapters.

Chapter 7 describes the lessons learned, related to project design and expectations, actualincentives driving implementation, and the constraints posed by government procedures.

Finally, Chapter 8 presents the staffing and financial overview of the Technical Assistance.

A number of Annexes have been included to provide further detail on certain aspects andissues mentioned in the main body of the report.

All documents and manuals prepared by the TA and considered to have lasting value, havebeen collected on a CD-ROM (enclosed in the back page of this report). These documentswill also be placed in the HIS Resources Data Base on the HIS-website, as established andmaintained by the National Data Centre of CWC.


2 Project background

2.1 Hydrological information need

Fresh water is one of the most critical natural resources for the continuance of life on earth.The pressure on freshwater resources has increased dramatically during the 20th century. By1997, one-third of the world’s population was living under medium to high water-stressconditions. It is expected that by 2025, two-thirds of the population will be affected by watershortages. Sharp population growth in most parts of the developing world has led to greaterpressure on domestic and industrial water supplies and on producing sufficient food, whichrequires more water. Inefficient irrigation practices compound the problem of freshwateravailability in many parts of the world. The available amount of suitable water is furtherreduced due to contamination of water resources caused by the discharge ofuntreated/partially treated wastewater and recharge from irrigated fields into natural waterbodies. The looming water crisis with competition for water among neighbouring countrieswill become a source of conflict, as about 300 river basins and numerous aquifers areshared among two or more nations. Recurring floods and droughts in several parts of theworld, are causes of concern for the society. Unless water resources are wisely managed,water shortages and hazards are bound to become serious obstacles for economic andsocial progress, particularly in the developing countries.

The global picture also applies to India. The spatial and temporal distribution of its waterresources is highly uneven and economic and demographic developments put furtherpressure on it. Safe drinking water is required for the very large and growing population.Water has also become a major constraining factor for growth of the agricultural andindustrial sectors. In large areas in the country the available water resources are graduallybecoming depleted, groundwater levels are dropping dangerously low, and surface andgroundwater are getting polluted. It is no exaggeration to say that India is either already in,or will soon be in a water crisis, as illustrated in Figure 2.1.

Figure 2.1: Per capita fresh water availability in India(Source: UNICEF, 1998)

1500

1600

1700

1800

1900

2000

2100

2200

2300

Year

m3/c

apit

a

Adequate Water

Water scarcity

Water Stress


The water crisis is not only about having too little water to meet the needs and about thewater being too polluted. There is also a crisis in managing the available water adequately,resulting in the fact that millions of people - and the environment – suffer. Water problemsare further aggravated by flooding, which frequently threatens populations and theirproperties along the rivers and in the coastal zone.

Picture 2.1: Floods

Picture 2.2: Droughts

Competing demands, between individual and groups of users as well as among states,require proper planning, design and management of water resources and water usesystems. India’s National Water Policy (2002) advocates an integrated planning anddevelopment of the conjunctive use of surface and groundwater, addressing the multipleuses of the water simultaneously. To accomplish this it stipulates in articles 2.1 to 2.3 that:


“A well developed information system, for water related data in its entirety, at thenational/state level, is a prime requisite for resources planning. A standardizednational information system should be established with a network of data banks anddata bases, integrating and strengthening the existing Central and State levelagencies and improving the quality of data and the processing capabilities. Standardsfor coding, classification, processing of data and methods/procedures for its collectionshould be adopted. Advances in information technology must be introduced to createa modern information system promoting free exchange of data among the variousagencies. Special efforts should be made to develop and continuously upgrade thetechnological capability to collect, process and disseminate reliable data in thedesired time frame. Apart from the data regarding water availability and actual wateruse, the system should also include comprehensive and reliable projections of futuredemands for water for diverse purposes.”

A major component in such a Water Information System (WIS) is a Hydrological InformationSystem (HIS), which provides accurate, comprehensive and timely available hydrologicaldata. An efficient and comprehensive HIS is a prerequisite for appropriate water resourcesplanning, design and management, to get better decisions made as well as to achieveefficiency.

In the set-up of an HIS the first question to be addressed is the type of information thesystem has to provide. This requires an identification of the potential hydrological data users.Data users first of all comprise the Central and State Government agencies, which supportHIS. But there are scores of other governmental, non-governmental and private agenciesalso, which could make good use of hydrological data. Inventory of hydrological data needsrequire an identification of the objectives of water resources management and the functionsof the water system. Data needs of governmental agencies follow from their mandatesembedded in legislation and water policies. A priority ranking is needed to maximize theoutput of HIS within the budgetary constraints.

2.2 Hydrological Information System prior to HP

Hydrological Information in India is primarily provided by various Central and StateGovernment’s meteorological, surface water and groundwater agencies. The IndiaMeteorological Department (IMD) is the main supplier of meteorological data. The CentralWater Commission (CWC) and the state water resources/irrigation departments deliverinformation on surface water bodies. Similarly, information on groundwater is theresponsibility of the Central Ground Water Board (CGWB) and the respective Stategroundwater agencies. The systems for gathering water quality information were primarilythe responsibility of Central and State Pollution Control Boards, State Public HealthEngineering Departments, CWC and CGWB, and of late also of the State WR and GWagencies. The roles of the Central and State agencies are complementary: the Centralagencies for regional coverage of major rivers and geological set-ups, and the Stateagencies for more detailed coverage within the States.

Observation Networks

Rainfall stations constitute the bulk of the hydro-meteorological network and arepredominantly owned by the state departments. India Meteorological Department (IMD)collects and archives data from selected stations of this network. Climate stations, for hydro-meteorological variables, are mainly maintained by the IMD; only a few states have asubstantial network of climatic stations. Most of the rainfall and climate stations owned byIMD and the state departments were set up long ago (ranging from 20 to 100 years); most ofthese have not been upgraded adequately. This has often resulted in gaps in data seriesand quality of observations.


Picture 2.3:Observation Network

River gauging stations had primarily been set up with a view to collect data on water levelsand discharges at river and reservoir stations. At some of these stations, sediment and waterquality was also observed. Stations belonging to the CWC were located on the major rivercourses whereas those of the States were located on the smaller rivers and the tributaries ofthe major rivers. The CWC network is primarily meant to gather information on the overallwater resources of the country, to resolve interstate water sharing, and for flood forecasting.The observation network of various states covers the basins more intensely with the aim toprovide hydrological data for planning and designing of water resources projects.

By the time project appraisal, availability of observers at the river gauging and hydro-meteorological stations had gradually declined. This, coupled with an ever reducing financialsupport, had rendered most of the river gauging and meteorological networks (except CWCand a few states) non-operational. The observation process on most hydro-meteorologicalstations was manual with little automatic equipment installed in recent years. The dischargemeasurement was mainly done by current meters in CWC stations; states used non-standard floats.

Picture 2.4:River Gauging Site


The assessment of groundwater resources in India is based on annual recharge anddischarge using a simple form of water balance equation. Among the different inputs, thewater levels, aquifer parameters, rainfall, and evaporation are being observed directly whileothers are estimated indirectly. Prior to HP, most groundwater observations were done atopen dug wells tapping the upper unconfined aquifers. The water levels measured revealedthe piezometric head/water table elevation of the semi-confined/unconfined aquifers.However, the necessary well-aquifer hydraulic connection was not always in place. Thefrequency of monitoring was limited to four times in a year: pre-monsoon, monsoon, post-monsoon, and winter seasons. Presumably, these water levels represent the troughs andpeaks of the water table hydrograph, though many times these are too sparse to yieldreliable and credible conclusions. Limited monitoring of the piezometric head of the deeperconfined/leaky confined aquifers was carried out by some agencies by observing the waterlevel in deep production tube wells.

Awareness to get information on water quality has grown only in the last couple of decades,primarily due to deteriorating quality of already dwindling water resources. Whereas the rivergauging authorities try to obtain the basic water quality variables from the same locations asthe river gauging stations, the Pollution Control Boards take observations with the aim ofsurveillance near industrial or urban centers. In the past, water quality laboratories wereinadequate in numbers and analytical capabilities. Insufficient finances have also hamperedoperations.

Figure 2.2: Hydrograph

Though the observation networks of the central and state agencies were expected to havecomplementary roles, the actual networks often showed many duplications/gaps.

Data processing and dissemination

Agencies providing hydrological services had been using computerised methods of datahandling for several years with different levels of sophistication, ranging from simple ASCIIbased data files to more user friendly spreadsheet files and dBase databases. However,there was a lack of uniformity in the formats and software being used in different agenciesand different offices of the same agencies. There had been a few efforts in the past in someagencies to improve the data processing systems but these were not channelled to yieldobjective solutions. Users faced difficulties in getting hydrological data, especially due todifficulties in locating the source, unavailability of all data on computer media, and longdelays in data supply.


2.3 Constraints

The Hydrological Information Systems as found during the reconnaissance missions at thestart of HP were deficient in many ways. Since the agencies operating HIS were the main datausers, the system’s output historically has been “supply driven”, and was not tuned to theneeds of other potential hydrological data users. The monitoring networks, equipment andpractices were lacking and needed strengthening and upgrading. In many instances theobservation networks showed duplications and were overall often spatially inadequate anddeteriorating. Water quality variables were hardly observed. Application of non-standardprocedures for data collection and quality assurance among responsible agencies, manualand henceforth limited data validation and processing, and outdated procedures forinformation management and dissemination created a situation where the data provided bythe agencies were generally insufficient for proper water resources planning, design andmanagement.

Figure 2.5:SRG site (defunct)

The problems could largely be attributed to weaknesses in the institutional infrastructure withinthe agencies and between the agencies. The agencies were short of skilled staff, due to lackof training and frequent transfers in an environment that was insufficiently oriented tohydrology. This resulted in an overall neglect in maintenance of instruments and installationand led to their malfunctioning. Money was not available for replacements. Procurementprocedures and disbursements of funds were often very lengthy, which frustrated timelyimplementation and reduced motivation and enthusiasm of the concerned staff.Standardization of equipment, procedures and exchange of information were stronglyhampered by the absence of any interagency communication culture. Improvements werebadly needed as clearly stipulated In the World Bank’s Staff Appraisal Report No 13952-INof July 1995.


3 Objectives of the Hydrology Project

The Hydrology Project has been a vast seven-year effort by nine peninsular states (eightbefore the creation of Chhattisgarh) and the central government of India to establish anintegrated network of standardized, scientific hydrological databases, with associatedstandardized monitoring and data processing procedures and related institutional capabilitiesand capacities. Responsibility for implementation of the project has been with theparticipating agencies in the different jurisdictions, which for this purpose could avail ofinputs provided under the related IDA credit. To support the agencies in their tasks, theproject also comprised a technical assistance component under a separate grant from theRoyal Netherlands Government.

With respect to the activities of the agencies, the overall development objective of theHydrology Project (HP) has been to:

“support major aspects of India’s National Water Policy, particularly with regard towater allocation and planning and management of water resources development atthe national, state, basin, and individual project levels”

(World Bank Staff Appraisal Report 1995)

In this connection, the SAR stipulated as the immediate objective of the project to

“improve institutional and organizational arrangements, technical capabilities, andphysical facilities available for:

− measurement, validation, collation, analysis, transfer, and dissemination ofhydrological, hydro-meteorological, and water quality data

− and for basic water resource evaluations.”

In support of these objectives, the SAR identified the following specific outputs:

“comprehensive, easily accessed, and user friendly databases covering all aspects ofthe hydrological cycle, including surface water and groundwater in terms of quantityand quality and climatic measurements, particularly of rainfall”

The Hydrological Information System

Accordingly, under the project, the participating agencies established an HIS comprisingthree important components (see Annex 1 for a more detailed description of the HIS):

1. Observation network

2. Data processing and storage infrastructure

3. Data communication arrangements

The HIS is a distributed system, i.e. it consists of autonomous components in the differentstates. The system includes inter-agency communication arrangements for purposes suchas data validation, integration of databases and broadening of scope.

Final Repo

Laboratories

State DataProcessing

Center

State DataStorageCenter

Other State Data Centers

Central AgencyData Centers

Div / DistData Center

Subdiv / DistData Centers

Field Observation

Stations

This set-up allowed the individual participating agencies to continue their proprietary positionwith respect to their part of the system and the data it contains. However, participation in theHIS also emphasizes the inter-linkages between the constituent parts, and all agencies haveagreed in principle to provide access to outside users. Moreover, outside users alsobecame involved in planning for system development and operation, through theirmembership in Hydrology Data User Groups (HDUG). The structure of the system isgraphically depicted below.

Data is collected at different points in thesystem. Field observation stations yielddata on surface and groundwater, togetherwith meteorological data. Water samplescollected at these sites are sent to differenttypes of laboratories, which test thesamples water quality aspects.

The data thus collected is entered into thedata processing networks. In thelaboratories this involves storage in the in-house computer, whereas data from theobservation sites in the field is sent forcomputer entry at the subdivisional/districtoffices of the surface and groundwaterdepartments.

Upon receipt and entry of the data, thesubdivisional/district offices conduct aprimary validation, and then send the dataon to the divisional level, where secondaryvalidation takes place. Finally, the datagoes to the state data processing center,for final validation and ultimate storage inthe data storage center at state level.

Only finalized validated data are made availatype of data is available where in the system isexists in all data storage centers. This allowformulate his data request accordingly.

Apart from the introduction of a scientific basisimprovements realized under the project are pof the different databases to outside users. Aparticipating agencies. First, the new arepresented a paradigm shift. Next, impladministrative / logistical effort. In order to indata collection, processing, and managemenunits, establish new positions, fill these positproperly trained. Many agencies were poorly p

Figure 3.1: Basic Structure of HIS

rt (June 2003) Page 10

ble to the outside user. Information on what provided in a meta database, of which a copys the user to easily define his data need and

for aquifer / basin-wide data collection, majorroper validation of data collected and openingll this constitutes a significant change for thepproaches championed under the projectementing the project required a significantternalize the more sophisticated approach tot, the agencies had to create dedicated HISions, and ensure that staff at all levels wererepared to undertake these efforts.


4 Technical Assistance

According to the SAR, the nature of the project demanded a significant need for technicalassistance and training to support the achievement of institutional and technical capabilityobjectives.

4.1 Objectives of the Technical Assistance

The main objective of the Technical Assistance as formulated in the SAR (1995) and theTOR issued by the Government of the Netherlands (January 1996), is to

“provide broad technical and institutional support to the participating agencies, and toassist the project authorities to implement the Hydrology Project in accordance withtechnical criteria, standards, and procedures agreed by the Bank and theGovernment.”

The specific tasks for the TA are presented in Annex 11 of the SAR. A number of theseinvolved the production of tangible outputs, generally to provide the agencies with astandardized methodology for decision-making and implementation. The relevant outputsspecified in the SAR were:

1. Methodologies, guidelines, and standards for the optimization of networks andmonitoring frequencies, and for the selection of measurement methods,chemical/biological parameters to be monitored, field/laboratory equipment to be usedand analysis procedures to be followed;

2. Guidelines and standard methodologies for data processing [and] general resourceassessment (including comprehensive overviews of water quality in the region);

3. A format for the production of surface water, groundwater, and water quality andsediment yearbooks;

4. Manuals for surface water and groundwater monitoring to standardize technical criteria,procedures, and monitoring and evaluation processes for all aspects of hydrological andgeo-hydrological measurements, including water quality and suspended sediment;

5. Technical specifications and contract documentation for equipment to be procuredunder the project;

6. Procedures and processes for the validation of new and historical raw data;

7. A computational framework for surface water and groundwater quality assessment.

As mentioned above, the focus for development of these TA outputs was to assist theprocess of implementation by the agencies. In fact, Annex 11 of the SAR and the TOR forthe TA (January 1996) spelled out many other responsibilities for the TA, which were moreof an “advise and assist” nature:

1. Assist the project agencies with the general management of the project, includinginvolvement in overall coordination of project implementation, review of annual workprograms, and monitoring, evaluation, and general performance of project performance;

2. Assist the project agencies with the strengthening of relevant administrativearrangements and reporting procedures;

3. Advise the concerned agencies on the processes and procedures for the disseminationof hydrological information, and for the strengthening of links with user organizations, asthrough Hydrological Data Users Group (HDUG);


4. Encourage coordination between various agencies to: (i) ensure that national and statemonitoring networks would be complementary; (ii) establish uniform quality standardsand comparability of data; (iii) utilize data of non-participating agencies; (iv) shareexperiences through workshops and seminars; (v) enhance utilization of the data;

5. Introduction of a “Hydrological Institutional Development Plan” (HIDAP) as systematicplanning tool, and assisting the implementing agencies in assessing the projectperformance in terms of outputs and human, financial and technical resources in relationto HIS objectives.

6. Training needs assessment, development of a training strategy, assistance to traininginstitutes, development of annual training programmes, preparation of training coursecuricula, preparation of seminars and workshops, provision of formal training of trainersfrom state agencies, monitoring the effectiveness of the training activities, and organisingoverseas study tour and visits.

7. Assist the Project Coordinator to review annual workplans and quantity and costestimates, and assist in the preparation of annual budgetary requests;

8. Provide general advice and on-the-job training in installation and/or utilization of …equipment, and the introduction … of quality control programs …;

9. Cooperate with the agencies to evaluate the performance of innovative hydrologicalequipment under Indian conditions …;

10. Assist with the selection, procurement, and installation of the database system and dataprocessing software …, and provide on-the-job training for data input, validation, andanalysis;

11. Assist in the identification of surface and groundwater studies to be taken up in selectedbasins …, and provide advisory support to the institutes [taking these up];

12. Support … agencies with the establishment of … laboratories, and with implementationof pilot pollution monitoring and assessment programs …;

13. Provide guidance and support… for implementation of a real-time flood forecastingsystem in Orissa and … Tamil Nadu;

14. Provision of specific institution support consultancy to CWPRS, CGWB, CWC and NIH.

The TOR of the TA Consultancy, issued by the Government of the Netherlands, stressed theimportance of adopting a Process Approach, while emphasizing the need to focus oninstitutional strengthening programmes, a.o. HIDAP, HDUG, MIS and HRD.

Specifics on the TA’s activities for carrying out all these tasks and providing related supportto the agencies are indicated in separate “boxes” along with the description of thedevelopment of the HIS in the Chapters 5 and 6 of this report. The present chapterdescribes the involvement of the TA in guiding and managing the implementation process,which was supported under its institutional development component (i.e. elements other thantraining, procurement of equipment and vehicles, etc.).

4.2 Phased implementation

The implementation of HP from the perspective of the Technical Assistance (TA) wentthrough the following four phases:

1. Inception Phase, in which the necessary groundwork for HP implementation,development of the organizational framework and planning of project activities tookplace;


2. Development Phase, which comprised standardization of procedures and technicalspecifications, design of HIS, development of staff training curricula and planning;

3. Implementation Phase, in which the procedures and designed structures were graduallybeing implemented; and

4. Consolidation Phase, including support activities to arrive at sustainable operation of theHIS.

All participating Central and State agencies went through the distinguished project phases,but duration and timing varied according to achieved progress.

4.3 Logical Framework for the HIS

Throughout the Project implementation phases logical framework analysis has been appliedto identify the outputs that the project must produce to meet its objectives. These outputswere the expected results of activities to be undertaken in the project. It is to be noted thatthe project activities were for the greater part carried out by the agencies, with noinvolvement of the Consultant in a line relationship. Hence, while TA activities werenecessary for achievement of the project objectives, they must be seen as complementary toactivities to be undertaken by the agencies.

For each of the outputs a number of indicators were mentioned by which the achievementcould be observed. In the logical framework, the identification of the TA activities waspreceded by an assessment of the current status with respect to the relevant output. Theproposed TA activities were directly related to this status. Next, the framework listed theinputs to be provided by the Consultant. These inputs were always of advisory nature, andwere identified in terms of the individual TA staff members’ designations. Finally, the logicalframework listed a number of assumptions on the basis of which the activities were expectedto bear fruit. Following standard logical framework analysis practice, expectations that weremost likely to become reality were not listed under assumptions. Although a number ofassumptions were crucial for the successful completion of the project, none was deemed tobe a “killer assumption” (i.e. not likely to become reality) for all agencies. However, someissues, e.g. availability of specialist staff in posts created, resulted in framing a “killerassumption” if staff could not be redeployed, trained, or recruited. Where such staffremained unavailable the TA had no option but to abandon the respective activity in suchagency. This resulted in an automatic selection of the states, in which the TA continued thefull range of its activities.

As an example, Annex 2 presents the logical framework for the Consolidation Phase of theProject. The analysis points to the activities as from November 2001 required for building onand completing the work that had been ongoing since 1996. The activities mentioned haveplayed an important role in the pursuit of this objective.

4.4 Developing the concept of the HIS

The basic concept for the HIS was described in the SAR, culminating in the formaldescription of the specific output expected from the hydrology project: comprehensive, easilyaccessed, and user friendly databases covering all aspects of the hydrologic cycle, includingsurface water and groundwater in terms of quantity and quality and climatic measurements,particularly of rainfall. The resulting system was to comprise distributed data processing /storage centers from division / district level up to state and central level, and facilitate datasharing among different users (including non-traditional ones).


Based on this formulation, the TA team further developed the concept of the HIS in line withaccepted international practices, and formulated preliminary outlines of the system structurecomprising a data collection network, a network of data processing capacities, andarrangements for data communication and dissemination. An element of the system thatrepresented a departure from existing practices in most states was the development of atiered network of water quality laboratories aimed at full coverage of the water quality aspectin the environmental context (i.e. beyond chemical analysis to determine suitability forirrigation and drinking water only).

The concept developed by the TA team was first presented during a national-level HPworkshop in Hyderabad in December 1996. This workshop not only addressed the technicalrequirements for HIS development, but also aimed at defining roles of the different parties inthe process (coordination committees, SMCs, nodal officers, etc.). Following basicacceptance of the “pre-design” by this workshop, the TA further detailed the structure andprocesses of the HIS. The results of these activities were regularly discussed in dozens oftechnical workshops, many at national level and many others for one or a few specific states.For example, a workshop on standards for collection, storage, and processing of surfacewater data was conducted in May 1997, and similar workshops took place for groundwaterand water quality. At the same time, the TA team maintained regular contact with the High-Level Technical Group on HP, which continually discussed progress on developments of thestructure and data flow of the HIS. Finally, the conceptual development was discussed atregular intervals with the World Bank Review Missions.

A key element in developing the HIS was the reliance on existing structures and authorities,and the determination to have the agencies develop “ownership” of the system. Existingresponsibilities for data collection were generally accepted as they were without pressure forchanging the basic distribution of authority. Instead, the TA team focused on developinggreater efficiency and effectiveness. This did not focus so much on the responsibilities andauthorities per se, but on elaborating and streamlining of processes and developing a moreoutward orientation. In this connection, the TA team greatly emphasized the need toinstitute data validation in line with scientific requirements. However, care was takenthroughout the project to present the HIS not as a “new” system (any structured arrangementfor collection, storage, and dissemination of data is a system, despite apparent flaws) but asa “technically improved and expanded” system.

Throughout this process, the concept of the HIS became more and more clear and evolvedinto design of networks, data centers, laboratories, etc. The sequence and interrelationshipsof activities in developing the HIS were ultimately framed in the Model HydrologicalInstitutional Development Action Plan, which provided the conceptual structure for theimplementation activities throughout the remainder of the project, as a reference point forboth the TA team and the imple

4.5 Process approach

The “advise and assist” role of the TA reflected the fact that the objective of the project wasnot just to develop a new technical system, but to change the way in which the concernedinstitutions approach hydrology, related data management, and dissemination of informationas made possible by the introduction of the system. In other words, the thrust of the TA hasbeen towards supporting the process of change by and within the implementing agencies.


To this end, the TOR indicated a process approach to project management. The concept ofthe process approach is that, while the general objectives and direction of the project aredefined, specific work programs need continuous monitoring, feedback from users, andadaptations as experience is gained. The process approach introduces flexibility inimplementation, and aims to ensure full involvement of the participating institutions in thepreparation of institutional development programs and related annual work programs.

Thus, the process approach seems to contradict the usual project implementation practice inthe agencies, which more likely interprets the SAR and TOR as a blueprint to be followedwithout deviation. Therefore, one of the main tasks of the TA was to assist the agencies indeveloping a process orientation.

A flexible and process-oriented approach demands strong coordination of activities andmanagement of the project both at the central and state government level. The SAR, andTOR, therefore, prescribed a strong steering mechanism through annual project review,comprising the following main elements for project management:

1. Hydrology Institutional Development Action Plan (HIDAP) – an annually reviewed andupdated agency-specific plan focusing on management, organizational, and institutionaldevelopment aspects of the project.

2. Hydrological Data User Groups (HDUG) – for feedback on user orientation andsatisfaction with hydrological information provision.

3. National Coordination Committee, with a Project Coordination Secretariat for overallmonitoring and evaluation.

4. State Project Coordination Committees for monitoring and evaluation of the physicalimplementation and institutional development components of the project.

5. Annual Project Reviews by each state and central agency.

4.6 Process management

The TA has been involved with all the above five project management instruments. Inkeeping with the basic principles of the process approach itself, actual experience showedthat some of these instruments were more effective than others. Hence, TA involvementwith their application changed over time.

Hydrological Data Users Group

Particularly the HDUG concept has been difficult to implement. These groups weresupposed to become the prime platform for user feedback and should advise on issues suchas network layout, monitoring frequency, pricing of data, etc. However, as delays occurredin building the monitoring networks and data processing could not yet take place, suchdiscussions remained too abstract and theoretical for the participants to devote real attentionto them.

In practice, the agencies related active participation and commitment to the utility they wouldderive from this effort in terms of their regular obligations. It is here that the HDUG conceptshowed its limitations for directing development of the HIS: as long as there was nofunctioning HIS, there was little enthusiasm for participation and, therefore, little contributionto thinking about the direction of development.


Moreover, the inclusion of “new” data users in the HDUGs (i.e. other than the traditionalhydrological data collecting agencies) proved to be a complication. The actual ownershipand operation of the HIS would not change from the traditional agencies and these could,therefore, not easily accept a role for other users in the decision-making on systemdevelopment. Nevertheless, with prodding from the TA the agencies have accepted the rolefor the new users.

Picture 4.1:Meeting of HDUG Members

In the early project years, TA activities in support of the HDUGs concentrated on definingtheir role and position, convening workshops to disseminate the HDUG concept, and aninitial attempt to carry out data user surveys to identify existing and prospective data usersand determine their actual information needs. It was hoped that these surveys wouldthemselves provide an opportunity to expand the understanding of the HIS utility. However,due to the initial lack of enthusiasm only two test surveys could be conducted at that time.

As time went by and the system came more and more “into view”, activation of the HDUGsbecame possible. The TA has supported this during the last three years of the project bydeveloping HDUG Terms of Reference, assisting in formulation of the relevant establishmentorders, proposing a standardized agenda, facilitating workshops, and participating in actualmeetings to further explain the HDUG role, position, tasks, etc. Also, the data user surveysbecame possible again towards the end of the project, when there were more HIS issues todiscuss. The HDUGs have now become established in all states and at the central level,with participation of traditional and new data users.

