Download-manuals-general-hpi ifollow-up-workingdraftpaper

Government of India & Government of The Netherlands

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

HP-FOLLOW-UP

A DRAFT WORKING PAPER

April 2002

HP-Follow-up A Draft Working Paper TOC

Table of Contents

1 Introduction 12 Gains from the present HP 3

2.1 System 32.2 Monitoring network 32.3 Certified software for data processing, analysis and storage 32.4 Establishment of standardized data centers and inter-agency data

exchange 32.5 Standard procedures for data collection, analysis and storage 42.6 Trained staff, training modules and measures for training sustainability 42.7 Reference Manuals for HIS Operation 42.8 Innovative R & D projects 42.9 Computerized historical data 52.10 Transition from “technology shy” to “technology friendly” environment 52.11 Improved data dissemination 52.12 Other institutional gains 5

3 Lessons learned 63.1 Expectations 63.2 Benefits 63.3 Management in implementing agencies 73.4 Approach to implementation 83.5 Government procedures 83.6 Staffing 93.7 Training 103.8 Conclusion 10

4 Logical framework 125 Horizontal expansion of HIS 15

5.1 Rationale 155.2 Implementation of HIS in remaining states 165.3 Consolidation of achievements in ‘old’ states 20

6 Vertical extension of HIS 236.1 Real-time use of data 236.2 Drought Management 286.3 Expansion of HIS to WIS for IWRM 296.4 Follow-up of HP from the perspective of IWRM 32

7 Institutional aspects 357.1 Creating a platform for broader appreciation of the HIS 357.2 Reallocating responsibility for the HIS 357.3 The national water policy and RBOs 367.4 Establishing RBOs 377.5 Potential obstacles to establishing RBOs 387.6 The role of existing river basin organizations 387.7 Other forward linkage looks 407.8 Conclusion 40

Annex I: Modified approach for horizontal expansion of the HIS 41

HP-Follow-up A Draft Working Paper Page 1

1 Introduction

The present Hydrology Project (HP) will finish by March 2003. After that date the activitiesinitiated under HP will be continued by the respective governmental organizations butwithout the financial and technical assistance as provided by the World Bank and the RoyalNetherlands Embassy during HP. It is felt that HP has contributed substantially to thedevelopment of a comprehensive monitoring and data system in the states involved in theproject, as well as at central level (CWC, CGWB and IMD). Specific recommendations onhow GOI and the States should proceed with the activities initiated under HP will bepresented in the final report of the Hydrology Project.

In the SAR the aim of HP is phrased as follows:

“The overall development objective of HP is to support major aspects of the National WaterPolicy (NWP) through improvement of the institutional and technical capacity to measure,process, and disseminate quantity and quality data on surface water, groundwater, andrelated climatic data. On a more general level, the NWP does not exist for its own sake butsupports economic development and social well-being. More reliable and spatially intensivedata on water quantity and water quality will enable better decision making on water-relatedprojects in agriculture and domestic and industrial water supply. Moreover, it will enhancethe management of the resources and safeguard a sustainable use of it. The hydrologicalinformation system established under HP, therefore, has important wider social andeconomic relevance.”

This discussion document contemplates the question ‘What to do after HP?’ It addressesthis question in a more general way, through reflections on the gains and lessons from HPand what kind of next steps can be taken. These next steps are described as generalactivities and are not yet translated into specific ‘projects’ or ‘services to be provided’ thatcould be taken up by the Government of India and possibly by donors for funding.

Starting point for the discussion is the pressure from economic and demographicdevelopments on the water resources in India. Water resources development andmanagement should support the nation’s social and economic objectives but, at present, it isvery difficult for the government to do so. In large areas in the country the available waterresources are gradually getting depleted, groundwater levels are dropping dangerously low,and surface and groundwater are getting polluted. It is no exaggeration to say that India iseither already in, or will soon be in a water crisis. This water crisis is not only about havingtoo little water to meet the needs and that the water is too polluted. It is also a crisis ofmanaging the water inadequately, resulting in the fact that millions of people - and theenvironment - suffer badly.

India is not alone in facing a water crisis. Many other countries in the world are battling withthe same problem, in developed and developing nations alike. On a global scalediscussions have started on how to tackle this water crisis. The World Water Council(WWC) has developed in 2000 a ‘World Water Vision; making water everybody’s business’.This document highlights the main issues in water management, spells out the concepts ofIntegrated Water Resources Management (IWRM), and outlines the steps that should betaken to face the water crisis. The Global Water Partnership (GWP) has translated thisVision into an action plan ‘Towards Water Security: a Framework for Action’. Bothdocuments were drafted with the inputs of many experts, including experts from India.


IWRM is defined by the GWP as “a process which promotes the coordinated developmentand management of water, land and related resources, in order to maximize the resultanteconomic and social welfare in an equitable manner without compromising the sustainabilityof vital ecosystems”. Important elements of the approach of IWRM are:

• integrating the management of surface water, groundwater, water quantity and waterquality;

• taking into account all interests related to water (multi-sectoral);• advocating a participatory approach for water development and management, involving

users, planners and policy-makers at all levels;• advocating development and management at river basin level;• recognizing that water has an economic value in all its competing uses and should be

treated as an economic good, while taking into account the social and health aspectsinvolved.

Without mentioning Integrated Water Resources Management as such, the (draft) NationalWater Policy of 2001 addresses all elements of IWRM mentioned above, in particular inarticle 1 (the need for a national water policy), article 3 (water resources planning), article 4(institutional mechanism), article 11 (financial and physical sustainability), and article 12(participatory approach to water resources management). Hence, the National Water Policyof India reflects the current thinking on IWRM to a great extent. Local conditions and politicalconsiderations may prevent the implementation in India of the full scope of IWRM aspresented in the above documents. This is quite acceptable, since development of IWRM isto be seen as a ‘process’ with room for the system to grow and mature. Moreover, one of thekey-concepts of IWRM is that it should balance all relevant interests. India is of course freeto make its own choices in this respect.

Article 2 of the National Water Policy has provided the very basis for HP, and continues toprovide the context for any follow-on activity. This article defines the need for a well-developed information system, including standards for coding, classification, processing,storage and dissemination. In its requirements for the system, the article goes even furtherthan data on water availability and actual water use, by asking also to includecomprehensive and reliable projections of future demands of water for diverse purposes.

Evaluation of its achievements shows that the concept of HP has proven to be a success.The question is how we can continue to build further upon the results of HP. This documentbrings forward some thoughts for discussion. It starts with a summary of the gains of theproject (Chapter 2) and the lessons learned (Chapter 3). The next chapter (Chapter 4)presents a logical framework that describes the overall and specific objectives and possibleoutputs and activities. These activities are further elaborated upon in Chapters 5 and 6,describing respectively horizontal expansion activities (other states, etc.) and verticalextension activities (operational use and IWRM). Chapter 7 presents ideas on theinstitutional aspects involved.


2 Gains from the present HP

2.1 System

In the initial stages of water resources development, 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, particularly for integrated use of water resources. As aresult, hydrological data collection with respect to surface water remained limited to thespecific project sites, and no link was made with groundwater data which, in contrast, wasbeing collected on a system-wide basis. Only under HP has the potential for integratedhydrological data collection been achieved as also surface water data began to be collectedfrom a system rather than project perspective.

2.2 Monitoring network

The HP monitoring network is complex with domain specific data collection infrastructurehaving been activated in a multiple set of agencies. The network thus operationalized isdistinctly different from the ‘pre-project’ system of data collection mechanisms both in termsof quality and spatial distribution. The noteworthy gains in the area of data collection havebeen a) optimization of network within the agency and integration of monitoring networksbetween different agencies operating in the same domain b) upgrading of domain specificmonitoring networks c) introduction and operationalization of high frequency, error free datacollection mechanisms d) establishment of time-specific and location-specific water qualitymonitoring network within GW and SW domains and e) uniform and standardisedmeasurement methodologies and techniques.