Coordination Committees

In the participating states, the TA has been actively involved in the functioning of thecoordination committees through the State Management Consultants. The SMCs attendedall meetings, provided guidance to the committee members on the state of the project, andsuggested steps to be taken. The SMCs also supported the entities that functioned as thecommittee secretariats in setting the agendas for the meetings and developing documentsfor discussion. This support was generally provided to the office of a designated chief orsuperintending engineer in the water resources department. Apart from this, the consultantalso advised the relevant entities in the individual surface and groundwater agencies.


At the national level there has been extensive support to the PCS and the central agencies.Also at this level the TA participated in the meetings of the coordination committee. The TAhas cooperated with the PCS on a continual basis on all substantive matters relating to theproject (e.g. approval and circulation of documents and manuals) as well as on managementof the implementation process. A particular contribution in regard of the latter was theimplementation of a project management information system, through which the participatingagencies could report on their progress. An early version of the project MIS was devotedmostly to implementation aspects of the development credit agreement (construction,procurement, training numbers, etc.). Subsequently, the consultant developed andintroduced MIS-II to cover also the more operational aspects of system development.

Day-to-day support to the implementing agencies in the states was mostly of process nature,focusing on liaison with the designated HP offices and motivation of the different agencies topursue coordinated implementation of their responsibilities under the project. The SMCs,generally ex-Secretaries or Chief Engineers, were in an excellent position to keep thepressure on at all levels in the relevant organizations. In the early years of the project thisproved to be essential, especially for bringing up to speed the construction and procurementprocesses.

Annual Project Reviews

The reporting schedule of the TA was tied to the annual project review, which took place inthe fall, and which was updated in the spring of the following year. This regular monitoring ofproject implementation progress proved the main impetus for the review of implementationprogress by the agencies. In practice, the agencies’ reporting schedule was aligned with thesemi-annual visits of the donor supervision missions.

In anticipation of the donor missions, the consultant regularly provided a report on the statusof project implementation as perceived by TA staff both at the center and in the states. Thisconsisted of brief explanations of the (absence of) changes in the numbers reported throughthe MIS (“the story behind the numbers”). Despite the fact that the MIS data originated fromthe agencies, the latter nevertheless also provided their own reports to the missions. Thedata used in these reports were often at odds with the data from the MIS. Early on in theproject, the mission decided that the MIS should be the only source for data.Notwithstanding, with respect to interpretation of the data the missions conducted their owninvestigations, accepting the inputs from the TA and the agencies as contributions only.

Hydrology Institutional Development Action Plan

The annual reviews, and indeed also the activities involved in establishing the HDUGs, wereto be based on Hydrology Institutional Development Action Plans. The SAR consideredthese an important element for sustainable and successful implementation of the project, tobe based on the assessment of the capacities, potential and constraints of each agency witha view to identifying required resources, changes of procedures, or technical assistancewhich could usefully be introduced to strengthen institutional capabilities.

The consultant devoted considerable time and resources to development and introduction ofthe HIDAP. As developed, the HIDAP was actually based on logical framework analysis. Itwas introduced through series of workshops in each state and at the center, in which theparticipating agencies were first familiarized with the approach, then provided their own“content” for the plans, and finally consolidated the plans into integrated SW/GW HIDAPs.The HIDAP workshops stressed participation by staff from all levels in all agencies to ensure


understanding of and commitment to whatever was concluded in the sessions throughoutthe agencies. This was greatly appreciated, as for many of the participants this was the firsttime they were so involved in new developments, or indeed in any interaction with theircolleagues from other divisions and districts.

Notwithstanding the benefits of this involvement for overall understanding of the project, thefact that the agencies did all the substantive development work themselves resulted in plandocuments that were very different in scope and detail. Therefore, based on this result, theconsultant developed a “model” HIDAP, taking into account all the elements suggested bythe agencies while ensuring a systematic and sequential linkage between the differentactivities to be undertaken in the project. This resulted in the following chapters for the modelHIDAP: i) user needs; ii) network development; iii) data collection; iv) data processing; v)data communication; vi) data storage; and vii) institutional and human resourcesdevelopment.

In each chapter, the HIDAP planning concept involved first identifying the overalldevelopment goal (to ensure common understanding of why HP was being implemented),and then identifying desirable improvements and measurable performance indicators bywhich to measure progress towards these. Finally, specific “output objectives” wereformulated in terms of the performance indicators. In the workshops, the agencies wereinvited to identify the driving forces and/or restraining forces they would have to deal with inachieving the output objectives, and to formulate strategies and specific action plans to dothis. For progress monitoring, “aspect plans” were introduced, in which similar activities forall the different action plans were grouped together and projected in terms of time andbudget. This resulted in aspect plans for construction, procurement, training, staffing, andresearch and development. The important difference between the basic HIDAP and theassociated aspect plans was that the former were explicitly output oriented, dealing withwhat was to be achieved, and the latter listed the inputs to be used to do this.

4.7 Impact of the HIDAP

By the time of the mid-term review, the information collected for and presented in theHIDAPs became the basis for detailed project status reports. These reports showed foreach agency the level of achievement towards the output objectives, in terms of the agreedperformance indicators. Subsequently, these status reports were further refined in the Stateof Andhra Pradesh. They ultimately became the basis for so-called HIS BalancedScorecards, which, using the most important indicators on just two pages, provided abalanced overview of achievement from an internal perspective, user perspective, andsector perspective.

The combined efforts of the agencies and the TA resulted in a practical set of planningdocuments, which had two important benefits. The first was organization of the very diverseproject activities during the early part of the project, providing direction to all concerned. Thisbenefit was especially appreciated within the TA team itself, and continued to guide itsactivities to the very end of the project. As stated before, the TA had no direct responsibilityfor establishing the system, which was the job of the agencies. HIDAP planning allowedidentification of constraints associated with the objectives listed for the different parts of theHIDAP. The TA’s strategy and activity planning focused on identifying TA outputs that wouldsupport the agencies in overcoming these constraints. Subsequently, in the annual reviewprocess, these outputs were assessed in terms of how the agencies had absorbed them, i.e.the extent to which the agencies could successfully make use of the TA support in theseareas. Over time, this resulted in changes in direction of the TA activities.


The second benefit of the completed HIDAPs was that they proved a ready summary of whatHP was about. Since counterpart staff dealing with the project in the agencies frequentlychanged, especially at the senior levels, this was found useful for quickly becoming familiarwith all the project elements and aspects.

Unfortunately, the annual reviews by the supervision missions were perceived by theagencies as emphasizing physical progress towards credit disbursement. Consequently, intheir reporting they devoted more attention to the inputs (trainees trained, buildings built,equipment procured, etc.) than on the outputs to be produced by ensuring that these inputswere applied in a timely, coordinated manner as described in the HIDAPs. Moreover, theHIDAPs were not part of the formal government reporting cycle, as a result of which theagencies gave less priority to their formulation and especially their updating. In fact, the Mid-term Review Mission reported annoyance among some agencies about the emphasis onHIDAP. Consequently, following the mid-term review the HIDAPs were given less emphasisand institutional development began to be focused more directly on specific activities suchas organizational assessments, HDUG workshops, and cultural assessment workshops. Inpractice this meant that agencies ceased updating the HIDAP annually.

4.8 Continuing support for institutional development

The organizational assessments were in-depth studies of how implementation of the HISwould affect three basic functions in the organization: the traditional operational function, theinformation system function, and the management function. Notwithstanding limitationsposed by existing general Government procedures and policies (e.g. recruitment ban), theassessment sought to identify interventions to enable successful operationalisation of thesystem. The assessment focused on four conditions for organizational effectiveness:operational capability, operational flexibility (both addressing the track record of theimplementing agencies as organizations), staff capability, and staff motivation. Combinationof the basic functions and the conditions for effectiveness resulted in a matrix for analysis.The first step in the analysis involved identification of perceived strengths and areas forfurther improvement in each of the cells. The second step identified possible actions toachieve further improvement, by building on existing strengths wherever possible,culminating in a set of interrelated recommendations for each of the three basic functions.

One of the prime potentially limiting factors that came out of these assessments was theprevailing organizational culture. Clearly, despite all the efforts for HIDAP planning, the HISunits still had no clear vision for development. This was mainly due to norms and valuesystems that were incompatible with internalizing the type of change introduced under HP.Therefore, the TA commenced workshops on “HIS sustainability and organizational culture”to address these issues in more detail. As previously in HIDAP, these workshops sought todevelop specific action plans for improvement. Following the workshops, the agenciesinvolved, with support from the consultant, established task forces and core committees, withwell defined terms of reference, to develop “Mission and value statements” and agendas for“Change-action for HIS sustainability”. These activities continued to the very end of theproject and succeeded in generating more enthusiasm and commitment within the agenciesfor aspects such as efficiency, quality consciousness, etc. that are so important forsustainability of the HIS.


4.9 Institutionalisation of a sustainable HIS

Successful introduction and operationalisation of the HIS demands a series of changes inthe institutional setting, technology, systems, policies, procedures, and human processes.The technological change introduced under the project is immediately measurable. Tangibleimprovements include setting up modern physical infrastructure, introduction oftechnologically superior and sophisticated data collection equipment, computerized dataprocessing tools and techniques, etc. However, the road to acceptance of the requisitechanges in management systems, policies, and procedures is longer and more tortuous,because this depends on the administrative hierarchy and the implications beyond theimmediate HIS organization.

The consultant has focused on strengthening a variety of institutional mechanisms to removeapparent weaknesses and at the same time enhance existing strengths. In this process, anumber of challenges have been tackled. These are found in three different domains:

• Structure and systems

• Policies and procedures

• People and processes

Structure and systems

This is one of the most difficult areas in which to induce change, for in a government settingthis generally comes under the purview of a larger parent organization. Moreover, thegestation period between initiation and implementation of systemic and structural changetends to be long. Nevertheless, a number of successes have been achieved, such as: i)integrating water quality analysis in the traditional domain of quantity measurement; ii)application of domain-specific standardized systems of data collection, processing, andvalidation; iii) establishment of a uniform HIS organization structure in most states; iv)formation of training cells headed by a training coordinator; v) introduction of a system forpreparing staffing and training plans; etc.

Policy and procedures

The implementing organizations are by and large free to determine their own routine policiesand procedures. Only policies with larger inter-departmental implications are referred to theparent organizations. This made it possible for the TA to introduce a variety of proceduralchanges. One of the models of this initiative is the formal release of several HIS-specificadministrative orders, inter alia: i) procedure for O&M budgeting; ii) introduction of O&Mprocedures; iii) adoption of uniform water quality sampling procedures; iv) expanding theHDUG membership base to include local NGOs and formation of task-specific specialistgroups; v) introduction of protocols for HIS data flow, inter-agency data validation, dataexchange, and data dissemination; vi) outsourcing of water quality analysis where specialiststaff were unavailable; etc.

People and processes

The TA has devoted considerable time and resources to have an impact in these mostlyintangible yet very important domains. Adoption of the model HIDAP, successful institutionaltransition from a rigid compartmentalized outlook towards a more integrated water resourcesmanagement perspective, active participation of field level staff in division-level HIS


operationalisation workshops, adoption of computerized work practices, open-mindedapproach to commence inter-agency data exchange, agency-wide emphasis on quality-oriented and error-free HIS, are all manifestations of changes resulting from the activitiesunder the project.

These results have been possible due to different pro-active TA activities undertaken duringthe project. Activities particularly relevant to post-HP sustainability are the following:

• Promoting the establishment of a national level HIS Coordination Committee, whichis to take over the activities of the NLCC/NLSC and should function as the policy-level forum for coordination between the participating states and the centralagencies. The committee is to be supported by a coordination secretariat (HIS-CS).

• Establishment of the National level Water Quality Assessment Authority, with legalmandates for promoting standardization of procedures for WQ monitoring. The TAdescribed the need for this body, elaborated the related terms of reference, andaggressively promoted the concept to concerned ministries. Consequently, theauthority was established in 2001. Post-HP, the HIS-CS may provide support tothis authority.

• Activation of an HIS helpdesk – The TA established this helpdesk during theproject. Post-HP this function should be performed by the national level DataStorage Centers of the CWC and CGWB, respectively. The DSC of the CWC isbeing set up in the office premises to be vacated by the TA, while the CGWB isestablishing its DSC in its offices in Faridabad.

• HIS operationalisation workshops – A series of regional/divisional level workshopsaddressing management issues and shaping attitudes for the field and middle levelstaff, related to monitoring quality control of the generated data. Post-HP, theseworkshops should be repeated annually as part of the regular training calendars.

• HIS management workshops for enhancing personal effectiveness – To instill aquality conscious and time-efficient work ethos, allowing HIS personnel to functioneffectively despite constraints posed by general policies and regulations.

• HIS promotion at decision-making levels – To ensure continued budgetary andmanagement support by the higher-level decision-makers, the TA has startedactivities such as: public relations, providing media visibility, awareness creation,publication of newsletters, lobbying for staffing, etc. Post-HP these activities shouldbe continued by the national-level HIS Coordination Committee.

• Continued HIS training solutions – As the HIS develops, and as staff arereassigned, a continued training effort is essential. To make this possible, HIStraining cells have been established in each of the agencies, long-termpersonalized training plans have been documented, and contacts have beenestablished with central training institutes.

• Protocols – A number of manuals have been prepared on a variety of aspects suchas data collection, WQ sampling and analysis, data entry, validation, etc. Relatedprotocols have been formulated to ensure timely and uniform application of thedifferent procedures.

Apart from these activities, the TA has ensured the continued availability of the sourcematerial for development and management of the HIS by creation of an electronic HISLibrary on the HIS website. The HIS library contains all documents prepared under theproject (or samples thereof where appropriate). A comprehensive catalog (Annex 3) hasbeen placed on the HIS Website with links to the related documents.


The interventions mentioned above have succeeded in creating institutional strength for asustainable HIS. It is essential that these strengths are maintained-if not improved-asotherwise the sustainability of the HIS will be put in question. It has to be recognized that thereal threat comes from ‘insignificants’ and ‘intangibles’. The perception of any threat asinsignificant makes the redressal effort both weak and slow, conditioned by a complacentattitude of the agencies. Similarly, what is not tangible/visible does not get attended tounless the consequences of not attending reach the conscious level. Thus, minor problemscan have major implications.

Appreciating the above, the Consultants have focused on a number of other supportingmeasures, primarily in the area of culture building, performance- driven organizationalsupport systems, and instituting organizational mechanisms for self-sensitizing about changeneeds and engineering responses, for sustainable operation of the Hydrological InformationSystem. These include:

• Emphasis on provisioning of adequate transport facility to HIS staff for inspectionpurposes

• Emphasis on provisioning of protective shoes and liveries to operating staff

• Providing insurance coverage to operating staff against work hazards

• Emphasis on developing in-house basic capabilities for maintaining hardware andsoftware

• Emphasis on multi-skilling of all members of HIS units, to expand availability of theresource base and develop capacity for contingency handling

• Promoting open and fast communication, and encouraging lateral communication

• Emphasis on developing succession lines

• Emphasis on involvement of staff in organizational issues to broaden their perspective,by holding periodic staff meetings at all leadership locations

• Introducing operational ease through increased decentralization of authority to fieldlevels

• Introducing the practice of knowledge/experience sharing

• Developing consciousness about ‘quality’, ‘time-efficiency’, and ‘customer orientation’across the organization

• Inspiring the leadership to look beyond traditional and conventional solutions

• Developing an urge in leadership for continuous search for improvement in all facets oforganizational activities

• Achieving commitment through an appropriate value system

• Establishing an organizational set-up and instituting a system for pro-actively addressingOperational and Maintenance issues

Sufficient appreciation of the above needs has been built in the targeted agencies - namely,groundwater and surface water departments in the states of Andhra Pradesh, Karnataka andMaharashtra. Some have even achieved implementation, as for example, the GroundwaterDepartment of Andhra Pradesh has noticeably decentralized authority in operational mattersto the field level and has established an 18-member O&M Task Force, re-enshrined it asOEE (Organizational Effectiveness and Efficiency) Task Force to expand its role for actingas a Think Tank, and provide a pivotal position in the organization to promote Values andpropagate Mission. The strength of these measures has been recognized by all and sincerityto proceed with putting them in place has been clear. Transformation would be slow butundoubtedly firm, and once a new set of ideals is in place, it will have deep roots to showvisible results over a period of time.


4.10 Extension of the TA

HIS implementation suffered very significant delays in all aspects of the project. In thebeginning of the project this involved construction (often due to land acquisition issues andlogistical problems concerning development of many remote observation sites), procurement(it proved difficult to “marry” government procedures with project needs and ICBrequirements), and staffing (a recruitment ban necessitated filling HIS posts throughredeployment). Later on, the consequences of these delays were exacerbated by delays indata processing software development (which was carried out under separate contractsbetween the GoI and different local consultancies). The TA involvement in this was limitedto formulation of terms of reference for software development, the preparation of tenderdocuments, and advisory assistance to the high-level technical groups established by theGOI to coordinate selection and procurement. The additional delays were incurred duringthe government’s subsequent evaluation of the bids received and negotiations with theultimately selected bidders.

The delay in implementation was recognized early on, and the need to provide continuedsupport to the agencies during an anticipated period of extension significantly affected theTA as the RNE instructed the TA to stretch available resources in order to maintain reservesaccordingly. At the end of 2001, the additional time required was estimated to be one yearand an extension was approved accordingly. The TA extension was approved only on thebasis of a clear withdrawal strategy, which must show actual transfer of functions to theimplementing agencies. Thus, the PCS became responsible for operation of the MIS andproduction of the relevant progress reports, and TA support at the state level became evenmore operationalisation-oriented. This had three consequences.

First, diversified support. From the beginning of the project, the TA had provided essentiallythe same level and type of support to all implementing agencies. From time to time theoption of selective assistance was discussed to make more effective use of the TAresources. However, until very late in the project it was deemed politically unacceptable tofocus on the stronger agencies to achieve the best possible result. Meanwhile, continuedassistance to the weaker agencies considerably sapped TA resources and thus limited thepotential impact of HP. However, the existing reality that the states had achieved differentlevels of implementation, together with the limited remaining TA resources, made itinevitable that during the extension the TA would concentrate its efforts on the mostadvanced states, in the interest of supporting HIS development where it was likely to bemost successful. Nevertheless, the other states were not to be abandoned. Thus, in thethree “focus states” (Andhra Pradesh, Maharashtra, and Karnataka), the TA would pro-actively provide the full range of support for institutional development and HIS utilizationissues and aspects. In moderately advanced states the TA would provide the same support,but adopt a more reactive stance. This was the case in Gujarat and Tamil Nadu. Finally, inthe remaining states (Chhattisgarh, Kerala, Madhya Pradesh, and Orissa) the TA would onlycater to specific requests, and time permitting.

Second, further streamlining of central support. Since HIS implementation support would beless domain-specific, it became less sensible to continue with separate task groups forsurface and groundwater. Hence, the distinction between ground and surface waterorganizations was abolished in favor of a single, focused, HIS Implementation Team. Thisteam would implement the remaining TA activities, with assistance from the ManagementTeam and a group of resource persons.

Third, further streamlining of state-level support. The SMC function was in principleabolished and TA support at state level continued only in the form of HMCs and DMCs. Thenew state of Chhattisgarh was the only exception: because this state was still in the earlystages of HIS implementation the TA maintained SMC support there till mid 2002.


During the implementation of the extension, it became apparent that further delays indelivery of the software for groundwater data processing and for data management in thedata storage centers were unavoidable. The Joint Review Mission of the World Bank andRNE, therefore, recommended consideration of further extension of the TA, to ensuresupport to operationalization of the “complete” HIS (i.e. inclusive of dedicated software fordata management and groundwater data processing). The preparations for the additionalextension began late 2002, but for various reasons could not be completed before March 31,2003. Subsequently, early June 2003, the GOI decided that it would reduce, as a matter ofgeneral policy, its recipient status in development cooperation to agreements with a numberof larger countries and multi-lateral donors only. Consequently, the Netherlands wasrequested to phase out its bilateral assistance. The Netherlands Government agreed and,as a first step, decided to cease with immediate effect all activities requiring increasedfinancial commitment. This meant that the envisaged further extension of the TA tillDecember 2003 could not materialize, and the Consultant was asked to terminate hisservices as of 30 June 2003.

5 Scope of activities

In line with the logical framework analysis and HIDAP planning, the activities under theHydrology Project can be broadly classified in the following categories:

• Assessing the needs of users

• Review and establishment of an observational network

• Management of historical data

• Data collection

• Data processing, analysis and reporting

• Data exchange and inter-agency data validation

• Data storage and dissemination

• Institutional and human resource development

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The TA made a broad institutional analysis of the HIS in the context of the National Water Policy.Its proposed HIS structure was presented and accepted during the December 1996 workshop. TheTA has documented the HIS concept, structure and development in the HIS Design Manual,Volume 1 and prepared detailed job descriptions for all HIS staff functions.


.1 Assessing the need of users

o make full consideration of user needs a Hydrological Data User Group (HDUG) for eachtate and for the central agencies has been constituted. A wide array of potentialydrological data users including the HIS implementing agencies are represented in theseDUGs. The main aim of such HDUGs is to review on a regular basis hydrological

nformation needs, to identify shortfalls in content and services provided, and to makeuggestions and proposals for improvements. This will then require the implementing agencyo reconsider HIS objectives and incorporate improvements where possible. Improvementsay also be needed to take care of equipment technology updates.

o streamline the data need assessment a questionnaire has been designed, with which theata users are approached. The purpose of this questionnaire is to provide in a structuredanner information on:

The profile of the users of hydrological data

The current and proposed use of water systems

Current hydrological data availability and requirements

Future hydrological data requirements

ased on the response to the questionnaire the Hydrological Information Needs document isompiled by the HIS organization.


5.2 Review and establishment of observation networks

After the objectives of the systems were laid down, the observation networks wereaccordingly planned, designed and established/upgraded/adjusted. The observationnetworks were thoroughly reviewed from three specific viewpoints:

• to open new stations in the areas that were poorly represented or very sparsely coveredearlier or to replace non-representative stations with dedicated sites;

• to eliminate duplication of stations across various agencies; and

• to improve the frequency and accuracy of the observations through automatedequipment and standard procedures.

The equipment as per the revised objectives and design was installed at the observationalstations, and old and defunct equipment was replaced with new, standard equipment.

Picture 5.1: Example of establishing and equipping observation wells

The procedures for these activities are laid down in the Volumes 3 to 6 of the HIS Designand Field Manuals Surface Water and the Volumes 3, 4 and 6 of the HIS Design and FieldManuals Groundwater, covering hydro-meteorology, hydrometry, geo-hydrology, sedimenttransport and water quality (see Annex 4 for the table of contents of the SW and GWManuals).

The TA prepared guidelines for the identification of hydrological data users and drafted the TOR forthe HDUG. The latter comprises the decision making structure, formalized procedures for follow upof HDUG recommendations, and standardized agenda and reporting formats of HDUG meetings.The TA facilitated selected HDUG meetings and workshops and initiated various promotionalactivities to make data users aware of the usefulness of the HIS.

The procedures for the assessment of hydrological data needs were drafted including thepreparation of the questionnaire. Pilots were conducted in a few states at the start of the Project totest the effectiveness of the procedures by approaching HDUG-members. Interview teams of theagencies have been trained in conducting the need assessment. A detailed description ofhydrological information needs assessment is provided in the Model HIN document and in Volume1 of the HIS Design and Field Manuals.


A comprehensive list of all equipment employed for observation was drawn up, and detailedspecifications for the equipment to be acquired under the Hydrology Project were prepared.This is available from the Equipment Specifications Manual (see Annex 5). Since thismanual is being used by all agencies, it provides uniformity of monitoring equipment in useby different agencies.

The procedures presented in the documents were applied to review and upgrade the hydro-meteorological, surface water, groundwater and water quality networks in the Project Area.All networks have been considered. The network densities were, as a first step, set to theminimum requirements according to WMO standards, which is generally sufficient for waterresources planning. These densities have to be reassessed in future after a thoroughanalysis of the data needs. State and Central agencies were brought together to eliminateduplications in their networks and to jointly review existing measuring locations and to selectnew ones. Good use was made of the equipment specifications and station designinstructions to upgrade the observational networks, a major step towards standardization.

Surface water monitoring network

A major improvement in the hydro-meteorological network has been the reactivation of manyold rainfall stations that had become defunct due to inadequate monitoring and shortage offunds. Many new full climatic stations, comprising the standard and autographic raingauges,dry and wet bulb, minimum and maximum thermometers, anemometer, sunshine recorder,and pan evaporimeter have been established. At the start of HP there were about 7200rainfall and 640 climatic stations in the project area. The field inspections revealed thatimproperly located stations, ill-maintained or defunct equipment, and sub-standardobservation practices were common features at these existing stations.

The TA drafted all the HIS Design, Field and Equipment Specification Manuals for the design,operation and maintenance of the hydro-meteorological and surface water and groundwaterquantity and quality networks.

• The design manuals describe the relevant hydro-meteorological, hydrological and geo-hydrological processes, sampling principles, network design and optimization, site selection,measuring frequency, measuring techniques, equipment specifications and station design andconstruction.

• The field manuals define the steps to be taken to design the network and to select observationsites. It lists in detail the required activities to operate the stations/wells and how to domaintenance, carry out field inspection cum technical audit and plan equipment calibration.

• The Equipment Specification Manual includes specifications for numerous types of equipmentin the fields of hydro-meteorology, hydrometry, geo-hydrology and water quality. Theequipment ranges from a simple raingauge, a fully automated tipping bucket raingauge, toADCPs, digital water level recorders, Atomic Adsorption Spectrophotometers (AAS), and GasChromatographs (GC).

The TA conducted workshops on network planning and assisted the agencies in reviewing theirnetworks, documented in joint inspection reports of integrated networks per state. Model biddocuments were made and acceptance criteria formulated to support the procurement of reliableequipment, meeting the specifications. Workshops were held to make sure that the officers werecapable of managing the procurement process. Station and installation plans have been reviewed.To ensure correct installation of the equipment an intensive monitoring program was executed.

Workshops on maintenance planning have been conducted to make the agencies aware of theimportance of improved maintenance practices. Sample budgets have been made showingoperation and maintenance costs in relation to investment in infrastructure.

Picture 5.2:Full climatic station

To revitalize the meteorological network about 500 new stations have been set up andanother 1700 stations have been upgraded to meet the standards.

The main improvements of river gauging stations have been the introduction of digitalrecorders. The practice of employing floats has been replaced by current metermeasurements. Most reservoir locations have been provided with automatic water levelrecording. Sophisticated techniques of discharge measurements like using Acoustic DopplerCurrent Profilers (ADCPs) have also been employed at a few stations where gauging isextremely difficult with conventional means. Under HP, about 265 existing stations havebeen upgraded and another 650 stations have been newly established, including a goodnumber of sites with Bank Operated Cableways.

Modern technology for reservoir sedimentation surveying has also been introduced in all theparticipating states, including CWPRS, Pune, which would function as the future nodalagency in training and maintenance of these equipments. The Integrated BathymetricSystem allows faster data acquisition with better accuracy.

The TA has guided the introduction of novel equipment like automatic water level recorders,ADCPs and the Integrated Bathymetric System for reservoir sedimentation survey and in thedesign of bank operated cableways for measurement of flow.

The TA investigated the present forecasting practices in Brahmani and Baitarani river basins(Orissa) and outlined a modeling and telemetry system to improve the forecasting system. Similaractivity was undertaken for the Tambraparani river basin in Tamil Nadu.



Groundwater monitoring network

The main objective of the groundwater component of the HP has been establishing therequired infrastructure for improving the understanding of groundwater systems, both interms of quantity and quality. The water level and water quality monitoring networks havebeen expanded and upgraded by replacing non-representative observation wells withscientifically designed piezometers. There were about 27,000 observation wells in theproject area before the project. Only 6% of these were tubewells while others were hand dugopen wells. These open dug wells were not owned by the agencies and were also notmaintained adequately. Under the project the network has been strengthened byconstructing about 7,900 dedicated piezometers. Piezometers are purpose-built, non-pumping observation wells that facilitate measurement of vertically averaged piezometrichead of a single layer. The piezometers have been designed to tap the selected layer.Piezometer design has made provision for sampling water from the tapped aquifer for waterquality monitoring.

Picture 5.3: Digital Water Level Recorder (DWLR)

The design of the network has been optimized by integrating the monitoring piezometers ofthe different agencies. The improved network has been designed to get a good spatial andvertical coverage, representation of all the hydro-geological set-ups, considering the presentand projected status of groundwater development and water quality variations. As many as6,400 piezometers have been installed with Digital Water Level Recorders (DWLRs) toensure measurement of undistorted piezometric head at the desired frequency (ranging from10 minutes to 6 hours). The high frequency and credible piezometric head data wouldenhance the technical information content of the data and also facilitate many new analyses.The improved groundwater monitoring network provides:

• long-term hydro-geologic information and groundwater quality data;

• characterization of different groundwater flow regimes;

• recommendations for regulations for using and conserving groundwater resources;

• a baseline for control of groundwater over pumping;

• information necessary for conjunctive use planning.

Different brands of DWLRs have been procured, viz. Greenspan, InSitu, M-squared, IRISand Unidata. Unfortunately, a large number of problems were encountered with theintroduction of the DWLRs. Some 40% did not function properly, if at all. Problems typicallyrelated to rapid exhaustion of the batteries, malfunctioning of the software, leakage andintermittent functioning for unknown reasons. Only one brand (InSitu) showed a low failurerate, while Unidata still had to manifest itself at the time of writing of the report.

EastaWf

The TA has put a large effort in the review and integration of the observation networks of the stateand central agencies. Manuals were drafted on the design of lithospecific piezometers and on thesupervision of piezometer drilling and a note on techniques for measurement of the reduced levelsof the observation wells was prepared.

A considerable amount of time throughout the Hydrology Project was spent in continuallyfacilitating and monitoring the procurement process of DWLRs, their testing, installation andoperation. Manufacturers were approached to discuss the flaws and solutions were proposed toimprove their equipment. Workshops on all aspects of DWLRs have been conducted. Documentson DWLR specifications, acceptance protocols, verification tests, operations and maintenancewere made.

All design, procurement, implementation, operation and maintenance aspects have beenincorporated in the HIS Design and Field Manual Groundwater, Volume 4.


Water quality monitoring network

xtensive networks for monitoring of quality of surface water (SW) at about 675 locationsnd groundwater (GW) at about 29,000 locations have been established by categorizing thetations into “Baseline”, “Trend” and “Flux”/”Surveillance” stations based on the guidelines ofhe World Health Organization. Frequency of sampling and water quality parameters to benalyzed for each category of stations have been defined and documented as “Protocol forater Quality Monitoring”, to unify the monitoring procedure of all the participating agencies

or comparable results.

The water quality monitoring situation in the states was in poor shape at the beginning of theproject. The TA has continually guided the agencies throughout the Hydrology Project in all facetsof water quality network design, site selection, equipment procurement and laboratory lay-outdesign and equipment installation.

The mandates of the agencies with respect to water quality monitoring were identified through aseries of workshops. Documents were drafted containing guidelines for network designcommensurate with the objectives. These were applied in a pilot study on network design,conducted for the Mahanadi basin, to demonstrate the use of the guidelines in practice.Specifications for monitoring equipment were drafted.

All design, procurement, implementation, operation and maintenance aspects have beenincorporated in the HIS Design and Field Manual, Volume 6 for surface water and groundwaterquality monitoring.


5.3 Management of historical data

State and central agencies have maintained observational networks for many years andvoluminous records are held, the majority on manuscript or chart records, which are notreadily accessible for use and are of variable quality. A program of historical data entry hasbeen established in each agency holding such data. This program includes that first thehistorical data of the immediate past ten years are entered and processed and subsequentlygoes step-wise in time, at a pace which does not hamper the timely handling of current data(which always must have priority).

Picture 5.4:Historical Data

The TA developed an approach to systematically inventorise data availability and to plan the entryand processing of historical hydrological data, thereby prioritizing the handling of the current data.On-the-job assistance was given to the agencies to carry out the inventory and to plan theactivities.

The TA has persistently stressed that, notwithstanding the enormous value of the historical data,the first priority is to be given the current data to ensure that these are entered, validated, andstored effectively so that sufficient experience could be gained under the Hydrology Project in theexecution of the day to day HIS activities.


5.4 Data collection and sample analysis

The observations at the network stations/wells are taken manually or automaticallydepending upon the type of instrument available at the station. Measuring frequencies aretuned to the variability of the processes observed and use of the data.

Observations are entered in standardized forms or are stored in data loggers. At monthlyintervals the data are transferred to the Data Processing Office for entry in the computer andprimary validation. A suitable number of trained Supervisors, Technicians, Observers,Helpers etc. are engaged and materials are provided at the observation sites for carrying outday-to-day data collection work and also for regular maintenance.

Picture 5.5: Observation practices

Water quality samples are analyzed at the water quality laboratories using StandardAnalytical Procedures (compiled by the Consultant) and equipment. Laboratory results areregularly reviewed through Analytical Quality Controls within and between the agencies.

Picture 5.6:Water Quality Analysis



Basic sampling principles are discussed in Volume 2 of the HIS Design Manuals for SurfaceWater and Groundwater. The data collection procedures carried out in the HIS arestandardized and documented in Volumes 3 to 6 in the HIS Field Manuals for Surface water,dealing with hydro-meteorology, hydrometry, sediment transport and water quality, andVolumes 3, 4 and 6 for Groundwater, covering hydro-meteorology, geo-hydrology, and waterquality sampling. The water quality analysis procedures for surface water and groundwaterlaboratories are standardized and are dealt with in Volume 7 of the HIS Design andOperation Manuals for Surface Water and Groundwater.

The procedures as listed out in the manuals are in concurrence with WMO and ISOstandards as far as applicable to the conditions in Peninsular India. The techniques havebeen embedded in the training courses for the staff complying with their job descriptions.Application of the procedures ensures uniformity in observing the hydro-meteorological,surface and groundwater quantity and quality variables according to the standards.

5.5 Data processing, analysis and reporting

Data processing is a broad term covering all activities from receiving records of observedfield data to making them available in a usable form. The field data are in a variety of formatssuch as hand-written records, charts and digital records. Data as observed and recordedmay contain many gaps and inconsistencies. To obtain reliable data and to arrive at usefulinformation it is essential that these observed data are passed through a series ofoperations, typically:

• Data entry

• Making necessary validation checks

• Filling-in missing values in a data series

• Processing of field data to estimate required variables

• Compilation of data in different forms

• Analysis of data for commonly required statistics, etc.

The TA developed the HIS Design, Field and Laboratory Manuals mentioned, specifying therequired measurement procedures, data collection practices and laboratory analysis procedures.

Training documents have been developed incorporating the procedures and practices (includinga.o. Protocols for Water Quality Monitoring), which subsequently became the basis for trainingcourses. These training courses were either developed and presented by the TA (Water Quality) orby the agencies (NWA for hydrometry, IMD for hydrometeorology and RGI for groundwater).

Field inspections, to investigate the actual data collection practices and to suggest onimprovements, formed a regular activity of the TA.

Large input was given by the TA to Water Quality Laboratories by focusing through workshops andon-the-job training on the application of the Standard Analytical Procedures (compiled by theConsultant) to achieve better quality data. Demonstrations were given to the laboratory staff in theuse of the novel equipment.

The activities have strongly contributed to improved field and laboratory practices, also through theintroduction of an Analytical Quality Control program.


The data processing activities are accomplished with the help of dedicated hydrological dataprocessing software. Appropriate control on the continuity of the data flows is to be carriedout, to make sure that the number of data values produced by the system match with therequirements.

Picture 5.7: Data processing centre (Andhra Pradesh GWDPC)

Of particular importance is assuring the quality and reliability of the data provided to usersthrough the application of a variety of validation procedures and the flagging of suspect data.The user must be informed of the quality of the data supplied and whether the values areestimated or actually observed. In this respect also the importance of inter-agency validationis to be mentioned, as the observation networks are complementary. Using each other’sdata for validation and eliminating inconsistencies will strongly contribute to improving thequality of data.

Annual reports are prepared to bring out the salient characteristics of the hydrological regimeof the region for each year or season. Special reports are also envisaged as and whenrequired for attracting the attention of the users towards unusual events, major changes inthe hydrological regime or to disseminate important revised long term statistics regularly.

Picture 5.8:State Data Processing Centre,SWDPC, Maharashtra

Uniform data processing procedures have been introduced throughout, which are describedin detail in Volume 8 of the HIS Operation Manuals for Surface Water and Groundwater. Themanuals describe data entry, primary validation, secondary validation, final processing,analysis and data management for all observations collected in the HIS.

To execute the procedures documented in the Manuals comprehensive and user friendlysoftware packages have been developed and implemented, viz:

1. Hydro-meteorology and Surface Water:• SWDES, for entry and primary processing of water quantity and quality data• HYMOS, for full data processing, analysis and reporting activities

2. Groundwater:• GWDES, for data entry and primary processing of well data• WQDES_GW, for entry and primary processing of water quality data• GEMS, for groundwater data processing and analysis

The dedicated softwares SWDES, GWDES and WQDES_GW were developed by theConsultant, whereas the WL|Delft Hydraulics’ software package HYMOS was introducedand adapted to the HIS requirements. TIL developed the GEMS under the project. ExtensivetaH

AM llrrtt(

P

raining courses have guided the introduction of the softwares. To ensure sustainability, annnual maintenance contract will be signed with WL|Delft Hydraulics for SWDES andYMOS and with TIL for GEMS.

t late stage in the Project the groundwater data processing systems GEMS developed by/s Tata Infotech, became available. Hence, a thorough introduction of the system to a

elevant levels in the HIS did not take place. It is anticipated that another two years will beequired for debugging of the software and ongoing support of the recipient agencies. Araining forms part of the software contract. This training has to be properly embedded in theraining strategy developed under HP, while a group of in-house trainers should be trainedToTs) to sustain and support the large group of potential users of GEMS.


icture 5.9: Data processing with HYMOS


Under the Project the participating GW agencies began to procure GIS data sets at 1:50,000scale, ultimately to cover the entire project area. These GIS data sets include landuse andland cover, geology, geomorphology, soil, transport network (road and rail), drainagenetwork, contour and spot elevation, and administrative boundaries upto block level andsettlements. For this procurement States signed a Memorandum of Understanding (MOU)with authorized government agencies, including ORSAC (Orissa), KARSAC (Karnataka),MRSAC (Maharashtra), Chhattisgarh Infotech Promotion Society (CHIPS, Chhattisgarh),Kerela State Landuse Board (Kerela) and Anna University (Tamil Nadu) and GSI(Andhra Pradesh).

Training programmes for quality checking and quality assurance (QC/QA) and evaluation ofGIS data sets were conducted by the Consultant. The delivery of GIS data sets was stillongoing in June 2003. The GIS data sets will be of great value for the groundwaterdepartments, a.o. for Groundwater Resource Assessments with the GEMS system, whilepart of these data sets will also be used by the SW-DPCs.

5.6 Data exchange

Data processing activities are carried out at more than one level within each agency and thismakes it essential to have adequate data transport/communication links between them. Therequirement for communication is based on a low frequency and high volume of

The TA assisted the agencies in the design of the data processing centers. The layout has led tosemi-open spaces, allowing for concentration but also easy exchange between the staff of thecenter.

The TA developed a comprehensive set of HIS Operation Manuals for entry, processing andanalysis of hydro-meteorological, surface and groundwater quantity and quality data, covering alltasks to be executed at the various levels to arrive at high quality data. Protocols for the applicationof these manuals were introduced, in which also interagency validation is emphasized. The TA hasintroduced a new style of hydrological yearbooks, focusing on changing characteristics of thehydrological regime of the region and emerging critical trends.

Specifications have been drafted for all the hardware and software to be used in the centers fordata processing. The TA developed dedicated data entry and primary processing packages for theSurface Water and Groundwater agencies: SWDES, GWDES and WQ_DES, which are coveringall data entry and primary processing activities. The TA fully tuned the WL|Delft Hydraulicssoftware package HYMOS for advanced surface water data validation, processing and analysis, tothe requirements of the HIS. The software systems were well received and have found large-scaleapplication, following extensive training courses and workshops on software operation andbackground of procedures at various levels.

Continuous support has been given to the development of GEMS to provide the necessary domainexpertise that was lacking with the developers.

From the HIS Operation Manuals a consistent set of training modules has been derived withnumerous examples for using the software covering all aspects of data entry, processing, andanalysis. As part of the training program a selected group of trainers was trained and subsequentlyguided in conducting courses for advanced data processing. The approach has created anenthusiastic and skilled faculty, which is able to provide training courses in the future, aprerequisite for the continuation of the application of uniform data processing procedures.Overseas training courses for hydrologists of the data processing centers and study tours forsenior staff have been organized to familiarize them with international HIS practices.

The implementation of the manuals, software systems, training modules and training courses hascreated uniformity in data processing all over Peninsular India, up to the highest standards.


communication. There is need for exchange of information between various agencies for thepurpose of data validation as surface and groundwater networks are operated by differentstate and central agencies.

The communication structure implemented under the Hydrology Project is based on thestructure of the HIS, which is described in Annex 1, and the activities taking place within theHIS. Data transport and exchange takes place at the following levels:

• within an agency to transfer the data:

− from the field and laboratories to the processing centers

− between the data processing centers

− between the data processing centers and the data storage center

• between state and central agencies via the data storage centers

• between data storage centers and hydrological data users.

Data transfer from the field to the data processing center is by post/hand carried, onstandard forms or on magnetic media read from data loggers at the station/well. Between thedata processing centers, field and processed data is transferred via e-mail, FTP and/orphysical media (diskette, CD) by mail. The State Data Processing Center and Data StorageCenter use a LAN for their data transfer. Between the state and central organizations datatransfer is by e-mail, FTP and/or physical media (diskette, CD) by mail.

Hydrological data users have only access to authenticated hydrological data and not to thefield data. For search and selection of the required data a Catalogue is made available. TheCatalogue comprises the meta-data and a search and selection engine (browser) which canbe approached through the Internet. The result of a data selection session is a generateddata request file, which can be submitted to the specific data custodian Data StorageCentre(s) through email or by post/hand carried on physical media. If the user’s authorisationlevel so allows the data request is run on the database and the results are made available tothe hydrological data user via email or on diskette or CD by post.

5.7 Data Storage and dissemination

All available data sets are maintained in well-defined computerized databases using anindustry-standard database management system. This is essential for the long-termsustainability of the data sets in proper form and their dissemination to the end users.

Both, field and processed data sets are properly stored and archived to specified standardsso that there is no loss of information. There is flexibility for data owners to decide usereligibility for data. Once eligibility is decided all agencies apply standard procedures for thedissemination of data to the users from the computerized databases.

From the very beginning of the Hydrology Project the TA closely followed and tested variouscommunication means and has documented feasible options for intra and inter- agency datatransfer, taking in view the rapid developments taking place in this field. Specifications forcommunication equipment and the data exchange procedures were drafted.

The TA incorporated the data exchange procedures in the processing phases in the HIS OperationManuals and embedded them in the Protocols for Surface Water and Groundwater.


Picture 5.10: Data processing and storage centres(left: Madhya Pradesh, right: Gujarat)

The type of data stored in the database includes:

• Geographical and space-oriented data, i.e. static or semi-static data on catchmentfeatures, hydraulic infrastructure, aquifer dimensions and characteristics

• Location-oriented data, including static or semi-static data of the observationstations/wells and hydraulic structures

• Time-oriented data, covering equidistant and non-equidistant time series for all types ofmeteorological, climatic, water quantity, quality and sediment data

• Relation-oriented data on two or more variables/parameters used with respect tometeorological, climatic, water quantity, quality and sediment data.

Picture 5.11: State Data Centres (left: Maharashtra, right: Tamil Nadu)

Volume 9 of the HIS Operation Manual describes the data transfer, storage anddissemination procedures applied in HIS. Dedicated database and data transfer anddissemination software (WISDOM) has been developed by M/s Rolta. This software systemhas been introduced in all Data Storage Centres, creating uniformity among the centres. Anannual maintenance contract with M/s Rolta was concluded to ensure proper performance ofthe system in the future.

5

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The TA assisted the agencies in the design of the data storage centers, with special attention to

.8 Institutional and human resources development

ociety will continue to require information on hydrological processes to enable betterlanning of development. In fact, the inexorable shift to a situation of water crisis drawsver-increasing attention to the need for effective and efficient development and use of watersources in tune with demographic, economic, and environmental pressures. Of course, theIS is not a new system in the sense that it introduces a new activity – data on water andlimatic events have been recorded for over 100 years in many locations. What the HP hasone is to upgrade the system of data collection and processing by making use of modernchnology and insights. It is of utmost importance that the institutional strength required fore HIS, which has been created under the project, is maintained and enhanced in theture.

he development of institutional and human resources was given due attention to arrive at austainable HIS. Activities included:

Design and implementation of physical infrastructure of HIS

Identification and development of human resources

Protocols for HIS operation

Establishment of HIS supporting and coordinating bodies

Promotional activities

Cultural assessment workshops.

HIS physical infrastructure

he HIS functional infrastructure is described in Annex 1. This structure was adopted by allgencies in the December 1996 Workshop on HIS. The design and implementation andperation of the physical infrastructure has been presented in the previous sub-chapters.roper maintenance strategies and required budgets have been documented and discussedith the concerned HIS managers to ensure sustainability.

their interaction with the data processing centers.

Detailed specifications were made for the data storage center hardware and software.Continuous and extensive support was given to M/s Rolta in developing the data storage anddissemination software to the required HIS standards. Inspection reports have been produced onthe software and hardware installation.

The structure of the Data Storage Center, the database and the interaction with the users waslaid down in Volume 9 of the Design Manual. The operational procedures, describing in detail theday to day activities as well the maintenance, were drafted and have been incorporated in theHIS Operations Manual, Volume 9.



Human resources development

Once an agreement was reached on the HIS structure, staff requirements were identified and jobdescriptions made. Staff requirements, their tasks, minimum education requirements andoccupation are dealt with in Volume 1 of the HIS Field Manual, Part I: “Job descriptions” for all staffin the HIS. Based on this, recruitment and posting could take place in pace with the implementationof the physical infrastructure.

An extensive training program has been set up and implemented under HP. It envisaged to ensurenecessary skill building and provide training to all the personnel involved at different levels invarious activities of the HIS. A whole range of subjects, issues, and activities was covered underthe training program that includes training courses (see Annex 6) covering aspects such as:

• Observation practices on hydrological and allied data

• Standard water quality sampling and analysis procedures

• Analyses of pollution related parameters

• Basic know-how for working on computers

• Surface water, groundwater and water quality data entry procedures

• Surface water, groundwater, and water quality data processing and interpretation usingdedicated software

• Geographical information system

• Database management systems including aspects of latest information technology

• Sophisticated equipment and installations like DWLRs, ADCPs, AASs and GCs etc.

• Procurement procedures for equipment and other infrastructural facilities

• Installation and acceptance protocols for specialized equipment

• Training and communication skills for in-house trainers

Most of these training courses have been institutionalized through the services of a few designatedCentral Training Institutes (CTIs). Courses were developed and refined by the in-house facultymembers of such institutions and the Consultants to the project. A three-pronged approach wasadopted for imparting training to a very large number (about 9,000) of trainees on a variety ofissues as mentioned above. A concept called “training of trainers (ToT)” was employed, by which acore group of a substantial number of motivated officers of each state and/or CTIs were trained.These would then conduct further training courses for the actual trainees with or without the help offaculty members from the CTIs or the Consultants. After the formal training courses the traineeswere further assisted at their own working place through so-called hands-on-coaching sessions.

To ensure uniformity and standardization in transfer of knowledge and delivery of training courses,comprehensive training modules (see Annex 7) have been prepared, covering the course contents,exercises and presentation material. Scores of training courses have been conducted regularly bythe CTIs and the Consultant throughout the project period. Central training institutes (NWA, NIH forSW, and CGWB for GW) with their faculty, trainers, and training managers, are now able to initiate,deliver, and further develop advanced HIS training in response to the present and newly emergingneeds. These CTIs will continue to provide training facilities after the project ends, especially toaddress the problem of frequent transfers of trained staff members out of the project area.


Picture 5.12: Training session on SWDES

National co-ordination is required to stimulate working contacts between training providersand beneficiaries, sharing of training experiences, further development of training resourcesand capacity, standardise technical module contents, introduce new developments in HIS incurricula, and to channel information on training progress to the Technical Secretariat andNational Help Desk.

Protocols

HIS supporting and co-ordinating bodies

The following bodies have been established to coordinate and support the implementation ofHIS during the HP:

• National Level Steering Committee (NLSC), being responsible for the coordination of theactivities of the implementing agencies

• Project Coordination Secretariat (PCS), the secretariat of NLSC, for day-to-daymanagement of the coordination of project implementation

• State Level Coordination Committees, responsible for the coordination of theimplementation at state level

TA objectives were not defined in terms of training deliveries and achievements, but in establishinga professional network of HIS training institutes and in-house training capacity. Notwithstanding,the Consultant also played an active role in course development, module production and coursedelivery. This helped to keep the momentum in training activities. The future custodian of waterquality training for HIS has not yet been appointed, though Consultants have proposed to chargeCPCB with this task.

Protocols have been laid out for different offices for maintaining timeliness in exchange of data anduniformity in the procedures to be employed for monitoring, data entry, validation, processing andanalysis. Workshops have been conducted for approval of the protocols, to provide due recognitionand authenticity to enhance sustainability of the HIS.

• High Level Technical Group for Surface Water and for Groundwater, dealing with thetechnical approvals for equipment, and computer hardware and software

•

•

Updpth

•

•

•

•

•

•

•

•

OAefu

National Level Training Committee, responsible for the scheduling and implementationof training programs

Hydrological Data User Groups, established at state and central level to reviewhydrological information needs

nder normal circumstances most of these arrangements would cease to exist after theroject is completed. However, continued co-ordination and co-operation is essential for aistributed information system such as the HIS to be able to function. Therefore, the TA hasroposed the following supporting and coordinating infrastructure to ensure sustainability ofe HIS after the completion of the Hydrology Project:

National Level HIS Coordination Committee: to operate as a policy level coordinatingforum between the nine states and the central agencies.

State Level Coordination Committee, in which the HIS operating agencies arerepresented to act as an HIS forum at state level.

HIS Coordination Secretariat, a fully equipped, centrally located secretariat, whichextends technical assistance to the National Level HIS Co-ordination Committee. TheHIS-CS will take over from the TA Team the task of responding to issues of varyingnature and complexity directly or through National Data Centres and Central Helpdesks.It also takes over the activities of the HLTG.

HIS Help Desks at each NDPC and SDPC to provide support to the HDUs in retrievingand interpreting data from the database.

National Level Training Committee, in which the National Water Academy and theCentral Ground Water Board are represented to co-ordinate the scheduling andimplementation of the training programs.

National Level WQ Assessment Authority, with legal mandates for promotingstandardization of procedures for water quality monitoring, with support from the HIS-TS.

State Level WQ Review Committees to review the implementation of the standardizedWQ monitoring and analysis procedures.

Continuation of the Hydrological Data User Groups to review hydrological informationneeds.

f these entities, only the continued functioning of the HIS Helpdesk, the National Level WQssessment Authority, State Level WQ Review Committee and the HDUGs has beennsured. It is imperative that the GoI undertake a formal obligation to continue thenctioning of the other entities.


Promotional activities

HIS has been promoted at various levels

• At decision making level: One of the key determinants of the sustainability of the HIS is thecontinued budgetary and management support by the higher-level decision-makers. A widerange of activities covered under this aspect included building and maintaining congenial publicrelations, providing media visibility to HIS activities, creating awareness regarding the presentand potential utility of HIS, publication of newsletters, lobbying for staffing and initiating microlevel changes in organizations etc. In the post-project scenario, all of the above and manymore similar activities are to be taken up or promoted by the National Level HIS CoordinationCommittee.

• At HIS managerial level, by conducting HIS operationalization workshops, Water QualityMonitoring System operationalisation workshops, and HIS management workshops forenhancing ‘personal effectiveness’. The operationalization workshops involved a series ofregional/divisional-level workshops addressing management issues and shaping attitudes forthe field and middle level staff, related to Monitoring Quality Control of the generated data. Theworkshops focused on creating awareness amongst and commitment of the staff regarding theHIS. Annual cycles of these workshops should be repeated in all agencies as part of the post-HP training calendars, to ensure continuous commitment of the staff. Effectiveoperationalization of the HIS calls for a quality conscious and time efficient work ethos. This isthe key to make HIS sustainable in the long run. The TA organized a series of ‘personaleffectiveness’ workshops for apex level HIS managers and similar workshops for second-tierHIS managers.

• At HIS technical level: on various occasions, while developing the HIDAP, throughout thevarious training programs under HP, and in the on-the-job training.

• Promotion of user interests and State level HDUGs. Long-term sustainability of a demanddriven HIS will be achieved by promoting stable internal systems, and inducing supporting,external pressures on the implementing organizations.

The TA used a combination of these two approaches in a balanced manner. Promotion of stableinternal systems included developing uniform guidelines and standard procedures for datacollection, processing, exchange, storage, communication etc. supporting, external pressurescomprised a range of activities such as activating state level hydrology data user groups (HDUG),creation of user awareness, making an inventory of HIS data needs in various sectors, anddemonstrating the utility of the HIS data for various purposes.

• For creating a greater awareness on water issues among opinion makers and media, a‘lifestyle event’ was conceptualised. The week long event, ‘Jal-Utsav’ – A Celebration ofWater’, aims at ‘re-positioning water’ as an issue which is desirable to be associated with. TheWorld Water Day Falls on March 22, 2003 and to maximize the visibility of water issues, Jal-Utsav, is scheduled to take place around this day. In this context, a multi-dimensional eventfocusing on creative interpretation of water through seminars, art forms, launch of website,etc., had been visualized.

• Also, two videos on the HIS have also been completed, one aimed at the general public andanother for government departments and water resources practitioners. The films are used forpromoting and prominently positioning the HIS.



Cultural assessment and change management

5.9 Overseas training and study tours in the Hydrology Project

Under the GoN funded Technical Assistance, programmes were undertaken for OverseasStudy Tours and Training. The main purpose of these programmes was to provide anopportunity for senior (hydrology) professionals working in the project, to familiarisethemselves with international standards of Hydrological Information Systems. More than theoriginally proposed targets have been achieved, through careful and economic planning ofthe tour and training programmes.