2.3 Certified software for data processing, analysis and storage

The concept of advanced levels of data processing and analysis was not entirely new tomost of the institutions involved in the HP. However, the ‘pre-project’ system had someinherent drawbacks such as lack of standardization, non-availability of required hardwareand software, large quantity of ‘heaped-up’ historical data in the form of paper recordsresulting in unmanageable time lag between data collection, processing and arriving atmeaningful inferences, etc. HP enabled the institutions to initiate drastic and sustainablechanges in the above areas.

2.4 Establishment of standardized data centers and inter-agency dataexchange

Meanwhile, demographic and development pressure has resulted in ever more projectsbeing identified, and this has resulted in the recognition of the need for comprehensivestrategic planning for integrated use of water resources. The ensuing need for propercoordination between various water resources planning and management agencies hasindicated the need to establish suitable mechanisms for coordinating river basindevelopment, and this has been enunciated in the National Water Policy. One of the keyrequirements for coordination was identified as collection and free exchange of hydrologicaldata by the different agencies, and the possibility for this has been created through theHydrology Project.


Establishment of active, logical and up-to-date links between various field level datacollection units and multi-tier, multi-location data processing centers has been one of the keycontributions of the HP. Multiple sets of data undergo a series of well-defined validationtreatments including systematic, inter-agency data exchange, within and between thesecenters before being readied for storage at the apex level data storage center at each of thestates and central agencies. In total, the HP has established 390 data entry and processingcenters at various levels and 31 data storage centers at the apex levels.

2.5 Standard procedures for data collection, analysis and storage

Wide variations in data collection, analysis, and storage practices within and between statesand agencies were prevalent during the ‘pre-HP’ days. HP initiated demonstrable levels oftransformation in this regard, with a high degree of success. The HP formalized standardprocedures for data collection, analysis and storage and framed them in the form of HISprotocols. The fact that these procedures have been accepted and translated into uniforminstitutional practices across states and agencies is a clear and crucial gain from HP.

2.6 Trained staff, training modules and measures for training sustainability

One outstanding and most visible gain from the HP has been extensive skill building of HISstaff across levels. Over 9,000 people at the top, middle and field level have been trained inHIS concepts, methods, tools, techniques and applications. In addition, the HP providedample opportunities for ‘hands on training’ using an appropriate mix of direct training andthrough training of in-house trainers. Creation of a dedicated group of over 300 in-housetrainers, (110 hydrometry, 60 WQ, 15 each SWDES and HYMOS, 70 GW, 30 GWDES) anddocumentation of standardized training curriculum and reference material (WQ, GWDES,SWDES, HYMOS, GW application software, data storage software) for current use andfuture reference have been some of the most important gains of the HP.

2.7 Reference Manuals for HIS Operation

The HIS reference manual, comprising nine volumes, covers various operational,maintenance, and management aspects of the HIS. This voluminous documentation of ‘whatand how’ of the HIS (mainly on SW, meteorology and WQ, while GW is under finalisation) ina sequential and ‘easy to refer’ to form is an important output of the HP, that has beendesigned to enable the institutions to operate and manage HIS on an ‘error free’ andsustainable basis. In the near future this Manual along with other documents will becomeavailable on the internet through an HIS resources database.

2.8 Innovative R & D projects

The HP has initiated some innovative R&D projects in both the surface and groundwaterdomains. These include projects specific to groundwater such as a) fresh water-salt waterinterface 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)integrated river basin planning and management in Sabarmati and Godavari basins and b)hydrological investigations and modeling for water quality sedimentation in upper BhopalLake.


2.9 Computerized historical data

Before the present HP, each of the implementing agencies had a large “store house” ofhistorical data (project-specific as well as regional) in the form of paper records. Under HP,these records have been converted into computer compatible formats, following severalstages of validation. Thus, the quality of the available historical data has been improved,and they have become easily accessible in the data storage centers for any form ofcomputerized analysis. The historical data has thus become immensely valuable for trendanalysis and historical interpretation of current data.

2.10 Transition from “technology shy” to “technology friendly” environment

Before HP, data collection and processing mechanisms were mainly manual and generallyinvolved low technology. This contributed to the doubtful veracity of the data. Though bettermethods and equipment were of course available, the organizations involved were hesitantto adopt them for a variety of reasons, such as inadequate resources, insufficient skills, andhigh resistance to change, etc. Visible gains were made in this area with the introduction ofand adaptation to modern technology through HP, viz. data collection (e.g., DWLR, electro-magnetic current meters, BoCW), data entry software (e.g. GWDES, SWDES), and dataprocessing (e.g. computer hardware, HYMOS, dedicated GW software). A comprehensiveperformance assessment of the equipment and technology introduced and implementedunder HP still needs to be done.

2.11 Improved data dissemination

Data dissemination during ‘pre-project’ days has been very sporadic. The Hydrology Projectintroduced the concept and practice of systematic and ‘demand linked’ data dissemination,through standardised and inter-connected data storage centers. The value addition of thesedata storage centers is in the form of inter-connectivity, speed of data accessibility,

2.12 Other institutional gains

A number of tangible and intangible gains were made in the area of institutionaldevelopment, while working around and through the existing constraints and limitations. Thegains so far achieved include a) establishing a national level WQ Assessment Authority, b)establishing and activating unified (GW, SW & WQ) Data Storage Centers c) introduction ofO&M procedures, and d) systematic inter-agency data exchange practices etc.

The gains as described above are some of the intermediate outputs of the HP. Theseintermediate outputs will contribute to a) improved dissemination of the HIS data to a widevariety of users, b) optimizing investments in the water sector, c) improved water resourceplanning and management at the regional, state and national level, d) ensuring moreequitable distribution of water resources, and e) enabling the administrators and decisionmakers to respond to extreme situations (drought, flood) in a more responsible and efficientmanner.


3 Lessons learned

The framers of the present HP had certain expectations with respect to the outputs it was toproduce and the impact this should have on the organizations involved. For a number ofreasons not all these expectations could be met. On the side of the implementing authoritiesthese reasons included limited technical and management capacity in the agencies,government procedures, and staffing constraints. However, the set-up of the project and itsapproach to implementation also played a role. Any follow-on activity, whether expanding theHIS to other states or further developing the HIS in its present location(s) into meaningfulplanning and decision support systems, must take into account the lessons learned inimplementing the present HP.

Notwithstanding the fact that it was unable to meet all expectations, the project did succeedin developing and establishing a working HIS. Perhaps the most important lesson is thatunderstanding and willingness to cooperate have developed as the HIS has begun to taketangible shape, especially so now that it has begun to produce outputs. Moreover, theexperience and results in the peninsular states make it easier for any future implementingorganization to embrace the goals of HP in states heretofore not covered by the system.

3.1 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 is a multi-purpose document. Within the Bank, it serves to underpin the decision toextend a credit agreement to the client country. To the client country, it serves to further pindown the commitment undertaken in signing the development credit agreement. And to theimplementing agency it provides a benchmark for activities. The level of detail employed inthe report does not serve all purposes equally well. While a rule of thumb assessment maysatisfy decision-making in the Bank, such assessment is not a good basis for specificimplementation. Nevertheless, implementing agencies claimed that the finance divisionsconsidered the quantitative assessment in the report as cast in stone and therefore felt inpractice unable to deviate from the rule of thumb solutions. This made it difficult to formulateappropriate network designs relative to circumstances and functions to be performed, ratherthan following literally the ‘estimates’ provided in the SAR.

3.2 Benefits

The specific objective of HP and the TA is to develop a functional HIS. The benefits of thisoutput are 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 this remained inactive because without an actual HIS in place therewas nothing for such agencies to discuss. The technological improvement has not shownitself to be a product that sells easily, and marketing 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.

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.

3.3 Management in implementing agencies

Introduction of new work processes and procedures associated with the HIS involves manysignificant changes. Training implementation shows that there are many capable and willingindividuals in the agencies ready to absorb the necessary changes. However, they needdirection. Steering the organizations involved successfully through this process requiresenthusiastic leadership with a pioneering spirit. It is therefore essential that the relevant topmanagement positions be held by enthusiastic individuals who are not just biding their timeuntil retirement. At least during the project period (the “pioneering stage”) the selection andpositioning of personnel in these posts should be geared towards this requirement, insteadof routine shifting of staff for reasons of tenure-based career advancement.

In general the implementing organizations’ officers remain more focused on inputs than onoutputs. Moreover, there is 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 are 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.

The HIS as developed in the present HP does include a dedicated MIS component.However, because the HIS is installed only in the computers used by the technicalpersonnel, there is a risk that the management information generated will not automaticallyflow to the relevant levels of general supervision and management. The follow-on projectshould further develop the MIS component in this direction, and incorporate the managers’computers in the local HIS networks.


3.4 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 thecompletion 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.

3.5 Government procedures

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 avoided if procurement had been batched not just administratively butalso on the basis of long-term performance (e.g. for one year) under field conditions. Initialprocurement of smaller numbers of items would have made it possible to do this field testingand to instruct manufacturers to make the necessary corrections in the configuration of theequipment they supplied. However, it was decided to go for large-scale procurement earlyon in the project, apparently out of a concern that procurement targets would otherwise notbe reached.


To make matters worse, the different implementing agencies have ignored documented mis-procurement by others, while other agencies are often reluctant to document and report ontheir mis-procurement. Hence, mis-procurements often remain hidden or go unreported. Forsuch reasons, it has often happened that equipment proven to be unsatisfactory in one statehas nevertheless been 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.

3.6 Staffing

Despite the fact that CWC is 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.

The project duration of HP has proved to be (much) longer than the term of office of manykey officers. Perhaps as a result, HP priorities often remained overlooked and deadlineswere not met. In fact, much of the work has been undertaken more as a government activitythan as a project. This has been particularly clear in staffing, for which general targets weregiven in the SAR, but no timing. Had the agencies been committed through the SAR to meetthe relevant targets at specific times, overall progress could have been faster. Suchapproach should of course leave room for adjustment of schedules in the light of actualdevelopment on the ground (e.g. in order to avoid training staff on equipment that is not yetbeing procured).

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.Solutions that have been attempted are deputation of staff from specialist organizations toHIS units, contracting staff, outsourcing of works and training of existing staff. Deputation isdifficult since the staff involved may not wish to remain separate from their parentorganization. Outsourcing to an organization has been successful in Maharashtra (WQanalysis) and Tamil Nadu (IT), where non-government staff have been hired through a localcompany to conduct the necessary activities in the facilities established under HP.Contracting free-lance personnel has proved to be successful in Karnataka (IT & WQ), atleast for the time being. However, this may not be sustainable in the longer term due toexcessive budgetary burden. Hence, the only solution seems to be training existing staffbelonging to other disciplines. For example, the agencies have many staff with a chemistrybackground, and many engineers have an understanding of IT. In this respect it appearsthat the actually required abilities may not be as sophisticated as previously imagined 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.

3.7 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 thefollow-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 wasrecognized 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 overemphasised. Such a policy must address the need to overlap betweentwo incumbents so that knowledge and skills are retained with HIS institutions (transfer ofknowledge).

3.8 Conclusion

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 tokeep track of progress and organize external support (e.g. from the finance division,secretary, etc.) if necessary. The project should include a specific HIS managementcomponent to assist 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.


4 Logical framework

Taking into account the lessons learned in implementing the present project, there areseveral possibilities to “leverage” the gains achieved. This basically involves two distinct butrelated approaches. The first is a so-called “horizontal (geographical) expansion” of thepresent project, by replicating the gains in a number of states heretofore not included, thusexpanding the coverage of the HIS. The second is a “vertical extension” of the gains, bybroadening the present HIS into a Water Information System (WIS) as well as by includingreal-time monitoring and water resource management elements. A broader WIS wouldcomprise, besides hydrological data, also socio-economic and other data and would thusimprove the relevance for water resources planning. Inclusion of real-time elements wouldenable establishment of decision support systems for flood forecasting and flood warning,management of water resources systems (dams, irrigation schemes, etc), and droughtmanagement (conjunctive use, including responsible water harvesting, etc.). These possibledevelopments from the present state of the HIS are further discussed in the followingchapters. The present chapter presents a so-called logical framework showing theinterrelationships between the different components.

The logical framework analysis is an internationally accepted method for goal analysis anddevelopment of programs and projects. In its full application, it extends all the way to theidentification of inputs required for specific project activities. Such level of detail would bepremature at this moment, but it is appropriate to analyze the relevance of possible goalsand the different strategies to achieve them, and the suitability of different possible projectcomponents. Part of the logical framework analysis is the formulation of a Project PlanningMatrix. This is a one-page summary of:

• Why a program or project is being carried out (=who or what will benefit?)• What the program or project is expected to achieve (=utilization of services)• How the program’s/project’s outputs/results will be achieved (=measures executed)• Which external factors are crucial to success (=risks and frame conditions)• How to assess success (=indicators)• Where the data is available to assess the success (=means of verification)

For the sake of clarity, the logical framework presented here comprises two sections, one forthe horizontal expansion of HP and one for vertical extension of the HIS. However, thisshould not be construed as two alternative project proposals, although it is of coursepossible to implement only one or the other. One of the most important lessons learned inthe present HP is, that this has been focused too much on effectiveness and efficiency ofmonitoring and data processing and not sufficiently on the utility of the information that thisprocess can produce. This has made it difficult to generate enthusiasm for the HP beyondthe persons immediately involved.

If the vertical extension would indeed be taken up in the “old” states, it would be likely thatthe “new” states involved in horizontal expansion would not be satisfied with establishmentof the HIS alone, but would also seek inclusion of vertical extension elements within theduration of the project. After all, unlike in the present HP, any “new” state embarking on theestablishment of the HIS has a much more ready reference to the achievements andpotentials of the system than the “old” states had six years ago. Thus, the main differencebetween “old” and “new” project states could be that vertical extension would be moreelaborately pursued in the former than in the latter, only because the “new” states wouldneed a few years to establish the HIS as a starting point.


Logical Framework Analysis Vertical Extension of the HIS

Narrative Summary Verifiable indicators Means of verification Assumptions

1 Project Goal:1.1 Institutionalization of integrated river basin planning & management

systems, methods, and mechanisms1.1.1 optimized investments in water sector less

dramatic impact of disasters

Census dataRural and Urban WaterSupply DataIrrigation dataProject MIS

Formal acceptance ofchanges in the existingmodels of water resourceplanning & management

2 Project Purpose:2.1 Optimized WR management at basin level

2.1.1 HIS linked to non-hydrological databases ofother organizations

2.2 Improved response to disasters and improved management of suchevents

2.2.1 Operational pilots for real time basinmanagement and disaster management

Project MISProject specific impactevaluation studies

Government directive toestablish and manageRBOs

3 Outputs/Results3.1 Decision support systems for disaster management, comprising real

time flood forecasting, flood warning and disaster mitigation plans.3.1.1 Establishment of infrastructure and installation

of equipment to enable real time dataacquisition in river basins xyz.

3.2 Decision support systems for irrigation management (reservoiroperation), comprising HIS linked with non-hydrological data fromother agencies.

3.2.1 Collection, processing, analysis and use ofreal time data for flood forecasting andextreme event management

Project MIS

3.3 Decision support systems for drought management comprisingconjunctive use of SW/GW and responsible water harvesting

3.3.1 Emergency management plans notified inGazette

Gazette

3.4 Draft legislation to establish River Basin Organizations 3.4.1 Gazette notification of establishment of RBOs

3.5 Integrated water resource development plans for selected riverbasins

3.5.1 Gazette notification of basin-specific,integrated water resource development plans

Gazette

3.6 Institutional capacity to formulate project proposals to implementWRD and disaster management plans

3.6.1 Proposal for infrastructure and other measuresto implement WRD and disaster managementplans submitted to GoI for appraisal.