A crucial question is whether the staff who participated in the OTT programmes are stillactively involved in project activities in positions they occupied when they were nominated.Results of the tracer study, as tabulated below, confirm the present postings of theparticipants. It may be noted that post-OTT transfers outside the HP are rare in thegroundwater departments. In surface water departments the loss of OTT traininginvestments, because of transfers, is more apparent.

Most recently, the TA has conducted cultural assessment workshops in a number of betterperforming agencies. The objective of these workshops was to address operationalization issuesrelated to organizational culture. Prior to introduction of the HIS, hydrological data collection,processing, and dissemination was influenced by then existing technical, administrative, andcultural conditions. This included inter alia the instrumental rather than systematic approach tohydrological data (in surface water), a proprietary attitude to the data collected, a lack ofcommitment to data quality, absence of user orientation, a low regard for hydrology postings andresultant lack of management continuity (in surface water). Of the well-known seven factors fororganizational excellence (McKinsey’s 7-S Model), the main activities of the TA throughout theproject have focused on the “hard factors” viz. structure, strategy, and systems. The purpose ofthe cultural assessment workshops was to address the “soft factors”, viz. staff, skills, style, andshared values. The workshops succeeded in getting the participating organizations to developmission statements together with objectives related to observed drawbacks to excellence (e.g.staffing, administrative requirements), and formulated action plans to deal with the issuesidentified.

List of tours:

• 4 tours for general learning on the implementation and institutionalization of an HIS, with adomain specific focus (NL, UK, USA).

• 1 tour for observing a functional concept of Integrated Water Resources Management(Taiwan).

• 1 tour for understanding the principles of HIS management (UK).

• 3 domain specific training programmes, to enable DPC staff to handle the data processingfunction (NL).

The TA consultant team carefully crafted all of the above events. Even though every event wastailor made, each followed the training development cycle, starting with a needs analysis andending with taking corrective actions resulting from the participants’ evaluation. Coordinating all thelogistical aspects turned out to be very time consuming; every event required painstaking precisionand continuous monitoring of the new developments that would happen on the turn of each day.This TA activity has had a very successful participation and the acceptance of learning was alsohigh.


Overseas study tours:

Batch Sector Date Location Active

in HP

Out

of HP

1 GW 12 Oct. – 26 Oct. 1997 The Netherlands and UK 6 4

2 SW 19 Oct. – 02 Nov.1997 The Netherlands and UK 3 9

3 SW 07 Nov. – 21Nov.1999 France, Germany & The Netherlands 3 7

4 GW 15 Jan. – 30 Jan.2000 USA 6 5

5 SW 21 Jul. – 03 Aug. 2002 Taiwan 9 2

6 SW & GW 08 Sep – 21 Sep. 2002 UK 18 0

Total 45 27

Overseas postgraduate training

1 SW 25 May – 26 Jun. 1998 IHE, The Netherlands 7 4

2 GW 07 Sep. – 09 Oct. 1998 IHE, The Netherlands 12 0

3 WQ 26 Oct. – 27 Nov. 1998 IHE, The Netherlands 13 1

Total 32 5

Table 5.1: HP Tracer records for overseas study tours and post graduate training



6 Achievements

6.1 General

In the early years of water resources development in India, projects were formulated to servelargely irrigation requirements or irrigation combined with hydroelectric power generation.As the projects were few, inter-project considerations were absent and each projectgenerally was investigated and planned as an independent item. Generally, no plans weremade for long-range development for integrated use of water resources. As a result,hydrological data collection with respect to surface water remained limited to the specificproject sites.

In contrast, groundwater development depends on the extent of the aquifers, which mayrange far beyond the immediate area of extraction. Therefore, groundwater data has in mostplaces always been collected on a system-wide basis, i.e. reflecting depletion and rechargeof entire (inter-related) aquifers.

Demographic and development pressure has resulted in ever more projects being identified,and this has resulted in the recognition of the need for comprehensive strategic planning forintegrated use of water resources. The National Water Policy enunciates the ensuing needto establish suitable mechanisms for coordinating river basin development. A keyrequirement for coordination was identified as collection and free exchange of hydrologicaldata by the different agencies concerned.

The HP has achieved the potential for integrated hydrological data collection, as it gave thestart to collecting also surface water data from a system rather than project perspective.Moreover, it has provided arrangements for integrated analysis of all relevant data (surfacewater, groundwater, and meteorology), and established vastly increased coordinationbetween the related agencies.

6.2 Standardized systems, networks and procedures

The concept of advanced levels of data processing and analysis was not entirely new tomost of the institutions involved in the HP. However, in the ‘pre-project’ system there werewide variations in data collection, analysis, and storage practices within and between statesand agencies. Requisite hardware and software was lacking. Under HP, the data collectionnetwork, comprising field stations and laboratories, has been vastly improved. Almost allorganizations report near 100% target completion in this respect.

The HP monitoring network is distinctly different from the ‘pre-project’ system of datacollection mechanisms, both in terms of quality and spatial distribution. The noteworthy gainsin the area of data collection for monitoring have been:

a. optimization of network within the agency and integration of monitoring networksbetween different agencies operating in the same domain; upgrading of domain-specificmonitoring networks;

b. introduction and operationalization of high-frequency, error-free data collectionmechanisms;

c. establishment of a water quality monitoring network within the GW and SW domains; and

d. introduction of standardized measurement methodologies and techniques.


% of Target completion in Surface Water 31 December 2002

0

20

40

60

80

100

120

AndhraPradesh

Chhattisgarh Gujarat Karnataka Kerala MadhyaPradesh

Maharashtra Orissa Tamil Nadu CWC

River Gauging Sites Meteo Stations WQ Labs I WQ Labs II/II+ Buildings Computers Vehicles

Graph: 6.1: % of target completion in Surface Water

% of Target completion in Ground Water31 December 2002

0

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60

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100

120

AndhraPradesh


Maharashtra Orissa Tamil Nadu CGWB

Wells Labs II/II+ Buildings Computers Vehicles

Graph 6.2: % of target completion in Groundwater

Operational status of DWLRs

888

25

666

500

304

540

1136

385

723

1200

863

24

525500

304345

173 165

318

751

0

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AndhraPradesh


Maharashtra Orissa Tamil Nadu CGWB

Planned Operational

G

Uofshco

Thatceupman

Phibewdaalcein

raph 6.3: Operational status of DWLRs

nder the HP 97% of the target of 6,367 wells have been equipped with DWLRs. Only 62%


the installed DWLRs was operational as on June 2002. A total number of 2,399 DWLRsowed defects. As a result the operational status of DWLR-equipped wells is stillnsiderably lacking in most states.

e HIS is a so-called distributed system, comprising 390 data entry and processing centers various levels and 31 data storage centers at the apex levels at each of the states andntral agencies. A key accomplishment has been the establishment of active, logical and-to-date links between these different locations for data collection and processing. The

ultiple sets of data now make possible a series of well-defined validation exercises withind between these centers, including systematic inter-agency data exchange

re-HP, limited data processing capacity had resulted in a large quantity of unprocessedstorical data in the form of paper records. This had caused an unmanageable time lagtween data collection and analysis. Moreover, the potential for analytical use of the data

as hampered by the fact that the data had not been validated. Under HP, this historicalta has been converted into computer compatible formats, in the process of which it has

so been validated. This vastly improved data is now easily accessible in the data storagenters, where it has now become a reliable source for trend analysis and historicalterpretation of current data.

The TA team produced HIS design, field operation and reference manuals. The modules compriseten volumes each for Surface Water and Groundwater, covering all operational, maintenance, andmanagement aspects of the HIS. This voluminous documentation of ‘what and how’ of the HIS in asequential and ‘easy to refer to’ format has been designed under the TA to enable the institutionsto operate and manage the HIS on an ‘error free’ and sustainable basis. This Manual, along withother documents, is being made available on the Internet through an HIS resources database.

There was only sporadic data dissemination in the system existing before HP. The HISestablished under the Project introduced the concept and practice of systematic and‘demand linked’ data dissemination. In all states and agencies, Hydrological Data UserGroups exist to provide feedback to the agencies regarding the desirability and quality ofdata, and procedures have been established for interested parties to become authorizedusers in the system. In this capacity, they have access to the data through the data storagecenters.

6.3 Staffing

Operationalization of the HIS has involved a significant increase in the number of staff.Although a large number of observation sites existed prior to HP, this was largely inoperable.Little data was being collected for processing, as a result of which even the data that wasbeing collected showed many gaps and could not be validated. This lack of effectiveoperation of the system contributed to staff being reassigned to other duties, as a result ofwhich system performance further declined.

The improvements undertaken in HP could not have been possible without significantadditional staff numbers at all levels.

The governmredeploymentorganization positions.

0

20

40

60

80

100

120

An

dh

raP

rade

sh

Graph 6.4:

The TA team produced an extensive set of job descriptions and proposed manning schedules forall element ing sites (field stations and laboratories), dataprocessing try anor data stor

s of the system, be they monitorfacilities (points for first-level data enage centers

Final Report (June

ent agreed, that as a rule, relev. However, the possibility was left ophad no qualified staff available for re

% of Incremental Staff filled up (St31 December 2002

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Karn

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% of incremental staff filled up (State

d validation and higher-level data collation),

2003) Page 51

ant posts would be staffed throughen for external recruitment in case thedeployment to the relevant (specialist)

ates)

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u

s)


A notable difference was observed between the ground and surface water organizations interms of enthusiasm of personnel to accept assignment to HIS positions. Whereas theformer organizations are more scientifically oriented towards hydrology, the latter have a civilengineering/physical implementation orientation. It could thus be observed, thatgroundwater staff understood better the benefits of the improvements made by the HIS, andsaw these as meaningful developments in their existing jobs. Hence, they were more eagerto accept HIS postings. In contrast, the number of surface water staff that recognized theHIS as a positive personal challenge was very small and postings, whether to field stationsor to data centers, were often actively avoided. Nevertheless, eventually most hydrologyorganizations were able to position adequate numbers of staff to the different points in thesystem, with exception of the specialist staff (data processing and WQ experts).

% of Incremental Staff filled up31 December 2002

0

20

40

60

80

100

Professionals Specialists Others

A matter of some contention has been the agreement-in-principle by the government thatspecialist staff for positions requiring qualifications not available within the organization couldbe recruited from the outside. This pertained especially to the professional-level waterquality and information technology positions.

In the face of a general government-wide ban on recruitment, most agencies were unable tocreate the necessary positions and recruit the relevant staff. Eventually, a solution wasfound in re-training staff in order to bring them to the approximate qualifications requiredunder the HIS job descriptions, or to employ specialist staff from outside the government ona contractual basis. However, many of these positions remain unfilled or filled with under-qualified staff.

6.4 Human resources development

One outstanding and most visible gain from the HP has been extensive skill building of HISstaff across levels. Over 10,000 people at the top, middle, and field level have been trainedin HIS concepts, methods, tools, techniques, and applications.

% of Incremental Staff filled up Central Agencies

31 December 2002

0

20

40

60

80

100

120

CWC CGWB CWPRS IMD NIH

Graph 6.5: % of incremental staff filled upCentral Agency Graph 6.6: % of incremental staff filled up

Training Progress - Surface Water All States and CWC 31 December 2002

0

2000

4000

6000

8000

10000

12000

14000

16000

18000

20000

Data collection96%

WQ SW Datacollection

94%

Data entry &Processing

88%

HISmanagement &IT

84%

Basic comp. &MS training

84%

PG training &Study tours

88%

HP workshops,seminars etc.

99%

Grand total 92%

No

. o

f P

art

icip

ants

Targets Achievements

Graph 6.7: Training progress – Surface Water (All states and CWC)

Training Progress - Groundwater All States and CGWB

31 December 2002

8000

10000

12000

14000

tici

pan

ts

For long-term sustainability of human resources development, the TA team has establishedcontacts between the implementing HIS agencies and central training institutes (CTIs). CTIs aregenerally dominant organizations on the relevant domain, e.g. IMD, NIH, and NWA. The TA hasdeveloped documentation of standardized training curriculum and reference material (WQ,GWDES, SWDES, HYMOS, GW application software, data storage software) for current use andfuture reference, which have been some of the most important gains of the HP. The TA has alsointroduced the concept of training of trainers (TOT), through which a core group of over 300 in-house trainers has become available within the implementing agencies themselves (113hydrometry, 60 WQ, 15 each SWDES and HYMOS, 70 GW, 30 GWDES).

The TA has not been involved in voluminous training of field-level staff. However, HIS operatorstaff (data entry, validation, etc.) and water quality staff have been trained by the TA.

4000

6000

No

. o

f p

ar

Final Report (

0

2000

Data collection92%

GW-WQ Datacollection 94%

Data entry &Processing 74%

HIS management& IT 84%

Basic computer &MS training 96%

Target A

Graph 6.8: Training progress – Groundwater

June 2003) Page 53

PG training &Study tours

91%

HP workshops,seminars etc.

96%

Grand total 89%

chievements

(all states and CGWB)

6.5 Institutional strengthening

Institutional strengthening, here defined as establishing the capability and capacity of therelevant organizations to maintain and operate the HIS, and to interact with the data userson the same, has been pursued in HP through investment in the above mentionedestablishment of system sites, the provision of equipment, and related positioning andtraining of staff.

The ultimate test of HIS performance is whether data is flowing from the sites to the dataentry centers, from there through the different collation points to the data storage centers,and ultimately is disseminated to and appreciated by the users. All establishment of physicalfacilities, equipment, and training is focused on this objective.

The TA has been extensively engaged in gauging the impact of establishing the HIS in the relevantorganizations, and the requisite changes in individual and organizational behavior to ensuredemand-oriented HIS operation. The TA has developed standard procedures for data collection,analysis and storage, which have been formalized in the form of HIS protocols. These procedureshave been accepted and translated into uniform institutional practices across states and agencies.For the Hydrology Data User Groups the TA has formulated appropriate terms of reference andsample agendas to ensure meaningful contact between the HIS agencies and the prospectiveclientele.

A large number of operationalization workshops has been conducted by the TA at regional /divisional level to address managerial issues and shape attitudes of the field and middle level staffrelated to monitoring quality control. The workshops, which have focused on creating awarenessand commitment regarding the HIS, should become part of the annual post-HP training calendar toensure continuous commitment. To complement this activity, the TA has conducted HISManagement workshops for data center staff.

Final Report

Specialists: planned and achieved31 December 2002

48

10

3234

27

48

30

66

8

24

7

13

02

44

5

29

34

6

15

10

17

8 105

13

02

0

10

20

30

40

50

60

70

Andhra

Pradesh

Gujarat Kerala M aharashtra Tamil Nadu CGW B IM DNu

mb

er

of

sta

ff i

n p

osi

tio

n

Total Planned Total Achieved

Professionals :planned and achieved31 December 2002

46

95

23

46

26

104 104

72

55

73

5

103

13

41

86

23

44

26

81

60

72

39

62

5

55

13

79

68

0

20

40

60

80

100

120

Andhra Gujarat Kerala M aharashtra Tamil Nadu CGW B IM DNu

mb

er

of

sta

ff i

n p

osi

tio

n

With respect to data processing, an important firconstructed / upgraded for the data centers, andother relevant office equipment has been procurable to achieve close to 100% performance performance is less this is due to later decisioprocurement.

Graph 6.9: Specialist: planned and achieved

Pradesh


(June 2003) Page 54

st indicator is the whether offices have been whether equipment such as computers anded and installed. Most agencies have beenin this category. In most places wherens to reduce the level of construction and

Graph 6.10: Professionals: planned and achieved

Full operationality of the offices depends of course on the deployment of trained staff. In thisregard, a most important indicator is the deployment of professional and specialist staff.Oa ,fbas

Adg

a

b

c

d

Ti

a

b

c

d

e

G

verall, this indicator shows that most states and agencies have achieved near 100%chievement in the professional positions (i.e. staff with advanced diplomas and degreesunctioning in general aspects of the HIS). However, for the specialist positions (staff with aackground in information technology and water quality), only four states and CWPRSchieved close to 100% of their targets, whereas the other organizations fell considerablyhort.


% Completion of Buildings31 December 2002

0

20

40

60

80

100

120

AndhraPradesh

Karnataka Maharashtra CWC

number of tangible and intangible gains were made in the area of institutionalevelopment, while working around and through the existing constraints and limitations. Theains so far achieved include:

. establishing a national level WQ Assessment Authority

. establishing and activating unified (GW, SW & WQ) Data Storage Centers

. introduction of O&M procedures

. systematic inter-agency data exchange practices, etc.

Professionals :planned and achieved31 December 2002

46

95

23

46

26

104 104

72

55

73

5

103

13

41

86

23

44

26

81

60

72

39

62

5

55

13

79

68

0

20

40

60

80

100

120

Andhra

Pradesh

Gujarat Kerala M aharashtra Tamil Nadu CGW B IM DNu

mb

er

of

sta

ff i

n p

osi

tio

n


he gains mentioned above are some of the intermediate outputs of the HP. Thesentermediate outputs will contribute to:

. improved dissemination of the HIS data to a wide variety of users;

. optimizing investments in the water sector;

. improved water resource planning and management at the regional, state, and nationallevel;

. ensuring more equitable distribution of water resources; and

. enabling the administrators and decision makers to respond to extreme situations(drought, flood) in a more responsible and efficient manner.

raph 6.11: Completion of building

Graph 6.12: Professionals: planned and achieved


With respect to the system itself, the conditions for sustainable operation of the HIS involvedthe permanent establishment of a Hydrology Unit with a clear mandate for data monitoring,processing, and dissemination (including for water quality), the provision of a separateannual routine budget line for O&M, and the establishment of a helpdesk.

Surface WaterIndicator

CWC AP CHH GUJ KAR KER MAH MP OR TN

GO on HIS unit

WQ mandate

HIS Budget

Helpdesk

GroundwaterIndicator

CGWB AP CHH GUJ KAR KER MAH MP OR TN

GO on HIS unit

WQ mandate

HIS Budget

Helpdesk

To further enhance sustainability of the system, there would also need to be a training cell,together with a separate annual training budget. For operation of the system, enablingconditions involve the adoption and implementation of O&M protocols (general) and theimplementation of an analytical quality control program (water quality).

Surface WaterIndicator


Training cell

Training budget

HIS Protocols

AQC Program NA NA NA NA

Note: CHH, MP, OR and TN have established joint SW/GW laboratories under the GW agencies

GroundwaterIndicator


Training cell

Training budget

HIS Protocols

The TA has devoted considerable time to convincing the organizations to establish a number ofinstitutional conditions favoring successful and sustainable operation of the HIS, includingmanaging the relations with data users.

A number of these conditions have been met during the project. However, several other conditionscannot yet be observed as it is too early for meaningful feedback from users because the dataprocessing software has been seriously delayed.

AQC Program

Regarding effective communication with users, both for keeping the system up to date withactual information needs and for speedy and correct supply of data to individual users,criteria for success are the formal establishment of data user groups (HDUGs) with clearterms of reference, the availability of integrated location maps and hydrology informationneed (HIN) documents, the production of thematic Hydrology yearbooks, and the conduct ofuser satisfaction surveys.

In

G

T

S

H

Y

U

In

6

6

TWpreb

Surface Waterdicator


O on HDUGs

OR of HDUGs

ystem maps

IN Documents

earbooks

ser surveys

Groundwaterdicator


GO on HDUGs

TOR of HDUGs

System maps

HIN Documents

Yearbooks

User surveys

Note: the user survey in MAH was carried out in the process of developing the HIN document, which


proved to address issues of general relevance to all other agencies. It has been accepted as amodel and distributed to all for relevant detailing.

.6 Innovative R&D projects

.7 HIS Management

he overall development objective of the HP is to “support major aspects of the Nationalater Policy through improvement of the institutional and technical capacity to measure,

rocess, and disseminate quantity and quality data on surface water, groundwater, andlated climatic data”. A prime performance indicator to assess whether this objective is

eing achieved, is whether accurate data is flowing in the system.

The HP has initiated a large number of innovative R&D projects in both the surface andgroundwater domains. These include projects specific to groundwater such as a) fresh water-saltwater interface in the multi-aquifer system of Krishna delta b) solute transport modeling studies forKuttanad, Kerala. Similar examples of R&D projects in the surface water domain are a) integratedriver basin planning and management in Sabarmati and Godavari basins and b) hydrologicalinvestigations and modeling for water quality sedimentation in upper Bhopal Lake.


In the SWDES, a Data Flow Module makes it possible to provide managers at all levels inthe system with the necessary information to do this. This information allows an executiveengineer in charge of e.g. SW sites in a division to know which data are collected completelyand which sites are lacking in data reporting. On the basis of this information, the executiveengineer can then initiate investigations into the reasons why certain sites are underperforming, why certain (types of) data are incorrect, etc. This allows identification of actionsto be taken regarding maintenance, staffing, training, etc. It also makes it possible for thedata centers at e.g. divisional or state level to assess system performance and to providefeedback to the managers of different parts of the system.

Another important information for all managers is their staff position and their ability to dotheir job. Thus, the “Staffing and Training Information system (STIS)” was prepared by theconsultants, to manage the staff in HIS and keep track of the various training imparted tothem at different times. The basic objective of the software is to make available accurateinformation on the training status of each individual working in the HIS, in a minimum of timeand without going through bulky files.

6.8 Accelerated cessation of the TA

The achievements of the implementing agencies in establishing and operationalizing wouldnot have been possible without external inputs. That is how the Hydrology Project wasdesigned. The TA was one of these external inputs, instrumental in bringing the HIS fromconcept to functional design. Detailed design, however, also involved software development.This was to be undertaken in separate contracts between the GOI and softwaredevelopment organizations. The GOI entered into contracts with local organizations forsoftware development for groundwater and for the data storage centers. For surface water,relevant software has been provided free of charge by Delft Hydraulics. An annualmaintenance contract between the GOI and WL|Delft Hydraulics has yet to be formallyconcluded, although the process has been nearly completed.

The surface water data processing software (HYMOS) has been available from early on inthe project, and the relevant agencies have been able to develop significant experience withthis for a number of years. However, the development of groundwater and data storagesoftware (GEMS and WISDOM, respectively) has become seriously delayed, to the pointthat this necessitated the World Bank to agree to extension of the project beyond its originalcompletion date. This also resulted in a request for extension of the TA. The period agreed

The Data Flow Module of the GWDES was developed by the TA. It contains links to all data (staticand dynamic) pertaining to the observation sites and data processing centres. Thus, it allowsmanagers to create an overview of specific data from locations as per their own selection criteria.The module also contains fields for remarks, to be entered by field and data centre officer e.g. toexplain anomalies in the data.

The STIS was prepared by the Consultant. It is useful for the managers coordinating the HIS in all theAgencies. This tool has the ability to provide reports in specified formats without any loss of time. Thetype of reports available are viz. Employee Status, Staffing Status, Training Progress, Training Plan,Balance Training, Individual Learning Path, Individual Trainee Reports and Training History. It hasbeen designed in a manner to keep it short and simple in use and, therefore, does not require anysophisticated training in its usage. The various utilities have also been given keeping in mind futurerequirements. The system can be expended as the need arises.


upon was initially one year, up to 31 March 2003. However, during the Joint Review Missionof World Bank and RNE in October of 2002, it became apparent that new delays wouldnecessitate a further extension. Although the relevant software was in the process of beingfinalized, its full-scale introduction and operationalization would likely occupy all of 2003.Hence, GOI and RNE reached preliminary agreement to further extend the TA untilDecember 31, 2003 (in line with extension of effectiveness of the Development CreditAgreement by the World Bank).

Delays in processing the request for a second extension of the TA made it impossible toconclude a formal agreement before 31 March 2003. However, a formal agreement couldnot be concluded due to the request from the GOI that the Netherlands Government phaseout its bilateral assistance to India. The continuation of TA activities therefore had to behalted. This will have consequences for several areas of system operationalization,especially as it relates to the HIS software.

Data storage software

The last few months of the original extension, showed marked acceleration inoperationalization of the HIS. WISDOM has now been installed in all 31 Data StorageCenters (GW and SW), and the developer has trained the relevant data storage center staff.

Installation of the data storage center software completed the system for surface water. Anumber of necessary changes have been identified in WISDOM’s interface with HYMOS, thedefinitive software for surface water, which has been in operation for several years.However, for groundwater similar interface issues concerning the definitive system (GEMS)can only be identified once the latter will have been installed and functioning at the DataProcessing Centers with appropriate interfaces for data transfer. Development of acomprehensive revised version of WISDOM must await this installation, which is notexpected until end of August.

Surface water

More generally, SW data processing staff had already had 2-3 years experience withprocessing and analyzing SW data through SWDES and HYMOS, and final validation anddissemination aspects could now be trained to provide a form of consolidation. On requestof the PCS, the TA team programmed a series of 14 Data Validation Workshops withindividual agencies and 5 Inter-Agency Data Validation Workshops for this purpose, to beimplemented in five rounds, each covering a CWC Region and the related state agencies.Part of the first round had been completed by June 2003 (MP, MAH, GUJ, and CWC’sNarmada and Tapi Basin Organization).

Groundwater

For groundwater the situation has not yet developed to the same level of accomplishment.WISDOM is of course available in the state data storage centers (state and central).However, with the GEMS installation only recently having started, there is not yet muchexperience in hydrological data analysis using the system. To date, the agencies have usedGWDES for both data entry and (part of the) analytical and output functions of GEMS.However, GWDES was initially developed only to provide a means for data entry, andsubsequently expanded to include a number of other functions. It was never intended to be


used more than a few years, a fact that is reflected in its design. Groundwater dataprocessing really is dependent on the completion of GEMS.


GEMS has been installed as a pre-pilot in the state data centers, and the HLTG hasdeclared it basically functional, identifying a number of areas for improvement. However,most interfaces (maps, outputs, printing, etc.) are not yet efficient and there has been only 5days training on non-IT aspects (compared to 2 weeks for the smaller GWDES). Dataconversion (from GWDES to GEMS) has taken place and revealed a need forstandardization. (A sensitive issue, since 100% standardization is not possible in a systemso widely distributed and supposedly user friendly). Most state agencies are critical aboutthe performance of GEMS, and do not involve themselves in improving the situation.However, they definitely do have the requisite capacity to assist in the form of very strongToT groups that have been trained for GWDES. With involvement of these ToT groups,GEMS could be completed by end of July and operational by October/November.

Water Quality

An additional issue is the introduction of water quality software. Most laboratories have notbeen provided with the definitive groundwater hardware and software. Additional hardwarewill be inordinately costly, as it will involve additional copies of system software. Hence, ithas been decided to develop a specific WQDES_GW for WQ data entry and analysis.However, this again faces the problem that WQDES_GW can in principle not be maintainedfor many more years

Discontinued activities of the TA

The only GEMS training conducted so far has been for the State / Regional Data Centers –the data processing centers at district and sub-district level have yet to be trained. GEMStraining to date, given by the developer, has mainly been oriented to technical aspects of thesoftware. The TA team was to be involved in training to familiarize the agency personnel atall levels with the use of the new software. On a positive note, the limited training that hastaken place has now been able to utilize processed data from the participants’ own networks(following data conversion from GWDES), rather than examples from case studies in otherstates that had been used initially. This alone resulted in remarkable improvement inunderstanding the data: in general, data processing staff could more easily identify with thedata and anomalies were now easily picked out. The TA formulated an extensive workshopand training program to take advantage of this new development as the software would beinstalled at all levels throughout 2003.