PCS reports

Inter-state/inter-agencysynergy for institutingRBO planning &management models


Logical Framework Analysis for Horizontal Expansion of the HIS

Narrative Summary Verifiable indicators Means of verification Assumptions

1 Project Goal1.1 Improvement of the institutional and technical capacity for data

collection, processing, and dissemination

1.1.1 Fully activated data storage center within theWRD

Availability of validatedand easily accessibledatabase

2 Project Purpose2.1 Establishing an integrated hydrological information system

2.1.1 Institutional capability to deliver ‘demanddriven’ HIS

User response andfeedback; project MIS

Policy initiative to makeHIS data moretransparent in NorthernIndia. Assimilation oflessons learned in Indianpeninsula.

3.1.1 Fully operationalized data collection networkas per design

Design specificationsProject MIS

3.1.2 Data collection, collation, analysis, andprocessing capabilities

Project MIS

3 Outputs/Results3.1 Standardized physical observation network

procedures for data collection, processing, and dissemination

3.1.3 Hardware and software for data storageactivities

Project MIS

3.2 Appreciation for and acceptance of HIS for use in the regional andstate level water resource planning by government agencies and bynon-government and private users

3.2.1 Increased demand for HIS by a wide variety ofusers

Project MISUser feedback


5 Horizontal expansion of HIS

This chapter describes possible follow up activities to extend the results of the HydrologyProject to other states and to consolidate the achievements in the ‘old’ states. The activitiescan be described as ‘replication of the present HP’s success’; of course taking into accountthe experiences from the previous period.

5.1 Rationale

As mentioned in the previous chapters, water plays a crucial role in the socio-economicdevelopment of India. Safe drinking water is required for the very large and growingpopulation. Water has also become a major constraining factor for the growth of theagricultural and industrial sectors. In contrast, flooding frequently threatens populations andtheir properties. Competing demands, between individual and groups of users as well asamong states, require proper planning, design and management of water resources andwater use systems. India’s National Water Policy advocates an integrated planning anddevelopment of the conjunctive use of surface and groundwater, addressing the multipleuses of the water simultaneously. It stipulates in article 2 that: “The prime requisite forresources planning is a well-developed information system. A standardized nationalinformation system should be established with a network of data banks and data bases,integrating and strengthening the existing Central and State level agencies and improvingthe quality of data and the processing capabilities. There should be free exchange of dataamong the various agencies and duplication of data collection should be avoided. Apart fromthe data regarding water availability and actual water use, the system should also includecomprehensive and reasonable reliable projections of future demands for water for diversepurpose.”

A major component in the information system for water resources planning, design andmanagement is a Hydrological Information System (HIS), which comprises a reliable database on all aspects of the hydrological cycle. An efficient and comprehensive HIS is aprerequisite (although not the complete basis, as it does not contain much non-hydrologicaldata) for appropriate planning, design and management, to get better decisions made aswell as to achieve efficiency.

The Hydrology Project was originally conceived as a National Hydrology Project, to developa countrywide Hydrological Information System. The overall objective of the project was toimprove upon various facets of Hydrological Information Services in the country. However,owing to reservations in bringing the waters of international rivers under the project, it wasultimately approved only for the peninsular part of the country and became known as theHydrology Project. The implementation of the Hydrology Project in the peninsular states hasbrought about significant improvements. Utilizing the experience gained under HP for similarimprovements in the remaining part of the country is not only a logical follow up of the HP,but from an integrated water resources perspective it is also a necessity to properly deal withthe spatial and temporal variation of water availability, quantity and quality-wise in Northernand North-Eastern India. It would only be fitting to multiply the efforts and propagateexperience of HP.

Besides the expansion of the HIS to North and North East India it is of utmost importance toconsolidate the HIS infrastructure established in peninsular India, to ensure its sustainability.The latter should be given due attention as the originally planned two years consolidationperiod of HIS activities under HP-I could not be achieved due to considerable delays inprocurement and software development as well as shortage of specialist staff as outlined inthe previous chapters.


5.2 Implementation of HIS in remaining states

5.2.1 Areal extent

As many states as possible should be brought under the Project, since the improvement inHIS is needed throughout the country. Priority should be given to areas with a lot ofpressure on the water resource, or where there is considerable additional potential (as in thecase of northeastern states), especially for hydropower. The sooner this is done, the better itwould be. Leaving any state out would put that area off for another 5-6 years. States likeJammu and Kashmir can be left out, because of security reasons. The proposed horizontalexpansion of the Hydrology Project is presented in Table 5.1. Its total area amounts toapproximately 1.6 million km2, which is nearly the same as the area included in the currentHydrology Project, which covers 1.7 million km2. The inclusion of Goa in the follow-up projectmay also be considered.

The HIS in the listed states will fit to the same structure as designed for peninsular India,with a few extensions regarding measurement of some hydrological variables, since (ref.Annex I):

• flow measurement techniques have to be adjusted in view of the fact that about 25% ofthe area is classified as hilly, with a number of steep mountain streams, while largerivers such as the Ganges and Brahamputra rivers require specific monitoringtechniques.

• snow hydrology will be of importance during part of the year in the states of ArunachalPradesh, Himachal Pradesh, Sikkim and Uttranchal.

• sediment transport is crucial in the Indo-Gangetic Alluvial Plains.• multi-acquifer systems in the Alluvial Plains require a different approach to GW

monitoring.

Table 5.1: Horizontal expansion of the Hydrology Project

States Capital Area (km2) Topography

Arunchal Pradesh Itanagar 83,743 HillyAssam Dispur 78,438 PlainBihar Patna 115,877 est. PlainHaryana Chandigarh 44,212 PlainHimachal Pradesh Shimla 55,673 HillyJharkhund Ranchi 58,000 est. HillyMadhya Pradesh (Narmada + Ganges) Bhopal 282,450 PlainManipur Imphal 22,327 HillyMeghalaya Shillong 22,429 HillyMizoram Aizawl 21,081 HillyNagaland Kohima 16,579 HillyPunjab Chandigarh 50,362 PlainRajasthan Jaipur 342,239 PlainSikkim Gangtok 7,096 HillyTripura Agartala 10,486 PlainUttar Pradesh Lucknow 220,411 PlainUttranchal Dehradun 74,000 est. HillyWest Bengal Kolkatta 88,752 Plain

Total 1,594,155


5.2.2 Implementation

Operation of a Hydrological Information System broadly involves the following categories ofactivities:

1. Assessment of needs of users2. Establishment of an observational network3. Management of historical data4. Data collection5. Data processing, analysis and reporting6. Data exchange and reporting7. Data storage and dissemination, and8. Institutional and human resource development.

This implies that the following steps are required to set up an HIS:

1. Establishment of a suitable forum for the assessment of needs of data users2. Establishment of an observational network

• Design of network• Site selection, inclusive of procurement of land• Equipment selection, specification and procurement• Station design and establishment• Equipment installation• Staffing and training• Data collection and transfer

3. Establishment of data processing and storage centers• Hiring of temporary workspace• Procurement of hardware and software• Staffing of data centers and training of staff• Management of historical data and handling of current data streams• Design of data centers, procurement of land• Establishment of data processing centers.

Implementation of the project ideally must cover the full area of each state for each activity.At present most of the material (the specifications, manuals, software etc.) would be readilyavailable from the day 1, though an update will be required and new technologies need to beintroduced in particular for larger rivers and steep rivers (erosion). Therefore, it would bepossible to advise all divisions of a State to start working on the various activities at theearliest. The only requirement is to properly schedule various activities, lay down themilestone for completion, parameters for quality control and strictly monitor the progress.