The discontinuation of the TA puts an immediate end to the assistance provided by the TAteam to the developers of WISDOM and GEMS in finalizing their software for at least initialapplication (requiring at least a first revised version for both softwares). It also stops theimplementation of the workshop and training program for the new groundwater and datastorage center software, thus making it impossible for a number of agencies to gainexperience under the tutelage of the TA. The only way for these agencies to benefit fromthe training for the new software is with assistance from the central agencies and stateswhose staff have already participated in such training.

For surface water, the situation appears to be manageable: all relevant staff have beentrained on HYMOS for 2-3 years, CWC staff in the NTBO have been trained on WISDOM, ashave staff of the state agencies in this region. Moreover, WISDOM training does not involvehydrological analysis and can (and will) be provided by the local developer under its existingcontract.


The situation in groundwater, however, is far from satisfactory: the basic data processingsoftware for hydrological analysis has not been installed in most data processing centers,and very few staff have been trained. The developer cannot be of much help in GEMStraining – their expertise is in technical software development, not in geo-hydrology and geo-hydrological analysis. All hopes are now pinned on the ability of the NIH and CGWB todevelop capacity to do the training. However, even the first round of ToT has beenpostponed by the CGWB for various reasons, which in effect now means TA participation inthe same and other training has been canceled.

6.9 Consolidation of HP achievements

It is of utmost importance to consolidate the HIS infrastructure to ensure its sustainability.This should be given due attention as the originally planned two years consolidation periodof HIS activities under HP could not be achieved due to considerable delays in procurementand software development as well as shortage of specialist staff as outlined in the previouschapters. Consolidation could involve:

a. Optimization of monitoring activities;b. Consolidation of operational procedures and maintenance;c. Human resources;d. Linkage of HIS to economic and public sectors; ande. Preparation of water resources assessment reports.

Optimization of monitoring activities

The optimization of the monitoring activities comprises first of all the regular review ofhydrological data needs, by consultation of the Hydrological Data User Group. ThoughHDUGs were established early on in the present HP, they have largely remained inactive.This is because the HIS only produced its first outputs at the very end of the project, leavingvery little to discuss otherwise. Nevertheless, due attention is to be given to activeparticipation of HDUGs or some other relevant consultative forum in regular HIS reviews inthe future, to ensure demand-driven data supply.

It is essential that the review takes place at regular intervals as prescribed in the HIS-manual, to make sure that the HIS remains a dynamic system, i.e. developing the system toaccommodate data needs of the users as they change over time. A prioritization should bemade to best match the requirements with the available budget. Optimization may involveexpansion or intensification of the network at one place or reduction at another. Apart fromthis, where overlaps between different agencies’ networks still exist, these should beeliminated. Optimization may also have consequences for the monitoring frequency and/ormay result in adjustments of the measuring technique, data storage and transfer.

Consolidation of operational procedures and maintenance

Due to delays in the implementation of the HIS, insufficient time was available to obtainsufficient experience with the day-to-day handling of the current data, also becauseoccasionally priority was wrongly given to the historical data entry. It should be stressed thatthe immediate validation of the current data and timely feed back to the observation site is akey factor in the creation of a reliable and up-to-date database. No delays are allowed here.Hence, due attention should be given to streamlining these activities, within the organizationand between the organizations. The latter is of great importance as the monitoring networksare in principle complementary rather than overlapping.


A sustainable HIS also requires that at regular intervals maintenance of stations, equipment,data transfer means, hardware, software and of accommodations takes place. Instructionsspelled out in the HIS manual should meticulously be followed up. Sufficient spares, fundsand appropriate staff should be available to carry out such activities. To enable managers inthe agencies to be pro-active in their efforts to keep the different parts of the systemfunctioning, data processing and data storage software developed in the present HPautomatically produces information as to the state of the system and execution of activities,to guide the management for taking appropriate actions.

Human resources

Appropriate staffing in number and skills of observation stations, laboratories and processingcenters is a prerequisite for a sustainable HIS. Earlier Consultants have proposed theintroduction of roving teams for surface water hydrology to reduce costs by economizing onstaff without loss of information. It was shown that crores of rupees could be saved annuallyby implementing such methodology. Implementation of this procedure, therefore, merits re-consideration.

With respect to the training of field staff it is stressed that due attention should be givenduring the training to the actual fieldwork, rather than to theory alone. Each participantshould gain experience with and ultimately show his competence in the field work to thetrainer’s satisfaction.

A major constraint has been the staffing of water quality laboratories. Qualified staff seemsto be difficult to find under the prevailing recruitment limitations. Under these circumstancesuse should be made of staff within the organization, properly trained in standard laboratorywork, who carry out the activities under the guidance of a qualified chemist.

The staffing of the data processing centers should be thoroughly reviewed after the bulk ofhistorical data have been validated and the reporting thereupon has been completed, to fit tothe actual staffing need for handling of the current data.

A good cadre of trainers has been established under the project who also guide the dataprocessing offices in their day-to-day activities. It is essential that such a high-level cadre bekept, which is a prime responsibility of NIH, NWA and CGWB. Furthermore, proper attentionshould be given by the agencies to in-house training of staff, to become less vulnerable tothe effects of frequent staff transfers.

Linking HIS to economic and public sectors

The HIS output has a wide variety of users, both in the public services domain and in theprivate sector. For the purpose of brevity, the users can be broadly grouped under two majorclusters viz. ‘large scale and repeat users’ and ‘occasional or one-time users’. A majority ofthe users in the public services domain belong to the former, where as most of the users inthe private sector are likely to belong to the latter category.

Large scale and repeat users of HIS may mainly belong to a) various policy level andoperational level government departments, b) financial institutions, c) command areadevelopment authorities, d) irrigation departments, e) NGOs, etc. Occasional users may beof two types, viz. a) those who need to find and use water in a micro-geographical area fortheir own use, and b) those who need to find and use water for commercial or communityactivities.


An inventory of such users and their data needs is required. The need identification willculminate in linking the needs with specific HIS outputs, thus making HIS demand-drivenand customer-specific.

Defining and documenting transparent data dissemination procedures will respond to the‘right to information’ and good governance policy of the government. Timely and speedydissemination of data, using various electronic and physical media, will have to be doneinitially under guided conditions prior to full-fledged institutionalization of the concept.

The optimum utility of the HIS will be fully realized only when it is linked to existing databases (e.g. on land use, cropping pattern, population) at various levels in other organizationsand to related software (e.g. GIS). This linkage will have to be firmly established.

HIS products must be appropriately priced to allow sustainable demand on a long-termbasis. Determining tariff mechanisms in the public services domain is complex and prone todrawn-out public debate. Therefore, it is important to analyse and document best practicesobserved in India and abroad, including in other sectors, and tailor them to meet specificlocal needs. The institutional capabilities of the implementing agencies in this regard willhave to be substantially enhanced.

Assessment reports

The Groundwater Estimation Committee lays down norms for estimation of the groundwaterpotential in the country, the latest being the GEC-1997 norms. The HIS outputs can be usedas useful inputs to estimate the availability of groundwater resources in the southernpeninsula. However, the most distinct value addition of HIS is going to be in the use of itsoutputs to revise the norms based on scientific evidence and validated facts.

Creating a platform for broader appreciation of the HIS

The administrative entities responsible for the upgrading of HIS (the “HIS units”) weregenerally part of the Water Resources Department, the Irrigation Department, theGroundwater Department or a department with a mandate similarly broader than hydrologyalone. However, the officials in these units have implemented the project perhaps more froma monitoring than from a data use perspective, even with respect to the planning purposes ofthe “mother” department. The officials of the planning and development units have, for theirpart, also displayed only limited involvement in implementing the HIS. Hence, the HIS utilityin relation to non-hydrological aspects of development projects has been poorly enunciatedat the level of the implementing organizations (both at state and central level). This has oftenmade it difficult to resolve bureaucratic and other obstacles to HIS implementation wheresuch resolution would require the intervention of the Secretary and/or the cooperation of theFinance Department or other non-hydrology oriented units.

Moreover, the resultant “under exposure” of the HIS has made it difficult to generate interestamong other users, i.e. also outside the department, to participate in the HDUGs. This hasbeen exacerbated by the fact that the designated HIS units, which have been acting assecretariat of the HDUGs, have found it difficult to formulate a meaningful agenda for theHDUG meetings, as a result of which the frequency and attendance of these meetings hasbeen poor. The main reason why HDUG meetings were still held seemed to be the existenceof HP. It should be noted though that the HIS became only operational and more visible forHDUG members shortly before the end of HP. Until such time it was difficult to generate realinterest in the HIS.


Yet, the HDUG has been conceived to have a pivotal role in the use of the HIS. In line withinternationally accepted principles, the system has been set up with regular (every 3-5years) adjustments of network layout in mind to accommodate the needs of data users asthey change over time. The HDUG is supposed to be the forum in which the different userorganizations discuss these changes with the HIS unit. It would also allow them toparticipate in decision-making on a monitoring program in line with their needs.

However, considering the observed lukewarm participation and uninspiring agendas,(potential) users may cease to participate in HDUG meetings after HP. The HIS units maythen also cease to convene the meetings, and the HDUG may in practice no longer exist bythe time the first network optimization is at hand. To ensure continued attention for thedynamic aspects of the HIS, it is necessary to revamp the present HDUG or to considerworkable alternatives.

6.10 Further potential for capitalising on HIS

The activities for consolidation described in the previous section are the minimum requiredfor sustainability of the HIS. Beyond this, there are possibilities to spread the achievementsof HIS further.

A vertical extension of HIS and its application offers an opportunity for a betterdemonstration of the system’s functionality and relevance. Successful vertical developmentwould appear to involve shifting responsibility for project implementation from the monitoringunits to the development units in the responsible departments. This would automaticallybroaden the perspective on HIS implementation and development, and as such couldprovide an incentive for generating interest in the HIS beyond the department.

Another opportunity, which should not be missed, is horizontal expansion, i.e. replicating theproject in states, not covered until now.

Both options (vertical extension and horizontal expansion) have been elaborated by theConsultant in a separate report “HP Follow-up, A Draft Working Paper”. The contents of thisreport have since become the basis for discussion of a Second Hydrology Project betweenthe Govt. of India and the World Bank.



7 Lessons learned

7.1 Expectations

The TA for the project has been formulated from different perspectives, resulting in differentexpectations among the different parties. The PCS expected technical and training supportfor project implementation, WB focused on disbursement and institutional strengthening(offices, vehicles, equipment, training), and RNE expected institutional reforms, i.e. expectedinvolved agencies to change their way of doing business (impact beyond HP). In reality, theTA could focus on institutional development (supporting introduction of a new technicalsystem in the organizations, coupled with a different approach to planning and managementregarding the hydrology function).

The SAR was used as a multi-purpose document. Within the Bank, it served to underpin thedecision to extend a credit agreement to the client country. To the client country, it served tofurther pin down the commitment undertaken in signing the development credit agreement.And to the implementing agency it provided a benchmark for activities. The level of detailemployed in the report did not serve all purposes equally well. While a rule of thumbassessment may satisfy decision-making in the Bank, such assessment is not a good basisfor specific implementation. Nevertheless, implementing agencies claimed that the financedivisions considered the quantitative assessment in the report as cast in stone and thereforefelt in practice unable to deviate from the rule of thumb solutions. This made it difficult toformulate appropriate network designs relative to circumstances and functions to beperformed, rather than following literally the ‘estimates’ provided in the SAR.

7.2 Benefits

The specific objective of HP and the TA was to develop a functional HIS. The benefits of thisoutput were not immediately clear to relative outsiders such as finance divisions andsecretaries. This made it difficult to enlist such parties’ support when required to overcomeobstacles that the agencies themselves could not deal with. This was exacerbated by thelack of external demand for the HIS and its data, due to which there was no pressure fromuser organizations to give priority to completion of the HIS. External demand was to becomeclear in the HDUG, but any decision making in the HDUG (even on recommendations to theHIS agency only) was hampered by the diverse nature of its membership: it comprised boththe system “owners” and a range of “users” of various nature and specific interest. Moreover,the HDUG remained inactive because without an actual HIS in place there was nothing todiscuss. In fact it proved difficult to involve non-traditional users. Clearly, the technologicalimprovement brought about by HP has not shown itself to be a product that sells easily, andmarketing has proven to be difficult.

The focus in HP has been on developing a system for processing monitoring data. Hence,the key agencies were the monitoring agencies, whereas the utility of the database for widerapplication should have included formal participation of the development agencies (e.g.irrigation department). Even though these monitoring and development agencies are oftenpart of the same department, they are not necessarily aware of each other’s activities. Whilethe user agencies were included in the HDUG, a more fundamental involvement of the keydevelopment agencies should perhaps have been specified in the SAR.


In this situation, in which internal demand (for technical improvement) in the HIS units wasmuch greater than external demand (for new information), it has at times been very difficultfor the HIS units to obtain support from e.g. the relevant finance department to changeelements of the project which were clearly intended to be subject to flexibility under theprocess approach, but for which original estimates were considered by such departments tobe contractually bound. Had there been broad appreciation of the wider (though indirect)social and economic benefits of having better hydrological information, such resistance couldperhaps have been more easily overcome with the help of senior leadership of the stategovernment.

Sample projects should be selected to show the social-economic relevance of a good HIS.For example, for dams built in the past the design conditions could be recalculated using theHIS data. This would reveal potential under- or over-dimensioning of these dams, the formerpointing to high-risk situations, and the latter indicating significant unnecessary expendituresof public funds.

The utility of HIS is beginning to become more widely understood. Due to the support frompro-active administrators and decision makers, HIS information is now a critical parameterfor developing a pilot for integrated water resources development in AP and HIS monitoringin Karnataka has resulted in planning of more projects. For future WRD planning use of HISdata has been made mandatory in Maharashtra.

7.3 Management in implementing agencies

Introduction of new work processes and procedures associated with the HIS involved manysignificant changes. Training implementation showed that there are many capable andwilling individuals in the agencies ready to absorb the necessary changes. However, theyneed direction. Steering the organizations involved successfully through this processrequires enthusiastic leadership with a pioneering spirit. It is therefore essential, that therelevant top management positions be held by enthusiastic individuals, who are not justbiding their time until retirement. At least during the project period (the “pioneering stage”)the selection and positioning of personnel in these posts should be geared towards thisrequirement, instead of routine shifting of staff for reasons of tenure-based careeradvancement.

In general the implementing organizations’ officers remained more focused on inputs than onoutputs. Moreover, there was little appreciation for systematic collection of information on theorganizations’ transformation process (i.e. not the hydrological data itself, but managementinformation on how the different units in the organization were performing in making thesystem work). Effective management of the HIS units in agencies demands that the in-charge can avail of such information, with possibility for (abstracted) reporting to higher-ups,and that he/she understands the information provided and is able to act upon it.

7.4 Deadlines

Implementation of change through projects involves specification of clear objectives,availability of resources, support to be provided from the wider organization, staff to beassigned, and a budget not to be exceeded. In combination, these elements aim to create asense of urgency to all involved regarding achievement of the project’s objectives, on timeand within budget.


The HP was designed for implementation over a period of 5 years. In some cases, thisalone appears to have resulted in lack of commitment on the part of the government staffinvolved. First, because at the individual agency level the project was relatively small. Thelong implementation period created an impression that there was a lot of time to do the work,resulting in a lower priority than the much larger multi-year projects being funded with localresources. Second, because the project duration was longer than the tenure of many of thesenior management personnel involved. In cases where such personnel were in their lastposition before retirement, they were often more involved in getting their personal affairs inorder than in maintaining pressure for deadlines which would come to pass only after theirdeparture from the service.

These complications were possible because the project design itself did not contain manyconcrete deadlines. While some activities seemed subject to early deadlines (e.g. networkdesign), others seemed flexible. Moreover, deadlines such as they existed were regularlysurpassed due to all kind of “usual” explanations. In many cases these involved theassertion that the final authority was with some other office (e.g. in the cases ofprocurement, recruitment, permission to access / build on land belonging to other agencies,etc.) or that “processes” would take their own time (e.g. in concluding agreements withoutside developers of groundwater and data management software).

Most of these difficulties seem to relate more to impressions than realities. It wouldtherefore perhaps have been better if the project objectives had been broken down intosmaller subsets, with clearly identified consequences for credit effectiveness if these “sub-deadlines” could not be met. However, to the contrary, in fact there has been a strong effortto keep non-performing agencies on board. As a result, many of those involved in HP didnot develop the appropriate sense of urgency.

7.5 Process approach

A key element of HP’s project design was the reliance on the “process approach”. This wasnot very clearly defined in the project contract documents and was elaborated by the TAteam to mean essentially that the project’s overall objective was firm but that there wasflexibility in the way in which it was to be achieved. This left ample room for appropriateresponses to situations as they occurred. Moreover, it allowed flexible definition of projectrequirements, such as numbers of equipment to be installed, etc., in light of conditions thatcould only be ascertained during the course of implementation.

However, the process approach deviates from standard practice in the governmentbureaucracy, where a project is more defined in terms of a budget to be implemented than interms of activities to be undertaken. (By itself, this presented a problem as cost estimates inthe SAR for equipment, etc. were not meant to be definitive budgets, but were in factconsidered to be just that by many finance departments.) Recognizing that the processapproach would require a special type of management, the SAR and the TOR for the TAstressed the need for appropriate process management instruments, focusing on annual andlong-term planning of activities rather than identifying elements to reach a desired budgetamount. The prime instrument for managing this process was the Hydrology InstitutionalDevelopment Action Plan (HIDAP), which was to identify short-term goals and targets forspecific activities required to achieve the overall project objectives in the context of a long-term plan. The HIDAP was to contain a rolling multi-year plan and to be updated annually.However, many agencies saw the HIDAP more as a formality than a commitment, and since


it was not part of the Government reporting cycle an insignificant formality at that. As aresult, HIDAP was not able to create the intended output orientation, whereby it was hopedthat agencies would focus on working with the new system and not only on procuring pre-identified equipment and training arbitrary numbers of staff.

HIDAP was of course not only meant for the agencies, but for process management as awhole. Within the TA team, HIDAP did indeed succeed in creating the overall context forand logical interconnections between the diverse activities. It became the basis for allsubsequent planning and reporting of TA activities.

The failure of HIDAP to take hold in the agencies is not due to lack of agency participation inits development – many workshops were conducted in all states and at the center to developand promote the approach. However, it would perhaps have been better if the HIDAP hadfirst been discussed conceptually with senior agency management before involving lowerlevels in detailed development of the document as such. In this manner, seniormanagement could have had a better understanding of the utility of the HIDAP for their ownpurposes, and thus might have put pressure on the “line” officers to maintain the HIDAP inall its required detail. The main reason this was not done in the project was that the HIDAPconcept as such had not sufficiently crystallized to be able to have meaningful discussionswith senior management at the start. A further complication in this regard was the lack ofunderstanding of the wider but indirect social and economic benefits of the project. Adecision was taken to approach Secretaries, etc. only when there was “something to show”,i.e. a sufficiently detailed actual document. Meanwhile, heads of hydrology departments(e.g. groundwater and surface water in AP) were intimately involved in development of theconcept.

It had been expected that the HIDAP instrument would receive attention from the successivereview missions as basic planning document for agency activities. However, while themissions’ inquiries into HIDAP focused more on whether it had been completed than what itcontained, thus reinforcing the impression among agency staff that it was only a formality.

7.6 Approach to implementation

Implementation of HIS has been characterized by delays in meeting ambitious targets(number of states, institutional development, training, physical targets, etc.). These targetscould not be met, especially in the short run. One reason for this has been that basicthinking and planning had to be completed first. For similar activities in other states it wouldbe better to have an interim phase, in which agencies would do all the think work (e.g.network planning) to prepare for actual implementation.

Implementation in all states, all agencies, and all districts/divisions at the same time (blanketapproach) has proved unmanageable, especially due to limited capacity to manage agency-wide development. Hence, while concurrent implementation in all states and agenciesshould remain a key element of the approach, at the agency level major steps inimplementation should be piloted in one division and be replicated to other units only aftersuccessful completion. This would spread out physical target achievement in time, withcommensurate impact on financial requirements and disbursement projections.

The linking between hardware and software procurement has resulted in significant delay inthe availability of hardware. There is no real need to postpone formulating hardwarespecifications until those for the software are completed. However, in HP exactly thisapproach has resulted in delays of hardware procurement for groundwater, as the


completion of software specifications was very time consuming. This is especiallyconcerning since the supply of software is only a small part of a combined soft/hardwarepackage.

De-linking of hardware from software implies procurement of hardware preceding thefinalisation of software. With the given rapid advancements in information technology, thisstrategy has an inherent risk of hardware being outdated at the time the software finallybecomes ready. Therefore, the appropriate strategy would be to procure hardware in aphased manner and adjust the technical specifications based on actual experience andrequirements emerging from software becoming available.

7.7 Procurement

Procedural delay has plagued the project till the end, particularly with respect toprocurement. Moreover, procedures were unable to prevent serious errors in procurement.The system is biased towards lowest-cost procurement without guaranteeing that minimumtechnical and operational requirements are met. Moreover, the procurement officers areoften not technically able to do more than administrative checking of paper documentationprovided by the supplier against the specifications. This has resulted in several instances ofmis-procurement, where items failed to perform as expected. This could have been avoidedif procurement had been batched not just administratively but also on the basis of long-termperformance (e.g. for one year) under field conditions. Initial procurement of smallernumbers of items would have made it possible to do this field testing and to instructmanufacturers to make the necessary corrections in the configuration of the equipment theysupplied. However, it was decided to go for large-scale procurement early on in the project,apparently out of a concern that procurement targets would otherwise not be reached.

To make matters worse, the different implementing agencies have ignored documented mis-procurement by others, while other agencies were often reluctant to document and report ontheir mis-procurement. Hence, mis-procurements often remained hidden or went unreported.For such reasons, it often happened that equipment proven to be unsatisfactory in one statewas nevertheless procured time and again by agencies in other states. Under thesecircumstances the suppliers have had little incentive to be responsive to complaints fromother agencies about the performance of equipment already delivered, and to correct thefailures under warranty, with the result that part of the equipment is no longer functional.Such suppliers should be disqualified from tendering under any follow-on project.

To avoid these problems in the future, for all new items to be procured there should be aTechnical Approval Committee in each agency with authority to decide on the proposedpurchase. The Consultant should participate in these Committees in an advisory role only.Moreover, where large quantities are involved, long-term field testing of early batches shouldprecede large-scale procurement of the relevant items. In this connection, there should bean obligation to consider experience with the same equipment already procured by otheragencies and/or states, through actual verification on-site.

7.8 Staffing

Despite the fact that CWC was lagging behind in data center equipment, the best-trainedpersonnel for SW in the HIS are in this organization. Therefore, with respect to surfacewater, the CWC should play a leading role and generally be developed as an example forSW organizations to follow.


Positioning of specialist staff, especially for WQ and IT, has been difficult since the agenciesdo not have such staff for redeployment to HIS and there exists a ban on recruitment. Thisban was in existence before commencement of HP, but the implementing governmentdepartments had nevertheless given assurances that external recruitment would be possibleif no suitable candidates for redeployment could be found within their own organisation. Inpractice, only very limited external recruitment materialized, apparently due to the fact thatthis requires final approval not from the department concerned but from entities/levels withmore general authority in government. Such approval could only be obtained throughdemonstration and forceful argument of the (indirect) benefits of HP to development, but thishas been lacking throughout the project.

In the absence of external recruitment, solutions that have been attempted were deputationof staff from specialist organizations to HIS units, contracting staff, outsourcing of works andtraining of existing staff. Deputation is difficult since the staff involved may not wish to remainseparate from their parent organization. Outsourcing to an organization has been successfulin Maharashtra (WQ analysis) and Tamil Nadu (IT), where non-government staff have beenhired through a local company to conduct the necessary activities in the facilities establishedunder HP. Contracting free-lance personnel has proved to be successful in Karnataka (IT &WQ), at least for the time being. However, this may not be sustainable in the longer termdue to excessive budgetary burden. Hence, the only solution seems to be training existingstaff belonging to other disciplines. For example, the agencies have many staff with achemistry background, and many engineers have an understanding of IT. In this respect itappears that the actually required abilities may not be as sophisticated as previouslyimagined and, hence, the training need may not be insurmountable.

One type of specialist function conspicuously absent in the agencies is that ofinstrumentation specialist. This is an obvious handicap, considering the many instanceswhere equipment has failed to perform (aside from the lack of technical attention during theprocurement process itself). Ideally, each agency should have an instrumentation specialistwho could investigate instances of non-performance and arrange improvements with thesuppliers accordingly. An alternative presently being discussed is to place this responsibilitywith the CWPRS. Although this would be better than nothing, the CWPRS is a centralizedorganization lacking regional representation in the states. Hence, all issues involvingequipment performance would have to be dealt with by staff based in Pune. Thus theCWPRS only could deal with general procurement issues, more or less in the way theConsultant has been able to provide support, but local non-performance of equipment wouldremain essentially non-addressed.

7.9 Training

In the initial stages of the project, agencies approached training only in terms of numericaltargets. The gradual transition from numbers to impact was initiated during the later part ofthe project implementation, based on the identification of individual learning paths. Thus,identification of individual learning paths, defined based on the required skill sets, turned outto be an important training performance indicator for assessment of lasting impact. In afollow-up project, early documentation of individual learning paths will help to set realistictraining targets and deliverables.

Many national level institutes (NWA, NIH, RGI) participated in the delivery of various trainingcourses. These institutes gained a good grasp of HIS-specific training requirements andbecame proficient in the delivery of domain-specific course contents. Experience indicatesthat these institutes can successfully become the ‘knowledge banks’ for future trainingdeliveries. However, absence of a centralised training institute for water quality was


recognized as a major constraint. This was partly addressed by drawing upon the expertiseof operational agencies (CPCB) as well as research institutes (ITRC, EPTRI, NEERI). Thereis a need to identify a national level organization to fill this apparent gap. Since CPCB hasthe required expertise and national level stature, recognizing and positioning it as an apexbody for training in water quality will be a step in the right direction.

Since the HIS is knowledge intensive, the need to put an HIS specific staff transfer policy inplace can not be over emphasized. Such a policy must address the need to overlap betweentwo incumbents so that knowledge and skills are retained with HIS institutions (transfer ofknowledge).

7.10 Summing up

Any follow-on activity should have realistic expectations and targets, lest the participatingorganizations and the individuals involved become disappointed and demoralized. In thisconnection, it is important to recognize that the development and introduction of the HISalone is unlikely to bring about major changes in the performance of the participatingorganizations beyond the use and utility of the system itself.

To ensure purposeful and active implementation it is necessary to appoint enthusiasticmanagers to the post of nodal officer during project implementation. At the very least theagencies should ensure that the persons placed in these posts are not just biding their timeuntil retirement. An appropriate staff transfer policy will address this need.

Now that the system has become operational in several states and significant outputs arebecoming available, it becomes possible to identify specific social-economic benefits. Thiswill be useful for convincing officials who are not directly involved with the HIS of thesystem’s relevance to their own area of responsibility.

Introduction of the HIS in other states should include a dedicated MIS component from thevery beginning. This will enable the managers at the more general supervisory levels to keeptrack of progress and organize external support (e.g. from the finance division, secretary,etc.) if necessary. The project should include a specific HIS management component toassist these managers in developing the relevant understanding and skill.