However, experience of HP in peninsular India suggests that it is difficult to carry out thesame activities in all districts/divisions at the same time. Hence, while all relevant units of anagency should be involved in the project from the start, in each agency only onedistrict/division should be assigned to take a lead role, acting as a guide for the other units.This will also make capacity building more manageable from a training point of view. Theother units should schedule their activities realistically, thereby making use of the experienceof the lead unit. Identification of staff should start well before the establishment of themonitoring and processing infrastructure, to ensure that staff is available whenstations/laboratories/centers become operational. Training of staff should fit into thisschedule. No training should be embarked upon if no immediate practicing in the field,laboratory or processing center can be guaranteed.


The establishment of HDUGs or some other forum for inter-active data needs assessmentwith potential data users does not seem to be required in the early stages of the project,provided that experienced hydrologists and water resources experts working for theimplementing authority make a proper assessment of present and future functions and usesof water in a state, and of existing and up-coming water resources development plans, andrelated data needs. This should allow identification and assessment of some 90% of theactual data need that the system should be able to meet. Once the HIS begins to produceoutputs, HDUGs can play an active role in the review of the HIS at regular intervals to keep ittuned to the changing data needs of the different users.

Entry and validation of historical data should be addressed at an early stage. Even in thebridging period between the present HP and a follow-on project the states and centralorganizations could take up this activity by making use of the data entry and primaryvalidation tools GWDES and SWDES. NIH can provide training and guidance to work withthe software, to make a thorough inventory of the data available, and enter the appropriatedata. The relevant process and procedures have been worked out in the present HP. Anearly start of such activity has the advantage that much sooner than under HP-I attentioncan be given to streamlining the handling of current data. If initially there should be ashortage of computers or trained staff, one should consider outsourcing the entry ofhistorical data.

With respect to procurement reference is made to Chapter 3 on the lessons learned underthe present HP. An active involvement of experienced staff is needed, as well as theexecution of the various tests designed to be carried out before acceptance of deliveredgoods, to ensure that mis-procurement does not take place in HP-II. Particularly during thebid-evaluation tests should be carried out to investigate the quality of the offered equipment,and other customers should be visited to directly observe on-site experience.

5.2.3 Likely scope of horizontal expansion

A first assessment of the required observational and processing infrastructure results in thefollowing indicative scope of a horizontal expansion of the HIS established under the presentHP.

Hydro-meteorological network

The minimum required meteorological network according to WMO norms for hilly, plains, anddesert areas consists of one rainfall/precipitation station per 250, 500 and 900 km2,respectively. This results in a total requirement of nearly 3,700 stations of which 10% (=370)should be equipped with recording gauges and some 2% (=74) designated as Full ClimaticStations. Important aspects in some of the states will be the measurement of snow: snowcoverage, depth and water content.

Hydrometric network

Again following the minimum requirement of WMO in hilly regions, one hydrometric stationper 300 – 1000 km2 is needed, and one station per 1000 to 2000 km2 for plains areas. Thisimplies some 600 stations for the hilly regions and about 825 stations for the plains. Specialattention will be required for flow measurement in mountainous streams, whereas sedimentyield and transport will also be important aspects.


Observation wells

There are no global standards for GW monitoring network density. It is governed by a varietyof factors including local hydro-geological conditions. Given the poor performance of somany DWLRs, the strategy for GW observation wells (piezometers) needs to bereconsidered. The density may be reduced, with more emphasis on multi-aquifer nestobservations. It should also be kept in mind that the geological and geo-hydrologicalconditions and GW regimes are distinctly different in the northern (alluvial) river basins ascompared to the peninsular river basin and, hence, require a modified approach.

Water Quality Laboratories

The northern and the north-eastern states have sufficiently high rainfall and are garlanded bya large number of rivers. These states depend mostly on surface water for irrigation. Thegroundwater table being high in these states, the potential for contamination of groundwateris profound. The central region of Rajasthan is water-starved due to desertification and lessprecipitation. There the surface water and the groundwater sources are considerablypolluted. The requirement of laboratories in the above geographical area is estimated asfollows.

Requirement of LaboratoriesState

Level I Level II Level II+ TotalArunachal Pardesh 3 1 4 (3)Assam 3 1 4(3)Bihar 5 1 6(4)Haryana 2 1 3(2)Himachal Pradesh 2 1 3(2)Jharkhand 2 1 3(2)Manipur 1 1 2(1)Meghalaya 1 1 2(1)Mizoram 1 1 2(1)Nagaland 1 1 2(1)Punjab 2 1 3(2)Rajasthan 7 1 8(8)Sikkim 1 1 2(1)Tripura 1 1 2(1)Uttar Pradesh 9 1 10(7)Uttaranchal 2 1 3(3)West Bengal 5 1 6(3)

Total 158 48 17

Note: Figures in parenthesis represent groundwater laboratories

Data centers

The set up of data processing centers will be multi-tier and domain (SW &GW) specific.While there will be one apex level data storage center at each of the states, the total numberof data processing centers and subsequent allocation of their specific responsibilities willentirely depend on the project implementation format that will be adopted, i.e. RBO or thetraditional structure. The total number of data storage centers will be one per state (17 intotal) and the number of various levels of data processing centers is estimated to be about170 {(17 * 4 (SW) + 17* 4 (GW) + 17 (CWC) + 17 (CGWB)} in the traditional format. In case,the RBO format is followed, the number of data processing centers will be drasticallyreduced.


Staffing

The average staffing requirements including specialist categories worked out to be about600 per agency for SW and about 175 per agency for GW, during the implementation of theproject in the Peninsula. Using this benchmark, the total requirement of staff will be over10,000 for SW and about 3000 for GW.

5.3 Consolidation of achievements in ‘old’ states

The consolidation of the HIS in the existing states involves:

1. optimization of monitoring activities2. consolidation of day to day operational procedures and maintenance3. collection of data on water use and socio-economic data relevant for future projections of

water demands (ref. Section 6.4.3)4. human resources5. linkage of HIS to economic and public sectors6. assessment reports

5.3.1 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, existing overlaps between different agencies’ networks should be eliminated.Optimization may also have consequences for the monitoring frequency and/or may result inadjustments of the measuring technique, data storage and transfer.

5.3.2 Consolidation of operational procedures and maintenance.

Due to delays in the implementation of the HIS in the present HP, insufficient time wasavailable to obtain sufficient experience with the day-to-day handling of the current data, alsobecause occasionally priority was wrongly given to the historical data entry. It should bestressed that the immediate validation of the current data and timely feed back to theobservation site is a key factor in the creation of a reliable and up-to-date database. Nodelays are allowed here. Hence, due attention should be given to streamlining theseactivities, within the organization and between the organizations. The latter is of greatimportance as the monitoring networks are in principle complementary rather thanoverlapping.


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 activitiesto guide the management for taking appropriate actions.

5.3.3 Human resources

Appropriate staffing in number and skills of observation stations, laboratories and processingcenters is a prerequisite for a sustainable HIS. In HP-I 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 fieldwork 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 HP-I, 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 RGTI. Furthermore, proper attentionshould be given by the agencies to in-house training of staff, to become less vulnerable tothe effects of frequent staff transfers.

5.3.4 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.

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 be oftwo types viz. a) those who need to find and use water in a micro-geographical area for theirown 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 for 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 HIS will be fully realized only when it is linked to existing data bases(e.g. on land use, cropping pattern, population) at various levels in other organizations andto related software (e.g. GIS). This linkage will have to be firmly established at the initialstages of the project.

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 analyze 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 be enhanced.

5.3.5 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.


6 Vertical extension of HIS

The Hydrology Project has focused on the collection of hydrological data and relatedinstitutional development. Collecting data is not an objective by itself. It serves higher goalsof GOI, in particular economic development and social well-being. The HIS of HP is animportant, but very basic component, to achieve these higher goals. This chapter presentssuggestions on how to extend the results of the Hydrology Project towards these highergoals. This involves a shift from collecting and processing the data towards the use of datain the planning and management of water resources. Of course, the HIS as presentlydeveloped enables use of the data already. However, the users mostly have a passive rolein this, as the manner in which the HIS is able to meet the needs of the different actorsinvolved (e.g. agriculture, industry, water managers) was mainly determined in thedevelopment of the HIS following a broad identification by the Consultant. Linking thedemand for data and the present ‘supply’ will result in additional activities. In this chapter thefollowing possibilities are described to make the data more ‘active’:

• Real time use of data for operational purposes (Section 6.1).• Planning and implementing Integrated Water Resources Management (IWRM), and the

role of HIS in it – developing the HIS into a WIS (Section 6.2).

6.1 Real-time use of data

Activities in the HIS as established under the present HP concentrate on the collection ofdata for planning and design. Thus, the HIS provides only static information. Day-to-daymanagement of water resources requires dynamic real-time information on the boundaryconditions of the water resources/water use system (rainfall, runoff, water levels and waterquality) as well as on the state of the system. Such real-time use of data for operationalpurposes includes:

• Early flood warning• Operational management of irrigation systems and reservoirs• Drought monitoring

There are already many systems in place throughout India for flood forecasting andmanagement of reservoir operation. The CWC has Flood Forecasting Systems in place onall major trunks, involving different technical systems. The information from these systems,together with information from IMD, is used to give regular forecasts to the local populationand authorities. However, the general impression is that there is scope for improvement ofthese systems. One potential area for improvement lies in introduction of the latesttechnologies for data collection, processing and communication, which would improve theaccuracy of the forecasts and the timeliness of the warnings. Other improvements arepossible by developing effective disaster management plans, etc. Reservoir operation ismostly in the hands of the Irrigation Departments at the state level. As presently executed,this is underdeveloped in terms of coverage, timeliness and accuracy of data used. As such,the systems do not really embody true real-time operation of irrigation systems.

Large-scale implementation of real-time monitoring systems requires a considerableinvestment in equipment for monitoring and data transfer, computer hardware and software,as well as in human resources development. Therefore, it is proposed to develop and testappropriate equipment and tools for pilot areas of potential application fields prior to large-scale implementation. It is essential that the pilot areas are carefully selected to berepresentative for an application in general.


6.1.1 Early Flood Warning Systems (EFWS)

Required and potential lead-times for early flood warning systems

In principle, an EFWS provides a non-structural means to eliminate or mitigate negativeeffects of floods. Essentially, it alerts people to take action. To determine what action or setof actions is to be taken, the system makes it possible to directly assess the timing, possibleextent and duration of the flooding, as well as the expected consequences. Based on theforecast, the system would implement a strategy involving measures such as anticipatoryemptying of reservoirs to make room for storing part of the advancing flood, gatemanipulations to divert flood water, temporary heightening of levees, controlled breaching ofdikes, etc. In the worst case the strategy may comprise large-scale evacuations to protectcommunities, livestock, and goods from floodwater. Which measures are to be included inthe system and to what extent they can be employed requires an evaluation of their potentialeffectiveness in saving human lives and/or reducing the overall cost of potential damage.Damage assessment and risk analysis are part of the selection process. In implementing thestrategy, the EFWS should not only indicate who and what is going to be affected by theflood, but also who is to be informed to take the appropriate actions.

Losses can be reduced if sufficient lead-time is available to warn authorities and individualsabout the events to come and actions to be taken. Hence, one often tries to maximize thelead-time. However, there are limitations to this as the measures to be taken for lead-timeextension are expensive and the accuracy of the forecast declines as the lead-time isextended. The minimum possible lead-time is achieved by considering only water that isalready in the “pipeline”. This requires telemetering of upstream stages and routing of theflood to the forecasting point. Such systems potentially have a high accuracy. Lead-timescan be extended by considering rainfall over the catchment. The system would then includerainfall monitoring and transformation of rainfall into runoff. However, the accuracy of theforecasts for the extended period will be less, as both the rainfall estimate and the rainfall-runoff model introduce certain uncertainties. Still further extension of the lead-time ispossible through quantitative precipitation forecasts. However, the accuracy of suchforecasts is often poor; they constitute the weakest part of the lead time elements, but theyhave high potential for giving at least a qualitative early flood warning.

The development of an EFWS commences with an analysis of historical floods (availablethrough the HIS), their genesis, and the required and possible lead-time for flood warning.The required lead-time depends on many factors. A proper assessment involves detailedanalysis of:

• Land use and occupancy, population distribution, and infrastructure (rivers, roads,hydraulic structures and control means)

• Frequency of flooding and flooding depths• Flood damage as a function of flood level and the risks involved• Flood mitigation options (measures and means)• Accessibility of evacuation routes• Available resources (human, technical, institutional, financial) to disseminate flood

warnings and to implement flood mitigation strategies.

An assessment of the physically possible lead-time requires a thorough investigation ofmeteorological and hydrological data and of weather maps. It involves:


• Analysis of meteorological conditions leading to flooding, and their temporal and spatialvariability

• Assessment of the predictability of meteorological events leading to flooding• Assessment of concentration times of sub-basins, based on an analysis of rainfall and

runoff data and/or relevant physical features of the drainage basins• Determination of flood wave celerities in the main river system, to estimate travel times

for various types of floods.

The physically possible lead-time is often less than the required lead-time. In such case, therequirement must either be scaled down or one must accept larger uncertainties in theforecast, with an increased likelihood of disseminating an erroneous warning andconsequently invoking the wrong actions. There is also a trade off between accuracy andcost.

EFWS components

The components of an EFWS are determined through analysis of the required lead-time andits elements. This is a cyclical process where achievable accuracy, lead-time, and cost(initial investment, and operation and maintenance cost) play a role. In general an EFWSconsists of the following components:

• Detection system• Forecasting system• Warning system• Response system

The latter two, dealing with dissemination of warnings and co-ordination and activation ofemergency services, have strong local components. These components have to be framedin the institutional setting of the responsible administration in the basin/state. Detailed actionplans for all possible alert levels must be available for implementation when required. Theaction plans should regularly be evaluated on their weaknesses and effectiveness ofimplementation.

The former two EFWS components, the detection system and the forecasting system, aremostly of a technical nature. The design of the detection system depends on the layout ofthe forecasting system.

Forecasting system

To identify the required components of the flood forecasting system (FFS), it is necessary todo a preliminary analysis of required lead-time and to assess the relative importance ofbasin lag and travel time. A forecasting system including runoff from sub-basins as well asconveyance by the river system should include the following components:

1. rainfall-runoff models for sub-basins2. routing model(s) for conveying the flood waves through the rivers, including a GIS-based

flood extent mapper to demarcate the extent of flooding3. reservoir routing model(s)


4. a database, consisting of

• a flood-forecasting archive (FFA), storing all relevant data for making andmaintenance of the forecasting tools and flood warning infrastructure andmethods/strategies;

• a dedicated flood-forecasting database (FFD), which automatically updates the FFAwith validated field data and forecast results.

5. user interface for data entry, validation, and processing, for model interaction andcontrol, and for visualization of input and output results.

Not all components will be required in all situations, and there are various possible levels ofsophistication and accuracy with respect to the modelling. Different approaches exist. Theeffectiveness of the chosen configuration depends on tailor-made procedures forassimilation of real-time data to update the model state for the forecast. Due attentionshould also be given to the incorporation of “controllers” in the EFWS, such as feed-forwardcontrollers, which can activate e.g. reservoir releases to mitigate flooding in anticipation offorecasted undesirable system conditions. All components should be incorporated into onesystem, with flexible exchange of data from one to another.