The lack of attention for technical aspects in the procurement process will again lead to mis-procurement unless specific action is taken. Procurement Committees should beestablished, with participation by the consultant in an advisory capacity. Suppliers that havebeen non-responsive to requests for correction of equipment failures during the present HPshould be disqualified from tendering under a follow-on project. Each agency should assignan instrumentation specialist for technical management after procurement. As alsorecommended for the other specialist positions (information technology and water quality),the post should be held by one of the agency’s “regular” professionals after relevant training.



8 Staffing and financial aspects

8.1 Organisation of TA

The geographic dispersion of the implementation activities necessitated a distributed TAorganization. The TOR prescribed a central TA team and a State Management Consultantoffice in each of the participating states. Furthermore, the TOR indicated a division of thecentral team into four task groups:

• Task Group I: General Coordination and Managerial Services, including eight StateManagement Consultants (SMC), headed by the Deputy Team Leaderand posted in the initial eight participating States

• Task Group II: Technical Services, assisting the agencies in all technical aspects ofthe design, implementation and operationalization of the HIS for SW,GW, WQ and hydro-meteorology, including monitoring networks, datavalidation and processing and data base management

• Task Group III: Institutional Development, addressing a gamut of organizational andinstitutional development issues and activities related to thedevelopment of the HIS and preparing the agencies for thesustainable operation and maintenance of the HIS beyond the projectclosing date

• Task Group IV: Training Services, providing overall assistance and guidance to theagencies responsible for the various training activities supportedunder the project, through Central Training Institutes (CTI) and in-house trainers (Training of Trainers).

Initially the ‘discipline orientation’ of the Task Groups was most adequate, since during thefirst three years of the TA (till mid 1999) much of the assistance had a generic, discipline-oriented character. Numerous technical design documents had to be prepared, ranging fromequipment and software specifications to monitoring network design, software developmentand overall HIS design development, while the preparation of an extensive and voluminousManual for SW Monitoring was commenced. HIDAP planning documents were developedwith all agencies, while training programs, documents, modules and management systemswere developed with a focus on capacity building in CTIs and within the agencies (ToT).Task Group 2 necessarily was in the development stage of the HIS infrastructure the largestgroup, consuming at some point about 40% of the available TA staff resources. Then, asviewpoints on the best way to approach management of the change process developed, andindeed as the process had its impact on the agencies, this organization gradually changedover time.

Realignment of task groups

After the MTR in 1999, it was planned to merge the Task Groups III and IV to better ensurethe complementarity of institution development interventions and training provisions.However, by October 1999 the total TA team structure was reorganized instead, keeping inview that the thematic team set-up had served its purpose of developing related outputs andoffering HIS development and implementation assistance to the agencies. With the majorityof outputs becoming operational, the need for cross linkages between the various disciplineshad substantially increased, not at least where it came to the promotion, staff training andinstitutional embedding of the technical output of the TA. Hence, the thematic Task Group


orientation made way for two implementation – oriented HIS teams (see Figure 8.1), one forsurface water and one for groundwater, also comprising the HMCs (HIS ManagementConsultants) and DMCs (Data Management Consultants), who gradually replaced the SMCs(see below). The implementation teams combined the following expertise: HIS management,data processing, water quality, information technology, institution development and training.Direct access to domain-specific management information and shared agency assessmentswithin these teams created consistency and improved client-responsiveness in approachand activities.

Reorientation of state-level support

The State Management Consultants (SMCs) were initially the team’s ‘eyes, ears, and hands’at the State level. Retired Chief Engineers and higher-level bureaucrats from eachparticipating State were generally selected for these posts. Their main task was to help theagencies in resolving bureaucratic problems and getting the HIS construction andprocurement activities off the ground, while constituting a prominent link between theagencies and the central TA team located at New Delhi. At the time of the MTR it wasobserved that progressive agencies, moving to the HIS operationalization stage with newsoftware and computer systems, faced technical issues that could not always be addressedby the original SMCs. Thus, it was decided to gradually phase out the SMC function and toadd HIS Management Consultants (HMCs) and Data Management Consultants (DMCs). Themain tasks of the HMCs were to support and guide the agencies regarding data collection(including Monitoring Quality Control), data entry and primary data processing, and hencerequired a (geo-)hydrological background. HMCs were posted in Hyderabad (for AndhraPradesh and Tamil Nadu), Pune (for Maharashtra and Gujarat) and Bangalore (forKarnataka and Kerala). The HMC function for the States of Orissa and Madhya Pradesh(and later Chhattisgarh) was taken care of by staff of the New Delhi Office.

The DMCs, on the other hand, required an IT background as they focused onoperationalization of the Data Processing and Data Storage Centers. These positions weretaken care of by staff of the New Delhi Office, as a dual charge, except for Tamil Nadu andAndhra Pradesh. The final team composition is reflected in Figure 8.2.

By early 2001 nearly all State offices were as such closed and the remaining state-basedconsultants were posted in the State Data Centers of the participating state agencies, exceptin the new State of Chhattisgarh, where an SMC office was maintained till September 2001.

J G Grijsen •Team leader

R L Sharma OM R K Visvanath •Dy. TL/HMC–CHH+OR State Coordinator

SW Implementation team GW Implementation team Resource persons

R L Qazi •TM/HRD/HMC-MPDharma Rao •HIS man./HMC-AP+TNH Chowdhary Data ProcessingS P Chakrabarti •Water qualityS Sangal IT/DMC-OR+MP+CHHBhanagay •HMC-GU+MHN R V Prasad •HMC-KAR+KERB B Ghosh •SMC–CHHAbdul Mumeen DMC-TN+APShreedharan Design

N Bhat •TM/Institution developmentD K Dutt •HIS managementK A S Mani Data processingP C Naik Data processingTrivedi/Khan Water qualityA Sawhney IT/DMC-GU+MHS Jagota •ID/HRD/HIS managementP Mukherjee DMC-KAR+KER

R. van Ommen •ID SpecialistH J M Ogink HIS Design & ManagementB W G Blok DataBase Mngt & equipmentM van Dijk Training HYMOSS D S Abbi •Hydro-meteorologyBoderie/Villars Water qualityR H Siddiqi Water qualityE van Beek •Water resources planningW vd Krogt •WRM trainingA Talstra •HIS Manag. trainingL Sharma GIS applications

Note: • focus of TA on HIS management, institutional issues and HIS applications ( partial)

J. G. Grijsen • Team Leader

HIS Implementation Team Resources Persons

R L Qazi • Dy. TL/HRD/HIS ManagementH Chowdhary Data Processing (SW)K A S Mani Data processing (GW)P C Naik Data processing (GW)S P Chakrabarti Water qualityS Sangal Information TechnologyM M Gulati • Institution DevelopmentN Bhat • Institution DevelopmentR Varma • Communication & PRS.A. Bhanagay • HIN & HIS Management

R van Ommen • Institution DevelopmentH J M Ogink HIS Design & managementB W G Blok DataBase Mngt & equipmentBoderie/Villars Water qualityR H Siddiqi Water qualityTrivedi/Khan Water qualityL Sharma GIS applicationsE van Beek • IWRM ExpertW van der Krogt • RIBASIM Expert

Note: • focus of TA on HIS management, institutional issues and HIS applications ( partial)

Fin

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ut (F

igu

re in m

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EU

RO

)8.2 Staff input

The total staff input over the period May 1996 till June 2003 amounts to 1,914 staff months(against 1,420 in the original budget), of which 324 staff months (17%) were of foreignconsultants (against 289 in the original budget; 20%). Staffing details for the entire projectperiod are reflected in Table 8.1, and graphically represented in Figure 8.3, showing a peakinput during 1997 and 1998 and a gradual decrease thereafter.

Figure 8.3: Staff input and Staffing Reimbursement, Expenses 1996-2004

The expenditures for staffing (in Euro) are also presented in Figure 8.3, and obviouslyfollowed the pattern reflected in the staff month distribution. Expenditures regardingreimbursable cost show a peak in 1997 due to the establishment of a full fledged office in theCSMRS building in New Delhi and offices in eight states, followed by a fairly steadyexpenditure pattern over the remaining years of the TA. The increase in total expendituresover the years 2000 and 2001 is entirely due to increased travelling of experts to theparticipating States. Initially much time had to be spent on generic activities at the New Delhioffice, but once the HIS became operational in several states and generic TA activitiesdecreased, travelling increased substantially (to 60% of the total budget for reimbursableexpenditures). In other words, fewer travelled more. The total expenditures, as per initialbudget (1996-2001) and per revised budget, including the period of extension of the TA tillJune 2003, is summarized below.

Initial Budget Revised Budget

Consultancy staff: 7,900,767 9,443,582

Reimbursable costs: 4,319,988 4,789,156

Overseas study tours/training: 544,532 616,434

Total budget: 12,765,287 14,849,172


Project Management and Resource PersonsBudget Reall. Total 96/98 1999 2000 2001 2002 2003 Mobil.

Designation Name mm mm mm mm mm mm mm mm mm date1 Team Leader J.G. Grijsen 50.0 21.5 71.5 25.0 10.1 10.3 10.7 9.9 5.5 27.05.962 Sr. HIS Specialist H.J.M. Ogink 24.0 16.0 40.0 22.4 5.2 4.3 3.1 3.0 2.0 10.06.963 ID Specialist R. van Ommen 4.6 4.6 0.9 2.5 1.2 Oct.'014 WQ Expert M. Villars 10.5 10.5 2.4 3.1 1.5 2.2 1.3 21.06.965 Equipment Spec. B.W.G. Blok 24.0 4.0 28.0 14.8 3.5 2.8 3.7 2.2 1.0 04.09.966 W.R. Planner E. van Beek 2.2 2.2 0.5 0.2 0.2 0.9 0.4 Sept.'987 GIS Expert L. Sharma 10.4 10.4 1.0 0.5 2.6 3.3 3.0 July'018 GW Domain Expert(GW) D.K. Dutt 6.0 41.5 47.5 22.9 5.0 7.0 6.1 5.7 0.8 01.06.969 WQ-DP Expert R.C. Trivedi 24.7 24.7 7.1 8.0 3.9 4.1 1.6 March'99

10 Sr. Chemist A.N. Khan 37.5 37.5 14.0 4.0 5.0 7.6 5.0 1.9 10.03.9711 Sr. WQ Expert R.H. Siddiqi 6.7 6.7 3.2 3.0 0.5 June '96

Total Foreign mm 98.0 58.8 156.8 65.1 21.9 19.1 20.8 18.5 11.4Total Local mm 6.0 120.8 126.8 36.9 17.1 20.5 23.4 21.1 7.8Total PM & RP mm 104.0 179.6 283.6 102.0 39.0 39.6 44.2 39.6 19.2

HIS Implementation TeamBudget Reall. Total 96/98 1999 2000 2001 2002 1/2003 Mobil.

Designation Name mm mm mm mm mm mm mm mm mm date12 Dty.TL/HRD/HIS Mangmt. R.L. Qazi 37.0 36.2 73.2 23.4 11.0 10.9 11.1 10.9 5.9 22.11.9613 DP Expert (SW) H. Chowdhary 69.2 69.2 18.5 11.2 11.2 11.3 11.1 5.9 11.05.9714 Sr. WQ Domain Expert S.P. Chakrabarti 45.2 45.2 6.0 11.1 11.2 11.2 5.7 01.07.9915 Inf. Technology S. Sangal 74.5 74.5 24.1 11.1 11.1 11.1 11.1 6.0 28.10.9616 DP&Domain Expert(GW) K.A.S. Mani 69.4 69.4 21.2 11.0 11.0 11.1 10.4 4.7 06.01.9717 DP Expert (GW) P.C. Naik 56.0 56.0 5.8 10.9 11.2 11.1 11.1 5.9 22.06.9818 SW Domain Expert/HIN Bhanagay 37.8 37.8 2.3 11.0 11.0 9.7 3.8 20.10.9919 Sr. ID Specialist M.M. Gulati 14.6 14.6 10.0 4.6 Jan.'0220 Sr. ID Specialist N. Bhat 1.1 1.1 1.1 May '03

Total Foreign mm 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0 0.0Total Local mm 37.0 404.0 441.0 93.0 63.5 77.5 77.9 85.5 43.6Total HIS team mm 37.0 404.0 441.0 93.0 63.5 77.5 77.9 85.5 43.6

Staff not mobilized or no longer employed (as of 01.04.2002)Budget Reall. Total 96/98 1999 2000 2001 2002 1/2003 Mobil.

Designation Name mm mm mm mm mm mm mm mm mm date21 SMC Gujarat S.C. Sharma 50.0 -24.0 26.0 24.9 1.1 0.0 01.10.9622 SMC Kerala K.S. Narayanan 50.0 -18.3 31.7 25.3 6.4 0.0 20.06.9623 LF Expert E. Kroese 1.0 1.0 1.0 0.0 22.03.9824 ID Specialist Ravi Pandit 35.0 -13.0 22.0 22.0 0.0 14.10.9625 ID Specialist R. Bhatn./Paty 32.3 32.3 24.2 8.1 0.0 14.10.9626 Sr. Hydrogeolog. A. Bein/Botbol 24.0 -8.2 15.8 15.8 0.0 12.06.9627 Equip. spec./hydrom. J. van der Pot 0.0 3.9 3.9 3.9 0.0 30.06.9628 Sr.Hydrogeologist Dhoolappa 50.0 -23.1 26.9 24.5 2.4 0.0 05.08.9629 Sr. Hydrologist D.V.L.N. Rao 50.0 -35.1 14.9 14.9 0.0 01.06.9630 Lab. eq. special. Van den Broek 3.0 -1.0 2.0 2.0 0.0 05.10.9631 Network Optim.Exp. S.C. Child 3.0 4.1 7.1 7.1 0.0 01.11.9632 WQ spec./Training C. Hoggart 4.0 0.8 4.8 3.8 1.0 0.0 03.03.9733 Data proces. exp. D.R. Archer 5.0 0.2 5.2 4.2 1.0 0.0 05.11.9634 CGDM Spec. (GW) W.J. Honijk 1.0 1.0 1.0 0.0 11.01.9735 DB Designer B. van Mourick 0.7 0.7 0.7 0.0 01.12.9636 Workshop Facilitator J.C. de Goede 1.0 0.4 1.4 1.4 0.0 09.03.9737 ID Specialist R. van Ommen 45.0 -11.3 33.7 23.6 7.1 3.0 0.0 03.06.9638 ID&HRD Advisor H.J. Wittenberg 40.0 40.0 24.7 9.0 6.3 0.0 01.09.9639 HIS Manag. Trainer A. Talstra 2.1 2.1 2.1 0.0 May'0140 DBM Specialist R.V. Moore 0.3 0.3 0.3 0.0 April'0241 Sr. Geo-hydrologist W.vdLinden/Vasak 1.6 1.6 1.6 16.02.0342 Trainer HYMOS M. van Dijk 10.7 10.7 5.0 1.0 2.0 1.8 0.9 0.0 Febr.'9843 WQ Expert Boderie 26.0 0.4 26.4 17.8 2.4 2.6 1.8 1.8 10.10.9644 RIBASIM Expert W. vd Krogt 3.7 3.7 0.6 1.5 1.6 Sept.'0045 Sediment Tr. Expert J.J. Peters 3.0 3.0 3.0 0.0 24.03.9746 Training Exp.(ST) E. Korsten 2.8 2.8 2.8 0.0 13.06.9647 Training Exp.(ST) P.B. Sastri 3.0 3.0 3.0 0.0 17.06.9648 SW Qual.Trainer H. Joshi 8.0 8.0 7.0 1.0 0.0 June '9749 Tr. Managem. Spec. M.K. Chatterjee 13.2 13.2 13.2 0.0 16.12.9650 IT Specialist (N) M. Bein/Mealins 12.8 12.8 12.8 0.0 01.01.9751 SMC Maharashtra V.P. Shimpi 50.0 -16.9 33.1 24.6 8.5 0.0 01.10.9652 SMC Tamil Nadu S.M. Krishnan 50.0 -13.8 36.2 28.1 8.1 0.0 25.06.9653 Netw. Design Exp. Panda (**) 6.3 6.3 5.6 0.7 0.0 13.01.9754 Facil. Bid Docs Kempanna (**) 4.0 4.0 2.7 1.3 0.0 05.06.9755 GIS/MIS Expert S. Jaggi (**) 8.7 8.7 3.8 4.9 0.0 22.06.9856 Trainer GW D. Kashyap 8.0 1.3 9.3 7.2 1.0 0.9 0.2 0.0 Aug. '9757 ID Specialist Ramakrishnan 16.9 16.9 2.5 10.8 3.6 0.0 01.10.9858 SMC Andra Pradesh C.L.N. Sastry 50.0 -10.0 40.0 24.0 10.0 6.0 0.0 01.11.9659 SMC Madhya Pradesh B.B. Ghosh 50.0 -6.9 43.1 27.5 10.1 5.5 0.0 15.07.9660 SMC Orissa G.N. Padhi 50.0 -3.8 46.2 28.8 10.1 6.3 1.0 0.0 15.06.9661 WQ Expert R.H. Siddiqi 50.0 -16.1 33.9 23.4 7.0 3.5 0.0 30.06.9662 Design Expert Sreedharan (**) 20.6 20.6 5.2 4.6 5.5 5.3 0.0 Oct. 9763 Data Processing Exp. H. Raman 11.6 11.6 2.2 9.1 0.3 0.0 20.10.9964 Procurement Spec. Venkataraman 4.6 4.6 3.6 1.0 0.0 Nov. '9765 Advisor Hydrometeor. S.D.S. Abbi 18.0 17.4 35.4 21.1 3.1 5.0 4.2 2.0 0.0 01.06.9666 HIS Man./HMC-AP&TN Dharma Rao 10.0 55.5 65.5 28.3 10.8 10.9 9.2 6.3 0.0 18.06.9667 HMC-KAR & KER N.R.V. Prasad 50.0 20.3 70.3 28.8 11.1 11.0 11.2 8.2 0.0 10.06.9668 SMC Chattisgarh B.B. Gosh 8.3 8.3 5.2 3.1 0.0 April'0169 DMC-KAR&KER P. Mukherjee 56.0 27.0 83.0 41.8 11.0 11.0 11.0 8.2 0.0 17.06.9670 Dy.TL/State Coordin. R.K. Visvanath 63.0 7.6 70.6 24.6 11.1 10.6 11.2 11.2 1.9 14.10.9671 IT/MIS s/w A. Sawhney (**) 32.4 32.4 11.0 5.4 4.4 5.5 5.1 1.0 01.01.9772 HRD/ID S. Jagota 67.1 67.1 22.5 10.7 10.4 10.8 10.9 1.8 16.12.9673 DMC-AP&TN A. Mumeen(**) 7.7 7.7 3.0 4.7 0.0 July'0174 Communications & PR R. Varma 13.8 13.8 8.9 4.9 Feb.'0275 ID Specialist N. Bhat 35.0 26.0 61.0 25.4 10.8 10.3 10.7 3.8 0.0 25.06.9676 PR Advisor N. Gokhale 1.8 1.8 1.8 01.01.9877 Other exp./not mob. t.b.n. (F) 40.0 -40.0 0.078 Other exp./not mob. t.b.n. (N) 313.0 -313.0 0.0

Total Foreign mm 191.0 -23.8 167.2 117.8 21.5 14.5 7.2 4.6 1.6Total Local mm 1088.0 -65.8 1022.2 564.1 173.3 114.0 88.8 72.4 9.6Total mm 1279.0 -89.6 1189.4 681.9 194.8 128.5 96.0 77.0 11.2

TOTAL FOREIGN 289.0 35.0 324.0 182.9 43.4 33.6 28.0 23.1 13.0TOTAL NATIONAL 1131.0 459.0 1590.0 694.0 253.9 212.0 190.1 179.0 61.0TOTAL PROJECT 1420.0 494.0 1914.0 876.9 297.3 245.6 218.1 202.1 74.0

(**) table shows mm against full rate for mm-tbn staffing barcharts and budget tables show actual time spent against reduced rate



Annex 1Description of HIS

1.1 Definition

HIS comprises the physical infrastructure, procedures and human resources to collect,process, store and disseminate data on hydrological, geo-hydrological and hydro-meteorological variables. The physical infrastructure includes observation networks,laboratories, data communication systems and data storage and processing centersequipped with databases and tools for data entry, validation, analysis, retrieval anddissemination. The human resources refer to well trained staff with a variety of skills toobserve, validate, process, analyze and disseminate the data. Efficiency requires that allactivities in the HIS are well tuned to each other, to provide the required data on time, inproper form and at minimum cost.

The primary role of the HIS is to provide reliable data sets for long-term planning and designand to frame rules for management of water resource and water use systems and forresearch activities in the related aspects. It is also desired that the system functions in sucha manner, that it provides the information to users in time and in proper form. The scope ofthe HIS under the Hydrology Project is not extended to provide data to users on a real-timebasis, for short-term forecasting or for operational use.

Figure 1.1:Role of Hydrological InformationSystem

To be able to provide this information, the first step is to obtain data on the temporal andspatial characteristics of the object system by having a network of observational stations.The basic data collected for different hydro-meteorological phenomena through thisobservational network is called the observed or field data. Such observed data have to beprocessed to ensure their reliability. Both field and processed data sets have to be properlystored, i.e. processed data for dissemination and field data to permit at a future dateinspection and revalidation in response to queries from users.


1.2 Structure

To provide timely reliable space-, location-, time- and relation-oriented data of the waterresources/water use system, the HIS comprises the following components:

• A network of observational stations including sampling sites established to collect thebasic data for different meteorological, hydrological and geo-hydrological variables.

• A system of Water Quality Laboratories to analyze water samples on the concentrationof various water quality variables.

• A system of Data Processing Centers at various levels to enter the observed data onmagnetic media and to subsequently process the data to arrive at reliable informationfor transfer to the database.

• Data Storage Centers, where both field and processed data sets are stored, i.e.processed data for dissemination to the data users and field data for archiving originalobservation and to permit inspection and revalidation at a future date if required.

More specifically for the State and Central Organizations the following components areincluded:

1 In each State

• Observation networks for hydro-meteorological variables, surface water and groundwater quantity and quality variables

• Water Quality Laboratories,

• Data processing centers:− Sub-divisional/District Data Processing Centers, one in each Sub-

division/District,− Divisional/Regional Data Processing Centers, one in each Division/Region,− State Data Processing Centers, one in the State Surface Water Department and

one in the State Groundwater Department, and

• A State Data Storage Center

2 In the Central Water Commission

• Surface Water Observation Networks,

• Water Quality Laboratories,

• Data processing centers:− Sub-divisional Data Processing Centers, one in each Sub-division− Divisional Data Processing Centers, one in each Division,− Regional Data Processing Centers, one in each Region,

• Data storage centers:− Regional Data Storage Centers, one in each Region− A National Data Center.

3 In the Central Ground Water Board

• Groundwater Observation Networks,

• Water Quality Laboratory

• Data processing centers:− Unit Data Processing Centers, one in each Unit,− Regional Data Processing Centers, one in each Region,


• Data storage centers− Regional Data Storage Centers, one in each Region,− A National Data Center

The Water Quality Laboratories include Level I Laboratories, where 5 basic water qualityvariables are analyzed, Level II Laboratories, for physico-chemical and micro-biologicalanalyses, and Level II+ Laboratories, also analyzing samples on heavy metals andpesticides.

Figure 1.2:Structure of HIS

Typically, in the HIS of a state the following activities take place at the different levels.

• At the stations/wells in the hydro-meteorological, surface water and groundwaterobservation networks field data and water quality samples are collected. The watersamples are brought to the Water Quality Laboratories. At regular intervals(monthly/quarterly) the field data are submitted to the Sub-divisional/District DataProcessing Centres.

• In the Water Quality Laboratories, besides the analysis of water quality samples, theanalysis results are entered into the computer and subjected to primary validation. Atregular intervals, the laboratory passes the information on to the nearest DataProcessing Center.

• In the Sub-divisional/District Data Processing Centers all field data are entered intothe computer and stored in a temporary database. Next, primary validation (entry controland reach checks) takes place on the data and feedback is given to the field stations.The computerized data are passed on to the Divisional/Regional Data ProcessingCenter immediately after completion of the primary processing. For the purpose ofvalidation and analysis of groundwater data, the District Data Processing Center alsomakes use of the data collected by CGWB. These data are retrieved regularly from theData Storage Center.

• In the Divisional/Regional Data Processing Centers, given their larger spatialcoverage, more advanced secondary data validation is carried out. The data are storedin temporary databases. After validation, the surface water and groundwater data aretransferred to their respective State Data Processing Centers.

• In the State Data Processing Centers, after reception of the data from itsDivisions/Regions, a copy of the field data is transferred to the State Data Storage

FIELD

DDPC

RDPC

USERS

FIELDFIELDFIELDFIELD

UDPCSDDPC

DDPCrDPCDDPC

RDPCSGWDPCSWDPCSDPC

SDSCNDSC/RDSC

NDSC/RDSC

NDSC

INTER-AGENCY DATA VALIDATION

OBSERVATIONS

DATA ENTRY/PRIMARY VALIDATION

SECONDARYVALIDATION

HYDROLOGICALVALIDATION

DATA STORAGE/DISSEM INATION

CWC CGWBSTATEIMD

DATA EXCHANGEDATA FLOW

SDDPC dDPC

Activities

OVERALLSTRUCTURE OF

HIS


Center. The main activity of the State Data Processing Center is final data validation,completion, analysis and reporting. Here, the data are stored in temporary databases. Atthe end of the hydrological year, once the data have been properly validated, the(authenticated) processed data are transferred to the State Data Storage Center. Toimprove the effectiveness of the final validation in the State Centers, use is made of therelevant data collected by the Central Agencies.

• The State Data Storage Center stores and administers the storage of all field and(authenticated) processed hydrological data collected in the State, and makes the dataavailable to authorized Hydrological Data Users (HDUs). As a State archive, it alsomaintains an HIS-Catalogue of all data stored in its own database and those stored inthe databases of the other states and of the Central Agencies.

1.3 Communication

Based on the structure of the HIS and the activities taking place within HIS a communicationsystem is embedded to provide for data transport and exchange at the following levels:

• within an agency to transfer the data:− from the field and laboratories to the processing centers,− between the data processing centers− between the data processing centers and the data storage center

• between state and central agencies via the data storage centers, and

• between data storage centers and hydrological data users.

Data transfer from the field to the data processing center is by post/hand carried, onstandard forms or on magnetic media read from data loggers at the station/well. Between thedata processing centers field and processed data is transferred via email, FTP and/orphysical media (diskette, CD) by mail. The State Data Processing Center and Data StorageCenter use a LAN for their data transfer. Between the state and central organizations datatransfer is by email, FTP and/or physical media (floppy disk, CD) by mail. The flow of datathe various levels in the HIS organization is shown in Figure 3.3.

Hydrological data users have only access to authenticated hydrological data and not to thefield data. For search and selection of the required data a Catalogue is made available. TheCatalogue comprises the meta-data and a search and selection engine (browser) which canbe approached in the Data Storage Center or through the Internet. The result of a dataselection session is a generated data request file, which is submitted to the specific datacustodian Data Storage Center(s). If the user’s authorization level so allows, the datarequest is run on the database and the results are made available to the hydrological datauser via telecommunication, e.g. email or on diskette or CD, hand carried or by mail.