Detection system

Once the forecasting system has been designed it is known what type of information, atwhich locations, and with what frequency has to be produced by the detection system, i.e.the real-time observation network can be framed. Dependent on the components of theforecasting system, the following information may be required in real-time:

• quantitative precipitation forecasts (information from satellites, GCMs and nestedmodels, etc.)

• point rainfall data• sub-basin rainfall from weather radar• climatic data• river water levels and/or discharges in real-time• reservoir levels and releases in real-time.

In general, the detection component comprises two systems:

1. Data acquisition system (DAS), including:

• a data acquisition segment• a data communication segment

2. Data processing system (DPS)

The latter system receives the real-time data and, after validation, transforms this into usefulinformation for the forecasting system. Often this component is incorporated in the userinterface of the FFS. The data processing system is housed in a Data Processing Center(DPC). Modern Data Acquisition Systems integrate the data acquisition segment and a datacommunication segment (see sketch below). Both segments make use of the same powersupply.


The data acquisition segment comprises the sensors, a data acquisition controller/datalogger and an integrated power controller for the sensors. The choice of the sensorsdepends on local conditions, and should be evaluated for each station. The data logger actsas the system controller. It controls the power to the sensors, acquires the sensor signals,and prepares the telemetry messages for transmission by the data communication segment.It also records all acquired data for later retrieval. The data logger should have sufficientmemory capacity to contain combined data acquired from a water level sensor and a raingauge for a given period of time.

The data communication segment comprises the data communication equipment on-site, allintermediate components, and the network controller at the Data Processing Center. Theradio segment can be terrestrial radio, e.g. HF radio modem, Meteor-burst, or VHF/UHF, butit may also be satellite-based. The selection should be based on effectiveness, cost,technical feasibility, and reliability.

Regarding cost, it is important to consider both the one-time investment cost to build andimplement the network and the recurrent cost for annual maintenance, communicationlicense fees, satellite access and use, operation, service and repair, etc. A cost-effectivesolution is one that is technically feasible and financially affordable.

The telemetry system could operate in a polling mode, i.e. in which the DPC can interrogateall remote stations (DAS) to transmit the acquired data. There are also systems in which thefield station activates the data flow, but preference goes to the polling mode for adaptableforecasting applications. An alternative that reduces complexity (even as it retains reliability)is the use of one-way communication with redundant messaging. For error-free data deliverythe data communication processes must involve effective “handshaking” and errordetection/recovery protocols. The following communication means can be considered:

• GSM• Radio:

• HF voice-radio• Digital HF radio• VHF/UHF radio

• Meteor-burst telemetry, and• Satellite telemetry


6.1.2 Operational management of irrigation systems and reservoirs

The basic principles of water management of irrigation schemes are fairly simple. However,the enormous amount of information and diversity of the data involved, together with thevarious parties concerned, makes day-to-day management a complicated task, particularlywhen water availability does not meet the requirement. Input of real-time information on cropwater requirement and actual and forecasted water availability is to be combined with thesystem’s capacity and supply constraints. Water availability includes precipitation, water incanals and reservoirs, and groundwater aquifers.

The objective of operational management of irrigation systems (OMIS) is to maximize theoutput of command areas. The tool used for day-to-day management is a decision supportsystem consisting of:

1. A real-time data acquisition system to collect data on river/canal flows, reservoir levels,rainfall, climatic variables relevant for evapotranspiration, water distribution, and soilmoisture conditions.

2. A database system, containing the relevant data of the irrigation system, including:

• The characteristics of the surface water hydraulic infrastructure (river/canaldimensions and capacities, reservoir dimensions, off-take capacities and rule curves,etc.)

• Hydrological data, including real-time information on river and canal flow, reservoirlevels, rainfall, and climatic data. If the system is to be used also for pre-seasonplanning then additionally dependable flows are required, which the HIS can supply.

• Monitoring data, i.e. real-time information on actual water distribution and soilmoisture status in the units

• Agricultural data of the command areas, crop data, soil characteristics• Economic data• Institutional data on organizational structure and responsibilities.

3. A data analysis system, to generate detailed operating instructions, such as gatesettings, based on hydraulic computations in response to water requirements, wateravailability, and management rules. Furthermore, this system should include tools forevaluation of system performance and crop planning.

4. A user interface, integrating the data acquisition, database, and data analysis system. Itshould feature:

• a task-oriented menu system allowing use at various levels of aggregation;• visualization of data and results in time and space, in tabular and graphical form.

It is noted that the tool required for operational management of irrigation systems andreservoirs differs substantially from an EFWS. Though both systems accommodate a dataacquisition system, the communication component in case of an OMIS can be simpler thanin case of an EFWS, since the former operates generally under normal weather conditions,and the system state and boundary conditions are less variable.

6.2 Drought Management

Conjunctive use of surface water and groundwater

Groundwater build up is witnessed in different canal commands area, which have led tosalinity in certain areas. Water logging is increasingly being regarded as a resource to beharnessed during periods of absence of canal flow. The conjunctive use of groundwater andsurface water provides a flexible approach to water management in canal commands with


water logging conditions. Conjunctive use should be considered as an option of "banking"surplus surface water in aquifers in times of plenty, for use in times of scarcity. Thetechnique of aquifer storage and recovery (ASR) are new concepts emerging in facilitatinggroundwater storage and withdrawl.

Watershed management, including rainfall harvesting/recharge

The bulk of groundwater in the drought-prone peninsular India occurs in the weatheredformations, which have been mostly tapped, and in the fractured rock aquifer much of whichis still available for use. However, rates of groundwater movement and the response torecharge have not been clearly understood. Groundwater recharge response appears to beinfluenced by a number of factors including its location in the physiographic basin, the soil,geology of the area, thickness of the weathered mantle, the orientation of fractures and thehydraulic head distribution. There is a need to identify and develop better techniques forquantification of recharge, the recharge response to different rainfall intensities and the rateof release of recharge in different situations. The best watershed management options thatcan contribute to groundwater recharge have to be understood and effective structures thatcan enhance the vertical movement of groundwater need to identified. The dedicatedpiezometers, DWLR and weather stations combined with the new analytical tools haveenhanced our understanding, which needs to be carried to its logical end for developingimproved watershed management techniques and units for enabling groundwater rechargein different hydrogeological units.

Improved norms for GW resource assessment

Changes in groundwater abstraction, land use and recharge patterns are creating majorvariations in the dynamics of the hydrologic cycle, thus creating an impact on groundwaterresource availability. In recognition of the need for effective and efficient methods forsustaining the groundwater resources in rural and urban areas, and particularly in irrigationareas overlying unconfined aquifers, the groundwater resource assessment methodology(GEC-97 norms) has to be refined. This methodology has to emerge as a prediction tool foridentifying areas that are likely to become overexploited, contaminated or affected as aresult of changes in agriculture, land use, industrialisation and urbanisation. For this thegroundwater resource assessment should be linked with the GIS tools and interfaced withflow and contaminant transport modelling tools. The resource assessment tool has to beuser-interactive and should be able to respond to varying changes in groundwaterabstraction, recharge and land use.

6.3 Expansion of HIS to WIS for IWRM

6.3.1 The concept of Integrated Water Resources Management

Although the concept of IWRM by itself is not new in India, its implementation at national,regional and local level has hardly begun. Basically, IWRM consists of the identification of allinterests related to water and the balancing of these interests in relation to the naturalconditions of the water system and the services the system can provide. The balancing ofinterests requires a participatory approach to water management.