1.4 Characteristics of the HIS

Essential features of the HIS structure as established in Peninsular India are:

• decentralized processing of data

• decentralized storage of data

• separation of data processing and data storage, and

• combined storage of surface and groundwater data

Their justification is elaborated below:


Figure 1.3: Data flow in HIS

Decentralized processing of data

Decentralizing the processing of data ensures short communication links between fieldoffice/wells and the processing office where data are put on magnetic media and the firstvalidation takes place, i.e. the Sub-division and Unit. Since the first validation is done atregular intervals shortly after reception of the data in the Sub-division or Unit, immediatefeed back can be given to the field station/well in case of defects or requests for assistance.This is a major prerequisite for a sustainable HIS.

Furthermore, decentralized data processing ensures that the staff executing the first stagesof data processing are familiar with the governing climatic, (geo-)hydrological and stationconditions, which improves the quality of validation and enlarges the involvement andconcern of staff with their work.

Collection of SW / GWfield data

Water sampling

Laboratorytesting

Analyses

Catalog

Field Datafrom Central

agencies

CGWBField Data

CWC &IMD

Field Data

Temporary DatabaseDivision / Region

Temporary Database – State DPC

Permanent database – State DSC

HIS - Activities in data collection, processing, and storage

Reporting

SecondaryValidation

FinalValidation

Authenti-cated Data

Central Agen-cies’ field data

Field/Testdata

Fielddata

Temporary DatabaseSubdiv / dist DPC

PrimaryValidation

Fielddata

Temporary DatabaseLaboratory

PrimaryValidation

Testdata

ProcessedWQ data

Field/Testdata

Data and Outputs to Users

Re-ports


Decentralized storage of data

Decentralized storage of data means that every state and central organization running anHIS maintains a Data Storage Center in whose database only the field and authenticateddata owned by them are stored. This ensures that the data-collecting agency remains in fullcontrol of its data, thereby avoiding disputes about data ownership, granting authorizationlevels to users and data pricing. It simply implies that every state and central organizationcan run its own business, fully independent of others. This fits into the laws under the IndianConstitution, where every State Government is given the power to legislate in respect of water,and can exercise this power for the whole or any part of the state. The state's authorityextends to all works for use and control of water within its jurisdiction. Thus, water and itsdevelopment is primarily a state subject.

This decentralized storage of data by no means implies that a total overview of thehydrological data availability is lacking. On the contrary, the catalogue available at everyData Storage Center provides a complete and regularly updated table of contents of alldatabases developed under the Hydrology Project in Peninsular India. For the data user,who specifies its data request based on the catalogue, it feels as interacting with just onevery large database, covering the entire area.

Separation of data processing and data storage

From the HIS structure presented in Figure 3.2 it is observed, that the data processing andthe data storage functions are separated; data processing is done in the Data ProcessingCenters, whereas the data archives are in the Data Storage Centers. Data processing andvalidation is a technical task, for which hydrologists/geo-hydrologists are qualified, whereasfinal data storage, i.e. the library function, is the domain of database managers. Thisdistinction was considered absolutely necessary for a number of reasons:

• To reflect that processing and storage are different disciplines, which require differentexpertise, tools, hardware support, activities and responsibilities,

• To guarantee discipline in building the database and its sustainability on the long term,

• To make sure that for design and decision making, data are being used, which passedall steps of validation,

• To avoid mixing of fully processed data and the data under processing,

• To register and control receipt and supply of authenticated data to and from thedatabase in a formalized manner,

• To ensure compatible database configuration and protocols by all agencies,

• To maintain a professional data security system under which each organizationmaintains its independence for user authorization and data circulation, and

• To create conditions for easier upgrading/replacement of either data storage or dataprocessing tools in case of new developments


Combine storage of surface and groundwater data

Though the approach described above calls for separation of data processing and datastorage functions, separate Data Storage Centers for Surface Water and GroundwaterDepartments have not been advocated. Combining the data storage activities in a State inone Data Storage Center has advantages over separate centers, fully in line with theNational Water Policy (MoWR, GoI, 1987). Advantages include:

• A combined center stimulates co-operation between all data collecting agencies, whichwill improve the quality of the data,

• It will greatly benefit users by providing all information from a single place and therebyenhanced the water resources assessment,

• It will improve the sustainability of the system and enhance the chances of a uniformsystem/approach on the long term, and

• It will reduce cost of hardware, software, and staff.

In two States Surface Water and Groundwater Organizations are placed under differentministries. In the states of Maharastra and Karnataka it was, therefore, decided that eachorganization should have its own Data Storage Center, with its inherent responsibilities forstaffing and maintenance.

1.5 HIS as a dynamic system

The data to be provided by the HIS are determined by the hydrological data users in view oftheir mandates with respect to the objectives of water resources management and usefunctions of the water system. Their demands may change from time to time. Also the fundsavailable for operating the HIS may vary. Since the HIS output should, within the budgetaryconstraints, optimally be tuned to the data user needs, the HIS has to be reviewed at regularintervals. The consequences of the proposed change for each HIS component and theinteraction between the components are to be assessed and subsequently to beimplemented. This makes the HIS a dynamic system to keep pace with the developments.

The mechanism to keep the HIS a demand driven system is the Hydrological InformationNeed (HIN) document, which forms the starting point in the review of the HIS. This documentshould be prepared based on interviews with the members of the Hydrological Data UserGroup (HDUG) and other HDUs. The HDUG is a formal platform established in each statefor interaction between hydrological data users and data providers.



Annex 2Logical Framework Analysis

Principles

The logical framework developed for the Consolidation Plan of the project identifies theoutputs that the project must produce to meet its specific objectives. Thus, these outputsare the expected results of activities to be undertaken in the project. It is to be noted that theproject activities were for the greater part carried out by the agencies, with no involvement ofthe Consultant in a line relationship. Hence, while TA activities were necessary forachievement of the project objectives, they must be seen as complementary to activities tobe undertaken by the agencies.

For each of the outputs a number of indicators are mentioned by which the achievement canbe observed. In the logical framework, the identification of the TA activities is preceded byan assessment of the current status with respect to the relevant output. The proposed TAactivities are directly related to this status. Next, the framework lists the inputs to beprovided by the Consultant. These inputs were always of advisory nature, and wereidentified in terms of the individual TA staff members’ designations.

Finally, the logical framework lists a number of assumptions on the basis of which theactivities are expected to bear fruit. Following standard logical framework analysis practice,expectations that are most likely to become reality are not listed under assumptions.Although a number of assumptions are crucial for the successful completion of the project,none is deemed to be a “killer assumption” (i.e. not likely to become reality) for all agencies.However, some issues, e.g. availability of specialist staff in posts created, would result inframing a killer assumption if staff cannot be redeployed, trained, or recruited. Where suchstaff remain unavailable the TA has no option but to abandon the respective activity in suchagency. This results in an automatic selection of the states, in which the TA continued thefull range of its activities.

The following pages present the logical framework for the consolidation phase of the project.The analysis points to the activities as from November 2001 required for building on andcompleting the work that has been on-going since 1996. The activities mentioned haveplayed, an important role in the pursuit of this objective.

Outputs = Results of Project Activities Output indicators Means of Verification Assumptions/external factors/risks1.1 Establishment of hydrology units comprising all HIS-related functions as per

approved guidelines in five Project states by eoP (partial in other States)MIS (“passive use”) Improved staff motivation

1.2 Enhanced personal effectiveness of apex and middle level managers MIS (“passive use”)1.3 Operating budgets for hydrology units allocated by eoP in all Project states MIS (“passive use”) Decision-makers appreciate HIS utility

1 Sustainable HIS units established withresponsibility for policy, system, andoperational functions; senior supervisorsusing info. from MIS

1.4 MIS autonomously functioning in key states. Review Mission Report2.1 At least 80% of trained officers remain in relevant technical/HIS posts in all Project

states by eoPMIS (“passive use”) Personnel policy balancing transfers &

retention, stressing transfer of knowledge2.2 Training Cell established in all hydrology organizations in all Project states by eoP MIS (“passive use”) Top management support for continual

updating of HIS skills

2 Retention assured of HIS knowledge andpractices in the relevant units

2.3 Delivery of HIS and WQMS operationalization workshops by internal resourcepersons in predetermined annual cycles in nine states by eoP

MIS (“passive use”) Appreciation at HIS management levels

3.1 Fully activated Central and State-level Coordination Committees (CCC/SCC)established with Technical Secretariat (TS) by eoP

Review Mission report Central and State Govts take actionPCS actively takes over TA tasks

3 Post-Project coordinationinstitutionalized in permanent bodiessupported by Technical Secretariat 3.2 National-level WQ Assessment authority and State-level WQ Review Committees

established and functional by eoPReview Mission report Central Government activates WQAA

State Governments establish WQRC4.1 Fully activated state/agency-specific HDUGs with desired membership mix as per

revised ToR in all Project states by eoPMinutes of HDUGmeetings

Real appreciation of HIS develops beyondSW/GW agencies

4.2 State/domain-specific HIN Documents approved in 3 Project states by eoP HIN Documents HIS organizations engage “outside” users4.3 Demonstrated linkage between HIS and water-related activities in various sectors, in

three states by eoPReports of Sector Reviews HIS organizations engage “outside” users

4.4 Verifiable utility of HIS data and information in four Project states by eoP Reports of Studies HIS organizations engage “outside” users

4 HDUGs active in identifying (changing)user needs and recommending relatednetwork adjustments

4.5 Ready availability and periodical updating of database on users and the nature andtype of their requests

DSC Registers of DataDissemination

5.1 Networks functional and optimally integrated (central and state); reviewed foradequacy regarding experience and present needs, in six states by eoP

MIS (“passive use”) All HIS organizations able to correctlymaintain and operate requisite equipment

5 Observation network of field sites andlaboratories established in line with userneeds, along with procedures formaintenance and updating

5.2 Regular inspection of maintenance, with inspection reports covering all sites andlabs available at relevant office, in six Project states by eoP

MIS (“passive use”) Improved appreciation for quality control (alsoto be evident in budget allocation)

6.1 Uninterrupted functioning of observation sites and labs for at least 90% of allvariables and samples in at least six Project states by eoP

MIS (“passive use”) On-going practice of inspection andmaintenance

6 Data collection taking place based onstandard observation procedures

6.2 Standardized application of lab practices in six states by eoP MIS (“passive use”) Availability of WQ staff7.1 Fully operational data processing centers in five Project states and central agencies

by eoP, with functioning HIS HelpdeskMIS (“passive use”) Timely availability of specialist staff

7.2 At least 90% of data validated on time according to agreed protocol at the relevantlevels in five Project states and central agencies by eoP

MIS (“passive use”) HIS Operation Manual adoptedData exchange taking place

7.3 At least 80% statistical accuracy achieved in actual observation for each parameterin six Project states by eoP

MIS (“passive use”) HIS Operation Manual adopted; Improved QCin data collection

7.4 Yearbooks on all types of data available in six Project states by eoP MIS (“passive use”)

7 Routine and consistent data validationand analysis taking place throughcomputerized data processing at differentlocations in the system

7.5 Ability to link present HIS data using standardized thematic GIS data sets in fiveProject states by eoP

MIS (“passive use”) Timely availability of dedicated GW softwareand GIS data sets

8 Efficient and optimal communicationlinks established in the system

8.1 At least 80% of data sent on time between different locations of data handlingaccording to agreed protocol in five Project states and central agencies by eoP

MIS (“passive use”) HIS Operation Manual adopted

9.1 Interconnected and fully operational data storage centers, with web-based meta datacatalogue and HIS data libraries

MIS (“passive use”) Software development completed on time andspecialist staff available

9.2 Archival of at least 80% of computerized validated data completed in six Projectstates and central agencies by eoP

MIS (“passive use”) DSC software available on time; availability ofdata processing staff

9 Data dissemination to users from datastorage centers, based on unambiguousregulations and using efficient practices

9.3 Guidelines for supply of data to users and administratively feasible data tariff policyapproved in all Project states by eoP

MIS (“passive use”)

Status TA Activities Inputs AssumptionsInstitution and human resources development

1.1 Most up-to-date staffing plans in place, butvacancies in key positions remain (IT and WQ).Alternative solutions being explored whererecruitment not possible.Most HIS procedures, set out in manuals andprotocols, and approved by the agencies, but yet tobe sanctioned in formal GOs by competentauthorities.Staff motivation often hampered by rigidinstitutional and administrative policies.

• Promote debate/discussion in appropriate quarters and lobby forissuance of GOs.

• Prepare HIS Management Reference Manual.• Conduct cultural assessment of a few pilot agencies and organize

workshops on cultural change to build commitment andsustainability.

• Assist in developing communication strategy for HIS promotion.

HMCs, HRD Experts, IDSpecialists to assist PCS andnodal officers

Responsiveness at high levelmanagement to need forinstitutional and cultural change.

1.2 Workshops successfully completed for apex levelHIS managers of central and state agencies, and formid-level HIS managers in all agencies by Marchend.

• Workshops for personal skill building and attitude shaping• Institutionalize responsibility for future workshops in NWA.

HRD/ID Specialists tofacilitate/coach NWA andrespective agencies

NWA receptive

1.3 Budgets have been allocated, although not always asper norms prepared by TA.

• Support agencies on request at management level only. HMCs to assist nodal officers Nodal officers ready to activelypursue the matter

1.4 Most agencies supply info for MIS-II only whenasked.

• Coaching on utility and use of MIS, incorporating changes desiredby respective agencies in AP,Mst, and Ktk

ID specialists

2.1 Frequent and unplanned transfers of trained officersare widespread.

• Advocate policy balancing transfers with the need to retain trainedstaff, with full hand-over when transfers occur.

HRD/ID Specialists to discusswith decision makers

2.2 Training Coordinators active in all agencies.Personalized training plans exist, and training andtime schedules have been updated.

• Assist TCs to prepare agency specific post-HP training plans byJuly 2002.

• Coach functioning of training cells and coordinators.• Facilitate overseas training for WR Planners and DSC managers

(mid 2002).• Draft MOUs for future involvement of apex training organizations

in skill development.

HRD/ID Specialists to assistTraining Coordinators ofrespective agencies

Allocation to the agencies ofbudgets for post-HP continuation oftraining activities

2.3 Limited appreciation of need for monitoring qualitycontrol (MQC) as part of operationalizing the HIS.One cycle of HIS and WQMS operationalizationworkshops completed in most agencies byDecember end.

• Complete expert input in developing workshop material byDecember 2001 (for WQ Feb 2002). Focus on transferringresponsibility for replication of workshops to agencies, throughattending agency-run workshops as adviser during 2002 andincluding workshops in annual training calendar.

HMC, DP Experts, WQ Experts,HRD/ID Specialists to assist HISManagers at divisional andregional levels

3.1 Not yet established. NLSC/NLCC and PCS,respectively, now perform this function.Debate on long-term development of/around HISinitiated by PCS.

• ToR for CCC and SCC.. ToR for HIS-TS and SDPC, to function asTS for SCC (ToR to include use of MIS).

• Establishment of central TS and HIS Helpdesk in TA office, and HISHelpdesks in State/Regional DPCs.

• Guide transfer of role of coordinator/motivator/stimulator.• Guidance to SDPC on state-level TS/helpdesk function• Assist PCS/HIS-TS in developing long-term HIS strategy in context

of National Water Policy.

ID Specialists to assist PCS toform HIS-TS and CommitteesID/WRM Specialists to conductstrategic planning workshop

Adequate staffing and budgetavailable for continuation of PCSas HIS-TS in MoWR underCommissioner (WM)

3.2 WQAA established in DoE&F, MoWR, gazettedMay 2001. SWQRCs not yet established. RequiresTechnical Secretariat at center (jointly with TS forCCC).

• ToR for SWQRC. ToR for WQ aspects in TS (center) and SDPC(States, to function as TS for SWQRC)

WQ Experts and ID Specialists toassist WQAA through HIS-TS orPCS

Adequate staffing and budgetavailable for continuation of PCSas HIS-TS in MoWR underCommissioner (WM)

Status TA Activities Inputs AssumptionsUtility of HIS and future development

4.1 HDUG constituted, formal meetings held in AP,TN, Mst, Guj, MP, Or, Ktk. New ToR adopted inMst, Guj, and TN only. Not yet active in Ker,CWC, CGWB. Not yet constituted in Ctg. Overallfrequency of meetings less than semi-annual

• Activate HDUG in Ker, Ctg, and central agencies• Develop relevant issues and attend meetings for (assistance on)

presentations.• Institutionalize concepts and practices with Task Group approach.

HMCs and ID Specialists tocoordinate with SDPC and NDPCmanagers

Sufficient interest among HDUGmembers to join task groups

4.2 HIN Questionnaire introduced in all states exceptMP, Ctg, and Ker. No HIN documents produced todate. Agencies show limited external demandorientation.

• Assist in application of questionnaire in Mst, Ktk, and AP• Production of sample HIN documents in Ktk, Mst and AP. • Training on compiling, processing, documenting State/Domain-

specific info needs (HIN).• Assist HIS-TS and SDPC in leading this process.

HMCs and ID specialists tocoordinate with nodal officers andSDPC and central DPC managers

Non-SW/GW organizationsenunciate specific and realisticdemands

4.3 Supply-side development of HIS has not spurredHIS organizations to develop outward-lookingpolicies.

• Promote agency lead in PR for HIS, e.g. through websites,newsletters, national/state-level conferences, etc.

• Inventory of HIS info utility and needs in different sectors

TL, HMCs, WRM Specialist, IDSpecialists to assist nodal officers

Non-SW/GW organizationsenunciate specific and realisticdemands

4.4 Some studies using HIS information on-going. • Assist on WRM river basin studies and other added value studies• Introduction of RIBASIM S/W in NWA curriculum

HMCs, WRM and Technicalexperts to assist staff at SDPCs

4.5 Development of database and collection of dataawaits finalizing relevant software.HIS content still primarily reflects traditional datacollection jurisdictions and practices of the agencies.

• Expand existing (paper) registers of requests and supplies of datainto databases on existing and potential users.

• Assist HIS-TS and SDPCs in assessing need for additional datacategories and planning for their incorporation in the HIS.

HMC, DMC to assist SDSC andNDSC managers.WRM and DP Experts to assistnodal officers.

Network5.1 Integrated networks implemented in all states, but

implementation of new WQ monitoring networks isslow. Occasional faulty installation of equipment.No HIN docs. To review network adequacy.

• Support to implementation of specialized equipment (IBS, ADCP,etc.)

• Review adequacy of HIS networks in 6 states based on HINdocuments and experience to date.

Equipment expert, HIS Advisers,HMC, DP Expert to assist SDPCand NDPC Managers

Continued cooperation onnetwork integration betweencentral and state agencies.

5.2 Most agencies have no structured reports onnetwork/equipment performance available. Noregular inspections in many agencies.Application of O&M manuals/budget norms needsformal GOs.

• Introduce regular inspection of field practices and equipmentperformance (MQC) through assistance related tomanuals/budgets, on special request at management level only.

Equipment expert, HMC to assistHIS Managers at various levels.

Government recognizes the needfor programmed O&M based onregular inspections.

Data collection6.1 Field practices lag behind improvements in

instrumentation. Quality control lacking.Manuals to be updated for experience fromoperationalization workshops.Partially inadequate staffing in all states.

• Final edition SW manual• Review hydrometric/WQ measurement practices; propose relevant

protocols for formal Government sanction.• Pursue updating of training modules by NWA and RGI.• Introduce regular refresher courses for supervisors

HMC, HIS Advisers, DP Expert,HRD Specialist to assist HISmanagers at divisional level andNWA/RGI

Managers of data collection unitsable to retain and motivate theirstaff.

6.2 Most labs fully equipped, but outmoded analyticalpractices continue as existing staff have limited skills.Almost no recruitment of WQ specialist staff.

• Coaching of lab mgt. and staff on operational protocols• Coaching of existing staff on use of sophisticated equipment• Pursue avenues for outsourcing if WQ professionals cannot be

recruited.

WQ experts and HMCs to facilitateand assist chemists of Level II+ andLevel II labs

Outside parties are willing andready to respond to outsourcing.

Status TA Activities Inputs AssumptionsData processing, analysis and reporting

7.1 Helpdesk function yet to be developed andintroduced.Basic HYMOS in place, dedicated GW Softwareseriously delayed.SWDES and GWDES accepted and widely used;WQDES in infant stage.Final DP Manual (SW) under preparation (GWmanual awaits GW software).

• Develop relevant procedures for helpdesks• Training of DPC staff• Establish helpdesks in HIS-TS and State and Central DPCs• Transfer basic HYMOS training and coaching to agency helpdesks.

Same for IT support.• Conduct ToT for advanced HYMOS training, followed by coaching

of subsequent training courses and applications.

HMC, IT Expert, DP Experts,and DMCs to assist SDPC andNDPC mgrs, TIL, NIH, NWA.

Nucleus of motivated and trainedstaff in place at NDPC/ SDPC.

7.2 Historical data entry well advanced, but only approx.50% of current data entered.

• Coach operationalization of WQDES.• Coordinate with TIL on hardware & software for GW.• Finalize DP manual for SW (TIL to do this for GW)• Advocate proper planning of DPC activities.

HMC, IT Expert, DP Experts,and DMCs to assist SDPC andNDPC managers

Dedicated GW softwareimplemented at the latest by mid-2002.

7.3 Primary data validation as done to date has no impacton data collection practices.

• Hands-on-training for selected SDPC staff• Lobby for institutionalization of feed back to data collection staff as

per manual.• Finalize protocols and seek approval through GOs.

HMCs, DP Experts.

7.4 Specifications for yearbooks drafted. Customizationof software underway.

• Assist production of first yearbooks in 3 states by 6/2002.• Promote result as model for other states.

HMCs & DP Experts assistnodal officers, S/NDPC mgrs.

7.5 Procurement completed in some states and underwayin others. Quality control (verification of data sets)not yet begun.

• Training on QC/QA procedures and methods for GIS data.• Training on use for geo-hydrological applications

DP and GIS Experts providetraining and coaching to GISExperts of GW Agencies

Data exchange and communication8.1 Formal procedures yet to be initiated, but informal

inter-agency exchange has begun (slow progress);growing use of internet

• Assist finalization of formal guidelines and include these as integralpart of DP manual, and lobby for relevant GO.

• Guide full-fledged inter-agency data exchange practices.

HMCs and DP Experts assistnodal officers, CWC, CGWB,IMD, PCS/TS, and HIS-CC

Data storage and dissemination9.1 Finalization data storage software awaited. Training

program yet to be developed (incl. overseas training)• Provide technical expertise for operationalization of DSCs.• Support for development of related hardware and software.• Support for introduction of data dissemination practices.

DMCs, IT Expert, DP Experts toassist supplier, CWC, NIC, andDSC managers

Implementation of software bymid- 2002

9.2 Awaits software for DSC • Coordinate with supplier on effective introduction of the software andrelated training

DMCs, IT Expert, DP Experts toassist supplier, CWC, NIC, andDSC managers

Supplier amenable to coordinationby TA

9.3 Development of DS and dissemination manual awaitsdata storage software.Pricing policy being discussed in Specialist TaskGroups in Mst, Guj, and Ktk, but not in other statesand central agencies.

• Support in development, finalization, and standardized application ofthe manual, and lobby for relevant GO.

• Assist in initiating debate in appropriate forums.• Assist finalization of policies/procedures• Lobby for relevant GO.

HMC, ID Experts, IT Expert,DP Experts, and HRDSpecialists to assist supplier,CWC, and DSC Managers ondata supply and discuss pricingpolicies with nodal officers andHIS-TS



Annex 3Catalogue of HIS Resources Data Base

1 HIS Overview

1.1 HIS introductions1.1.1 HIS Overview1.1.2 Note on HIS

1.2 HIS presentations1.2.1 HIS GW Monitoring1.2.2 HIS Concepts1.2.3 HIS Users

1.3 HIS Films1.3.1 Manage Water Manage Life1.3.2 HIS India’s water data bank

1.4 HP Newsletter1.4.1 HP Newsletter – 14 issues

2 HIS Management

2.1 TA reports2.1.1 Inception Report2.1.2 Example SAPR and Annual Programme and Budget October 19982.1.3 TA extension proposal2.1.4 HP Follow-up; draft working paper2.1.5 Final Report

2.2 HIDAP2.2.1 HIDAP Monitoring Report January 20002.2.2 Final Documents – All States2.2.3 Model HIDAP2.2.4 Organisational Assessment SW & GW – AP, TN and MAH2.2.5 Abbreviated Assessment

2.3 MIS2.3.1 Project Monitoring Concept2.3.2 Project Monitoring MIS2.3.3 Sample Quarterly Input Forms2.3.4 Example Output Reports – June 20022.3.5 Input for MIS2.3.6 Design outline for agency level MIS2.3.7 Phase II – MIS 22.3.8 Basic Module Version – 2.0.1 Agency Level MIS Software


2.4 HDUG

2.4.1 HIN – Questionnaires

2.4.2 HDUG – Terms of Reference

2.4.3 HIS Sustainability and Organisation Culture in the states of A.P, KAR and MAH

2.4.4 Hydrological Information Needs - SW & GW

3 HIS Manuals

3.1 Surface Water3.1.1 HIS SW Manual (Volumes 1 – 10)3.1.2 HIS Job descriptions3.1.3 SW HIS Protocols Design of cableways3.1.4 Hydrological Observations (cartoons)3.1.5 Surface Water O & M Norms3.1.6 telemetry for flood forecasting3.1.7 User Manual SWDES3.1.8 User Manual HYMOS3.1.9 Entering SW historical Data3.1.10 Example Year book SW

SW Technical Papers3.1.11 Upgrading a conventional hydrological information system - an Indian example

H. Chowdhary, S.K. Jain, H.J.M. Ogink (South Africa - December 2000)3.1.12 Emerging information technology for sustainable water resources development in

India- H. Chowdhary, S.K. Jain, H.J.M. Ogink (New Delhi-December 2000)

3.2 Groundwater3.2.1 HIS GW Manual (Volumes 1 – 10)3.2.2 HIS Job descriptions3.2.3 GW HIS Protocols3.2.4 Lithospecific Piezometer Manual3.2.5 Implementation of piezometers3.2.6 Reduced level of network stations3.2.7 DWLR Specifications and acceptance protocol3.2.8 DWLR operations and maintenance3.2.9 DWLR Performance3.2.10 Groundwater O & M Norms3.2.11 User Manual GWDES3.2.12 Spatial Data Sets – Manual (October 99).3.2.13 GIS Methodology - Manual (March 2001)3.2.14 Example Year book GW

GW Technical Papers3.2.15 HIS as a tool for integrated water resource development / planning - Dr. K.A.S Mani

(Bhopal – October 99)3.2.16 Advancement in techniques in groundwater regime monitoring and data base

management planning facilitated through the Hydrology Project – Dr. K.A.S. Mani(Ahmedabad – November 1999) (Bangalore - February 2000).

3.2.17 Spatial Data Sets in Hydrology Project: The Proposed Approach- Dr. K.A.S. Mani,Dr. S. Thiruvengadachari, Map India 1999 (New Delhi – August 1999).


3.3 Water Quality3.3.1 HIS SW Manual3.3.2 HIS GW Manual3.3.3 Standard Analytical Procedures3.3.4 Maintenance Norms and Logbooks for WQ Laboratories3.3.5 Protocol for Water Quality Monitoring AQC – within laboratory exercise3.3.6 Within-laboratory AQC findings – 1st round (Feb’98) & 2nd round (Jun.’99)3.3.7 Inter-laboratory AQC findings – 1st round (Jul.’99), 2nd round (Feb.’01), 3rd round

Jun.’02.Water Quality Technical Papers

3.3.8 GW Quality Monitoring Objectives, Networks and Data Acquisition - A. Bein,P. Boderie, C. Hoggart

3.3.9 An integrated approach to water quality management; National Conference onWater Pollution (Dr. R.C. Trivedi, Monique Villars, Dr. S.P. Chakrabarti).

3.3.10 Proceedings of Technical Papers – Workshop on Surface Water Quality Monitoring3.3.11 Networks and Mandates of Water Quality Monitoring3.3.12 Water Quality Monitoring Systems for protecting National Water Resources3.3.13 Quality of life and our national water wealth (World Congress on Environmental

Management) Dr. S.P. Chakrabarti, New Delhi, June 2-3,2000)3.3.14 Towards better management of the urban water and wastewater: A case study –

Delhi. Journal of School of Planning & Architecture, New Delhi(Dr. S.P. Chakrabarti).

4 HIS Specifications

4.1 Equipment Specifications4.2 Procurement documents4.2.1 Bank Operated Cableway ICB document4.2.2 DWLR (SW) equipment selection & civil works4.2.3 Integrated Bathymetry System ICB document4.2.4 Tender document for DSC4.2.5 Dedicated Hydrological SW data processing software specifications4.2.6 Dedicated Software & Hardware Procurement for GW DPC4.3 Research & Development4.3.1 Proposal sample performa

5 HIS Training Information

5.1 Catalogues5.1.1 PG catalogue Hydrology Courses5.1.2 Study tour catalogue of sites in India.5.1.3 Overseas Training & Study Tour catalogue5.1.4 HIS training specification5.1.5 Directory HP Trainers & Faculty.5.1.6 Training plan & calendar.5.1.7 Training Co-ordinator tasks


5.2 Modules5.2.1 SW data collection training modules (No. 1-24)5.2.2 SW data processing training modules (No. 1-45)5.2.3 Course introduction for HYMOS trainers5.2.4 GW data collection training modules (No. 1-26)5.2.5 DWLR GW data handling Training Module5.2.6 GWDES Introduction & Demo Session5.2.7 Course introduction for WQ trainers5.2.8 WQ training modules (No. 1-50)5.2.9 Training management workshop session plan.5.2.10 Trainer’s training programme (No.1-9)

5.2.11 Trainers module for Personal Effectiveness5.2.12 Change management session document

5.3 Reports5.3.1 Training history 1996-20005.3.2 Training sustainability-co-ordinators’ perception5.3.3 Training sustainability – action plan5.3.4 Training targets & plans


Annex 4Table of Contents of SW and GW Manuals

Table of Contents of SW Manual

Volume 1: Hydrological Information System

A. Design manual1 Introduction2 Hydrological information system3 Data users and data requirements

B. Field manualPart I Job descriptionPart II Terms of Reference for HDUGPart III Data needs assessment

C. Reference manual1 National Water Policy

Volume 2: Sampling Principles

A. Design manual1 Introduction2 Units3 Basic statistics4 Measurement error5 Sampling frequency6 Sampling in space7 Network design and optimization

C. Reference manual1 Sampling distributions2 Guidelines for evaluating and expressing the uncertainty of NIST measurement

results

Volume 3: Hydro-meteorology

A. Design manual1 Introduction2 Description of rainfall and evaporation processes3 Network design and optimization4 Site selection5 Measuring frequency6 Measurement techniques7 Equipment specifications8 Station design and construction9 Station operation and maintenance10 Field inspections cum technical audit11 Calibration


B. Field manualPart I Network design and site selectionPart II Standard raingauge station (SRG) operation and maintenancePart III Automatic raingauge station (ARG or TBR and SRG) operation and MaintenancePart IV Full climatic station (FCS) operation and maintenancePart V Field inspections, audits, maintenance and calibration

C. Reference manual1 Pilot study: design of raingauge network2 Estimation error in long term mean areal rainfall3 Summary of monthly and annual statistics of climate variables4 References

Volume 4: Hydrometry

A. Design manual1 Introduction2 Physics of river flow3 Hydrometric network design4 Site selection of water level and streamflow stations5 Measuring frequency6 Measuring techniques7 Equipment specifications8 Station design, construction and installation9 Field inspections and audits10 Maintenance & calibration11 References

B. Field manualPart I Network design and site selectionPart II River stage observationPart III Float measurementsPart IV Current meter gaugingPart V Field application ADCPPart VI Slope-area methodPart VII Field inspection and auditsPart VIII Maintenance and calibration

C Reference manual1 Introduction to hydraulics2 Bureau of Indian Standards (BIS) criteria for selection of velocity-area method

measurement site3 Shaft encoders4 Gas purge (bubbler) systems5 Ultrasonic-in air (look down) water level sensors6 Flow measurement structures7 Errors in measuring procedures8 Guidance on design of cableways, (with appendices)

Volume 5: Sediment transport measurements

A Design manual1 General2 Origin and transport of sediments3 Network design


4 Site selection5 Measuring frequency6 Measuring techniques7 Equipment specifications8 Station design, construction and installation9 Sediment analysis

B Field manual1 Suspended load measurement, bed material sampling, sediment analysis2 Observation practice3 Suspended load4 Bed material5 Sediment analysis

C Reference manual1 Introduction to bed load measurements2 Bead load measurement frequency3 Measuring techniques4 Bed load samplers5 Observation practice

Volume 6: Water Quality Sampling

A Design manual1 Introduction2 Management issues for Water Quality Monitoring3 Monitoring objectives4 Network design5 Network rationalization6 Site Selection7 Field techniques8 Equipment9 Laboratory preparations for sampling10 Check list for field visit11 Standard Analytical Procedures – field determinations12 Guidelines on Standard Analytical Procedures

B Field manual1 Laboratory preparations for sampling2 Check list for field visit3 Collecting the sample4 Standard analytical procedures-field determinations5 Guidelines on standard analytical procedures

Volume 7: Water Quality Analysis

A Design manual1 Introduction2 Basic concepts from chemical analysis3 Basic concepts from microbiology4 Principles of instrumental analysis5 Water quality parameters6 Equipment specifications7 Laboratory design8 Quality assurance/ quality control


B Operation manual1 Introduction2 Analysis protocol3 Sample analysis4 Recommended Analytical Procedures5 Analysis results6 Data record and validation

Volume 8: Data Processing and Analysis

A Operation manualPart I Data Entry and Primary ValidationPart II Secondary ValidationPart III Final Processing and AnalysisPart IV Data Management

Volume 9: Data Transfer, Storage and Dissemination

A Design manual1 Introduction2 Hydrological data users group3 Databases4 Architecture of the Data Storage Centre5 DSC Functions and Interfaces6 The Catalogue7 DSC Software Specifications8 Hardware Specifications9 Related aspects

B Operation manual1 Introduction2 Context3 Structure of the Hydrological Information System4 Hydrological Data Suppliers and Users5 Databases6 Architecture of the Data Storage Center7 DSC Functions and Interfaces8 The Catalogue9 DSC Software Specifications10 Hardware Specifications11 Related Aspects12 Acceptance Protocol

Volume 10: SW-Protocols

A Protocols1 Protocols for various HIS activities-SW domain2 Summary of procedures for SW data validation under HIS

B Data entry forms1 Meteorology2 Surface Water3 Water Quality


Table of Contents of GW Manual

Volume 1: Hydrological Information System

A. Design manual1 Introduction2 Hydrological information system3 Data users and data requirements

B. Field manualPart I Job descriptionPart II Terms of Reference for HDUGPart III Data needs assessment

C. Reference manual1 National Water Policy

Volume 2: Sampling Principles

A. Design manual1 Introduction2 Units3 Basic statistics4 Measurement error5 Sampling frequency6 Sampling in space7 Network design and optimization

C. Reference manual1 Sampling distributions2 Guidelines for evaluating and expressing the uncertainty of

NIST measurement results

Volume 3: Hydro-meteorology

A Design manual1 Introduction2 Description of rainfall and evaporation processes3 Network design and optimization4 Site selection5 Measuring frequency6 Measurement techniques7 Equipment specifications8 Station design and construction


B Field manualPart I Network design and site selectionPart II Standard raingauge station (SRG) operation and maintenancePart III Automatic raingauge station (ARG or TBR and SRG) operation and

MaintenancePart IV Full climatic station (FCS) operation and maintenancePart V Field inspections, audits, maintenance and calibration

C Reference manual1 Pilot study: design of raingauge network2 Estimation error in long term mean areal rainfall3 Summary of monthly and annual statistics of climate variables4 References

Volume 4: Geo-hydrology

A Design manual1 Introduction2 Basic groundwater concepts3 Role of maps in geo-hydrological investigations4 Groundwater monitoring5 Water level measuring frequency6 Groundwater level measuring techniques7 Equipment specifications8 Design of litho-specific piezometers9 References

B Field manualPart I Network design and site selectionPart II Drilling of litho-specific piezometersPart III Aquifer testsPart IV Testing and implementation of DWLRPart V Reduced levels of wellsPart VI Manual water level data collection from observation wells and piezometersPart VII Digital water level data collection from piezometerPart VIII Monitoring wells – inspection and maintenance

C Reference manual1 Steps in procurement of DWLR

Volume 5: GIS-creation of data sets

A Operation manual1 Introduction2 Directory of Spatial data3 Land use/cover4 Soils5 Geology - Lithology6 Geology - Structures


7 Geomorphology8 Administrative Units9 Hydrologic Units10 Settlements11 Transport Network12 Drainage13 Contours and Spot Heights

C Reference manual1 Classification and Mapping Accuracy2 Standard Procedure for Digitization3 Quality Control (QC)/Quality Assurance (QA) Strategy Plan4 Format for Textual Report accompanying Digital Spatial Dataset

Volume 6: Water Quality Sampling

A Design manual1 Introduction2 Management issues for Water Quality Monitoring3 Monitoring objectives4 Network design5 Network rationalization6 Site Selection7 Field techniques8 Equipment9 Laboratory preparations for sampling10 Check list for field visit11 Standard Analytical Procedures – field determinations12 Guidelines on Standard Analytical Procedures

B Field manual1 Laboratory preparations for sampling2 Check list for field visit3 Collecting the sample4 Standard analytical procedures-field determinations5 Guidelines on standard analytical procedures

Volume 7: Water Quality Analysis

A Design manual1 Introduction2 Basic concepts from chemical analysis3 Basic concepts from microbiology4 principles of instrumental analysis5 water quality parameters6 Equipment specifications7 Laboratory Design8 Quality Assurance/ quality control


B Operation manual1 Introduction2 Analysis protocol3 Sample analysis4 Recommended Analytical Procedures5 Analysis results6 Data record and validation

Volume 8: Data Processing and Analysis

A Operation manualPart I Data collection and validationPart II Data processing and analysisPart III Groundwater resource assessment

B Reference manual1 Data processing and analysis

Volume 9: Data Transfer, Storage and Dissemination

A Design manual1 Introduction2 Hydrological data users group3 Databases4 Architecture of the Data Storage Centre5 DSC Functions and Interfaces6 The Catalogue7 DSC Software Specifications8 Hardware Specifications9 Related aspects

B Operation manual1 Introduction2 Context3 Structure of the Hydrological Information System4 Hydrological Data Suppliers and Users5 Databases6 Architecture of the Data Storage Center7 DSC Functions and Interfaces8 The Catalogue9 DSC Software Specifications10 Hardware Specifications11 Related Aspects12 Acceptance Protocol

Volume 10: GW-Protocols

A Protocols1 Protocols for various HIS activities-GW domain2 Summary of procedures for GW data validation under HIS


Annex 5Equipment for which detailed specifications have been provided

S. no. Category/name of equipment

1 Hydrological equipment

1 Staff gauge2 Level indicator tape3 Electrical level indicator type4 AWLR (float type)5 DWLR(pressure type)6 DWLR (bubbler type)7 DWLR (float with shaft encoder)8 Current meter (cup-type)9 Current meter (pygmy-type)10 Current meter (propeller type)11 Electromagentic – current meter for wading use12 Electromagnetic current meter13 Pulse counter14 Electronic stopwatch15 Portable echo-sounder16 Discharge measuring system17 Acoustic Doppler Current Profiler18 Cable way19 Bridge outfit20 Boat outfit21 FRP boat22 FRP catamaran23 Aluminium boat24 Outboard engine25 Boat trailer26 Steel boat27 Motor launch28 Submersible pump, portable29 Integrated bathymetric system (for reservoir sedimentation survey)30 Hydrographic echo sounder31 Sound velocity calibrator

2 Sediment equipment

1 Bed material sampler2 Point integrating bottle3 Depth integrating (hand held)4 Depth integrating (winch operated)5 Visual accumulation tube6 Electronic precision balance (top loaded)


7 Optical particle sizer (pc controlled)8 Test sieves with shaker

3 Meteorological equipment

1 Digital weather station2 Counter type anemometer3 Wind direction indicator4 Rain gauge (non recording)5 Rain gauge (autographic siphon type)6 Rain gauge (tipping bucket type)7 Sunshine recorder8 Liquid-in-glass thermometers9 Thermograph (bimetallic type)10 Hydrograph (hair string type)11 Stevenson screen12 Evaporimeter (us class a pan)

4 Water quality equipment

1 Analysis kit WQ field measurements (portable)2 Steriliser, autoclave3 Analytical balance (electronic)4 Analytical balance (mechanical)5 Analytical balance (electronic-high accuracy)6 Centrifuge7 COD digestor (open reflux)8 Conductivity meter (digital)9 Deep freezer10 Dissolved oxygen meter (portable)11 Sampler (dissolved oxygen)12 Distillation apparatus (cyanide)13 Distillation appratus (fluoride)14 Filtration assembly for membrane filters15 Flame photometer (microporcessor based)16 Fume cupboard17 Gas chromotograph (pc-controlled)18 Incubator (bacteriological)19 Incubator (bod)20 Ion meter21 Digestion and distillation unit, Kjeldahl22 PH meter (digital)23 PH meter (field-portable)24 Shaker (oscilatory)25 Silto meter26 Soxhlet extraction unit27 Spectrophotometer (atomic absorption)28 Spectrophotometer (uv visible – pc controlled)29 Spectrophotometer (uv visible – manual)30 Thermometers (set of)


31 Turbidy meter (nephelometer)32 Water bath (bacteriological)33 Water bath (general purpose)34 Water purifier (distillation unit – automatic)35 Water purifier (double distillation unit)36 Water purifier (ion exchange reisn column)37 TOC analyser (microprocessor controlled)38 Microwave digestor (microprocessor controlled)39 Water purifier (reverse osmosis and ion exchange)40 Conductivity meter (field – portable)41 Gas chromotograph42 Laminar flow

5 Automation and Communication

1 Personal computer (pentium iv)2 Laptop pc3 Server with raid disk4 Networking5 Laser printer (b/w 8 and 16 ppm) a4 size6 Low volume inkjet plotter7 Colour laser printer (a4 size)8 Scanner9 Digitiser10 CD writer11 DAT tape drive12 UPS (i and 5 kva)13 Wireless set14 VHF FM transducer (walkie-talkie)15 Power supply for transreceiver

6 Survey equipment

1 Compass2 Theodolite3 Levelling staff4 Auto level5 Digital level6 Laser distance meter7 Total station8 GPS l1 receiver9 Differential GPS



Annex 6Training Courses developed and organized

Data Collection Procedures

1 Data collection at rainfall stations2 Data collection at full climatic stations3 Hydrometry for helpers4 Hydrometry for gauge readers/observers5 Hydrometry for supervisors6 Groundwater data collection7 O & M of awlr/dwlr8 O & M of bank operated cable ways9 Sediment equipment – sampling and maintenance10 O & M of reservoir sedimentation survey equipment

Water Quality Sampling and Analysis Procedures

1 WQ sampling and field parameters2 WQ analytical procedures3 Analytical procedures for pollution related parameters4 Advanced WQ equipment (AAS, GC, UV-VIS)5 WQ laboratory management6 Laboratory networking and analytical quality control

Hydrological Data Entry and Processing

1 Surface water data entry system2 Basic SW data processing (HYMOS)3 Advanced SW data processing (HYMOS)4 WQ data entry system (SWDES)5 WQ data processing6 Groundwater data entry (GWDES)7 DWLR data analysis8 Groundwater data processing (under preparation)9 Geographical Information System10 Remote sensing applications

IT & HIS Management

1 Basic computer operations2 MS office3 Computer system management4 Database administration (ORACLE, VB)5 HIS operationalisation workshop (SW&GW)6 HIS management training7 HIS database administration

Post Graduate Training and Study Tours

1 Basic hydrology course2 Post graduate hydrology course3 Study tours in India (visits to field, data centers & WQ laboratories)4 Overseas training and study tours



Annex 7Training Modules prepared

SW data processing training modules:

Module No. Module Title1 Understanding HIS concept and its set up2 Understanding data processing activities under HIS3 Understanding data processing plan4 Different types and forms of data in HIS5 How to receive data at different levels6 How to organize data into temporary databases7 How to make data entry for rainfall data8 How to carry out primary validation for rainfall data9 How to carry out secondary validation of rainfall data10 How to correct and complete rainfall data11 How to compile rainfall data12 How to analyze rainfall data13 How to report on rainfall data14 How to process evaporation data15 How to make data entry of climatic data16 How to carry out primary validation of climatic data17 How to carry out secondary validation of climatic data18 How to correct and complete climatic data19 How to analyze climatic data20 How to report on climatic data21 How to make data entry for water level data22 How to carry out primary validation of water level data23 How to carry out secondary validation of water level data24 How to correct and complete water level data25 How to analyze water level data26 How to report on water level data27 How make data entry and processing of flow measurements data28 How to carry out primary validation of stage-discharge data29 How to fit rating curve for stage-discharge data30 How to validate rating curve31 How to extrapolate rating curve32 How to carry out secondary validation of stage-discharge data33 How to report stage-discharge data34 How to compute discharge data35 How to carry out primary validation of discharge data36 How to carry out secondary validation of discharge data37 How to do hydrological data validation using regression38 How to do hydrological data validation using hydrological model39 How to correct and complete discharge data40 How to compile discharge data


Module No. Module Title41 How to analyse discharge data42 How to report on discharge data43 Statistics analysis with reference to Rainfall and discharge data44 How to carry out correlation and spectral analysis45 How to review monitoring networks46 How to organise data into temporary databases47 How to work with map layers and network layers48 How to transfer data between temporary databases49 How to transfer data from temporary to permanent databases50 How to work with HYMOS in a network environment51 How to back-up SW data at various DPCs

GW training modules

Module No. Module Title1 The hydrological cycle and its relevance to groundwater2 How to drill, design, construct and complete wells for groundwater

monitoring3 How to apply basic statistics in the optimization of networks4 Introduction to database management systems5 Introduction to groundwater data processing6 Understanding the design of water level networks7 Understanding the objectives of hydrometry8 Understanding the use of pressure transducer AWLRs9 Understanding the use of electromechanical AWLRs10 How to conduct well performance tests11 How to evaluate aquifer parameters12 Understanding data collection formats13 Understanding the design of water quality monitoring networks14 Understanding design attributes of monitoring networks15 Introduction to data presentation16 Understanding the physics of aquifer parameters17 How to analyze water samples at site18 How to schedule measurements in a monitoring network19 Overview of manually operated instruments20 How to design, install and maintain monitoring wells

WQ training modules

Module No. Module Title1 Basic water quality concepts2 Basic chemistry concepts3 Good laboratory practices4 How to prepare standard solutions5 How to measure colour, odour and temperature6 Understanding hydrogen ion concentration (pH)7 How to measure pH


8 Understanding electrical conductivity9 How to measure electrical conductivity10 How to measure dissolved, suspended and total solids11 Chemistry of Dissolved Oxygen measurement12 How to measure Dissolved Oxygen (DO)13 How to sample surface water for water quality analysis14 How to sample groundwater from bore-wells for WQ analysis15 Understanding Biochemical Oxygen Demand test16 Understanding dilution and seeding procedures in BOD test17 How to measure Biochemical Oxygen Demand18 Understanding Chemical Oxygen Demand test19 How to measure Chemical Oxygen Demand (COD)20 Introduction to microbiology21 Microbiological laboratory techniques22 Coliforms as indicator of faecal pollution23 How to measure coliforms24 Basic aquatic chemistry concepts25 Oxygen balance in surface waters26 Basic ecology concepts27 Surface water quality planning concepts28 Major ions in water29 Advanced aquatic chemistry: solubility equilibria30 Advanced aquatic chemistry concepts: redox equilibria31 Behaviour of trace compounds in aquatic environment32 Potentiometric analysis33 Use of ion selective probes34 Absorption spectroscopy35 Emission spectroscopy and nephelometry36 How to measure fluoride37 How to measure nitrogen - nitrate by UVS and CD reduction method38 How to measure nitrogen, ammonia and organic39 How to measure nitrogen, ammonia by direct phenate method40 How to measure chlorophyll41 How to measure phosphorus42 How to measure boron43 How to measure iron44 How to measure sodium45 How to measure sulphate46 How to measure silicate47 Introduction to advanced instrumental analysis – AAS48 Performing analysis by AAS – getting started49 Introduction to advanced instrumental analysis – GC50 Performing analysis by GC - getting started



Annex 8Abbreviations

AAS Atomic Absorption SpectrophotometerADCP Acoustic Doppler Current ProfilerAEE Assistant Executive EngineerAMC Annual Maintenance ContractAPB Annual Programme and BudgetAQC Analytical Quality ControlARG Autographic Rain GaugeAWLR Autographic Water Level RecorderBoCW Bank Operated Cable WayBOD Biological Oxygen DemandCAD Command Area DevelopmentCBIP Central Board of Irrigation and PowerCDO Central Design OfficeCE Chief EngineerCGWB Central Ground Water BoardCPCB Central Pollution Control BoardCPWD Central Public Works DepartmentCRO Chief Research OfficerCSMRS Central Soil and Material Research StationCTI Central Training InstituteCWC Central Water CommissionCWPRS Central Water and Power Research StationDAS Data Analysis Software (for AQC)DB Data BaseDBM Data Base ManagementDCA Development Credit AgreementDDPC Divisional Data Processing CentreDES Data Entry SoftwareDGPS Differential Global Positioning SystemDMC Data Management ConsultantDO Disolved OxygenDOICAD Department of Irrigation and Command Area DevelopmentDoT Directorate of TelecommunicationsDPA Data Processing AssistantDPC Data Processing CentreDRS Data Retrieval SystemDSC Data Storage CentreDWLR Digital Water Level RecorderEE Executive EngineerFCS Full Climatic StationGC Gas ChromatographGD Gauge Discharge StationGDS Gauge Discharge Silt StationGDSQ Gauge Discharge Silt Quality StationGEMS Groundwater and Environmental Management SystemGERI Gujarat Engineering Research InstituteGIS Geographical Information SystemGoI Government of IndiaGoN Government of The NetherlandsGPS Global Positioning System


GSDA Groundwater Surveys & Development AgencyGW GroundwaterGWD Groundwater Department/DirectorateGWDES Groundwater Data Entry SystemHD Help DeskHDUG Hydrological Data User GroupHIDAP Hydrology Institution Development Action PlanHIN Hydrological Information NeedsHIS Hydrological Information SystemHIS-CC HIS Co-ordination Committee (national level)HIS-CS HIS Co-ordination Secretariat (MoWR)HLTG High Level Technical GroupHMC Hydrological Monitoring/HIS Management ConsultantHoT Hands on TrainingHP Hydrology ProjectHRD Human Resource DevelopmentHYMOS Hydrological Modelling System SoftwareIBS Integrated Bathymetric System for reservoir sedimentation surveyICB International Competitive BiddingID Institutional DevelopmentIDA International Development AgencyIHE Intern. Institute for Infrastructural, Hydraulic & Environmental EngineeringIIT Indian Institute of TechnologyIMD India Meteorological DepartmentIT Information TechnologyITRC Industrial Toxicology Research CentreIWRM Integrated Water Resources ManagementLAN Local Area NetworkMIS Management Information SystemMoE&F Ministry of Environment & ForestryMoWR Ministry of Water ResourcesMQC Monitoring Quality ControlMTR Mid-Term Review (World Bank/RNE)NCB National Competitive BiddingNCC National Co-ordination CommitteeNDC National Data Centre (GW & SW)NDPC National Data Processing CentreNDSC National Data Storage CentreNEDA Netherlands Development AssistanceNEERI National Environmental Engineering Research InstituteNHTC National Hydrology Training CommitteeNIC National Informatics CentreNIH National Institute of HydrologyNLSC National Level Steering CommitteeNRCD National River Conservation DirectorateNWA National Water Academy (CWC)OD Organisational DevelopmentO&M Operation and MaintenanceOTT Overseas Training and Study ToursPCS Project Co-ordination SecretariatPHED Public Health Engineering DepartmentQA Quality AssuranceQC Quality ControlR&D Research and DevelopmentRDPC Regional Data Processing Centre


RDSC Regional Data Storage CentreRGNGWTRI Rajiv Gandhi National Groundwater Training & Research Institute (RGI)RIBASIM River Basin Simulation softwareRNE Royal Netherlands EmbassyRO Research OfficerRSS Reservoir Sedimentation Survey (ref. IBS)SAP Standard Analytical ProceduresSAPR Semi Annual Progress ReportSAR Staff Appraisal ReportSCC State Coordination CommitteeSDC State Data CentreSDDPC Sub-Divisional Data Processing CentreSDPC State Data Processing CentreSDSC State Data Storage CentreSE Superintending EngineerSGWD State Ground Water DepartmentSGWSI State Ground Water Survey and InvestigationSLCC State Level Co-ordination CommitteeSMC State Management ConsultantSPC State Procurement CommitteeSPCB State Pollution Control BoardSRG Standard Rain GaugeSRO Senior Research OfficerSSWD State Surface Water DepartmentSTC State Training Co-ordinatorSTIS Staff Training and Information SystemSW Surface WaterSWD Surface Water DepartmentSWDES Surface Water Data Entry Systemtbn to be nominatedTA Technical AssistanceTBR Tipping Bucket RaingaugeTIS Training Information SystemToT Training of TrainersUV-VIS Ultraviolet Visual SpectrophotometerWALAMTARI Water and Land Management Training and Research InstituteWALMI Water and Land Management InstituteWB World BankWISDOM Water Information System and Data On-line ManagementWM Water ManagementWQ I Water Quality Laboratory Level IWQ II Water Quality Laboratory Level IIWQ II+ Water Quality Laboratory Level II+WQAA Water Quality Assessment Authority (national level)WQDES Water Quality Data Entry SystemWQMS Water Quality Monitoring SystemWQRC Water Quality Review Committee (state level)WRA Water Resources AssessmentWRD Water Resources DevelopmentWRIC Water Resources Investigation CircleWRM Water Resources ManagementWISDOM Water Information System and Data On-line Management