Without mentioning the term IWRM as such, the National Water Policy of the Government ofIndia has adopted the concept of IWRM already in 1987. At his moment the National WaterPolicy is being reformulated. The set-up of the Policy will remain the same but some articleswill be redrafted or added in the light of the latest developments in the Water Sector. Inparticular articles 1, 3, 4 and 12 address the key-aspects of IWRM. The following passagesare highlighted in this respect:


• Article 1:…..water is a prime natural resource, a basic human need and a preciousnational asset. Planning, development and management of water resources need to begoverned by national perspectives..….. keeping in view the socio-economic aspects andneeds of the States concerned

• Article 3:….water resources planning, development and management will have to bedone for a hydrological unit such as drainage basin as a whole or for a sub-basin, multi-sectorally, taking into account surface and groundwater for sustainable use,incorporating quantity and quality aspects as well as environmental considerations

• Article 4: ….existing institutions at various levels under the water resources sector willhave to be appropriately reoriented / reorganized and even created, wherevernecessary appropriate river basin organizations should be established for the planneddevelopment and management of a river basin as a whole or sub-basins, wherevernecessary.

• Article 12: …..management of the water resources for diverse uses should be done byadopting a participatory approach………..

Articles 3 and 4 have been worked out in the document ‘Guidelines for the preparation ofRiver Basin Master Plan’ (CWC, 1990). The main part of this guideline is still very valid. Inaddition to the National Water Policy, several states have developed their own WaterPolicies. Those Policies also advocate the concept of IWRM.

Despite the adoption of the IWRM principles in the NWP, the reality is that it has not reallybeen implemented yet in India (with a few mostly local exceptions). A similar conclusion wasdrawn on a more global scale during the World Water Forum in The Hague in 2002. In theirdocument ‘Towards Water Security: A framework for Action’ the Global Water Partnership(GWP) recommends the following actions to implement IWRM:

• mobilizing the political will to act (clear policies and targets);• making water governance effective (institutions, pricing, etc.);• generating water wisdom (awareness campaigns, capacity building, research, etc.);• tackling urgent water priorities:

- protect and restore water resources- achieve water-food security- improve environmental sanitation- meet the challenge of urbanization- improve the management of floods

• investing for a secure water future (determine investment needs, private participation,etc.).

The new draft National Water Policy has taken some of these recommendations into accountand enables the implementation of IWRM, both at national as well as state level..

6.3.2 IWRM and the HIS

From the perspective of IWRM, the present project has contributed substantially to enablingthe implementation of IWRM in India by making available the required information on thecondition of the water system and the availability of water. This kind of information isessential in IWRM. Without knowing how much water is available and already used and whatkind of developments are taking place in the natural systems in terms of quantity and quality,IWRM is not possible. But, hydrological information is only part of the full picture and muchmore is needed for real IWRM. The list of actions given in ‘The Framework of Action’ as


given in Section 6.3.1 seems to apply for India as well. Emphasis of these actions in Indiawill be at the State level while at the National level the enabling conditions should becreated. These enabling conditions relate to the political, institutional and capacity-buildingaspects involved.

A key element in applying IWRM is that planning and management will be done at a riverbasin level. This is recognized in the National Water Policy of India. Various institutionalstructures are possible to achieve this, ranging from coordinating committees to full-fledgedRiver Basin Authorities. What will be the best structure for India depends on many factorsand will mainly be a political decision, in particular with respect to the responsibilities of andbetween the states involved.

Implementing IWRM in India requires (amongst others) the following.

At national level the enabling conditions should be created:

• Clear national policies and targets• Adaptations of existing legislation and/or providing new legislation• Initiatives to (further) develop/establish river basin coordinating mechanism, e.g.

authorities (full management) or committees (coordinating over stakeholders and states)• Support of activities at state level.

At state level the following has to be achieved:

• Acceptance of concepts of IWRM and RBP by political and top-management level• Training of staff at mid-management level (analysts) in concepts and approaches• Provisions of equipment and analytical tools (incl. computer models)• Data needed for a proper analysis

6.3.3 Experiences from the Sabarmati and Godavari RBP studies

Within the Hydrology Project two research studies have been initiated on IWRM andRiverbasin planning: the Sabarmati River Basin planning study (Gujarat) and the UpperGodavari River Basin planning study (Maharashtra). The studies are being carried out byproject teams at the state level, supported by specialized staff from CWC / NWA, CGWB andNIH. The studies make use of the information from the HIS. Both studies are still continuing.Preliminary results are promising and generate enthusiasm in the states, also among the‘other’ stakeholders. A first assessment of these studies leads to the following statements:

• In general all involved in the study accept the concept of IWRM as the leading principlefor this kind of studies.

• The institutions involved are very much oriented towards a single discipline. A multi-disciplinary approach needed for IWRM is new for most staff members. In particular, theleading institutions involved, the water resources departments, are very much civilengineering oriented. Some institutional change will be required (i.e. to enable theinvolvement of other disciplines) and staff needs to be trained to make a more multi-disciplinary approach possible. In particular staff must become more familiar with aprocess-oriented approach, including the involvement of other stakeholders, instead ofthe more familiar project approach.

• Related to the above, more attention is required for the non-structural measures thatcan and should be applied in IWRM. It seems that the word ‘measure’ for most civilengineers in India is synonymous with the word ‘dam-project’.


• The step from project planning to river basin planning proves to be a big one. There is atendency among the engineers to approach river basin planning in the same way asproject planning, i.e. with the same level of detail and technical focus.

Summarizing it can be stated that these two studies have generated a lot of enthusiasm andthat the will to follow an IWRM approach in planning is certainly present. To enable thebroad implementation of this approach, institutional development will be necessary includingthe training of staff involved.

It is stressed here that above studies are related to planning aspects of IWRM only. Anotheraspect of IWRM is to manage water in accordance with these principles on a daily basis.Such IWRM-oriented management will most probably require substantial institutionalchanges, e.g. establishing (sub) riverbasin organizations.

6.4 Follow-up of HP from the perspective of IWRM

The core of the Hydrology Project has been development and establishment of theHydrological Information System (HIS) and related institutional structure. Taking this as astarting point the following follow-up activities can be contemplated:

• stimulating the acceptance of IWRM in India (central and state level)• training of staff (state and central) and provision of additional equipment and tools• extension of HIS into a Water Information System (WIS) for IWRM• pilot studies on River Basin Management based on IWRM (inter-state)

6.4.1 Acceptance of IWRM in India (central and state level)

Following the Global Water Partnership’s (GWP) first recommendation, i.e. ‘Mobilizing thepolitical will to act’, the political and decision making level must be educated in andconvinced of the need for IWRM. This can be achieved by organizing study tours, nationalconferences, and the use of mass media. Local organizations (among others the CWC),supported by external agencies (e.g. Global Water Partnership, International WaterManagement Institute) can be instrumental in this. After acceptance of the concepts ofIWRM the next step is to create the enabling environment to make it possible that the lowerlevels of government will indeed implement these concepts in their planning for waterresources development and management of the resources and the system.

6.4.2 Training of staff and provision of equipment and tools

Water Resources Development and Management in India is typically the domain of civilengineers. Their basic inclination is to think in terms of building and operation ofinfrastructure. IWRM requires a different approach, taking into account many otherdisciplines such as economy, sociology, ecology, etc., and the ability of all involved to worktogether and appreciate each other contributions. Various tools are available to support thisprocess, including communication procedures and techniques and computer models. Staffneeds to be trained in the new approach and the use of these tools. CWC (NWA) shouldplay a major role in this but also universities (NHI) should be involved.


6.4.3 Extension of HIS into a Water Information System

IWRM requires much more information than only data related to hydrology and hydraulics.Typical information needs for integrated river basin studies comprise the following.

Much of the above data are already available at various national and state departments andorganizations. Examples are economic and demographic data. The WIS should not duplicatethe data that is available elsewhere. For this kind of data the WIS should keep only metainformation, which tells the user what kind of information is where available and under whatconditions. The monitoring of current water use and the projection of future demands is acrucial component of IWRM, and should, therefore, be given due attention in the near future.

6.4.4 Pilot studies on River Basin Management based on IWRM (inter-state)

Most probably the best way to introduce the concepts of IWRM in India and to convince thestakeholders, is to carry out integrated planning studies for certain river basins. Such studieswill support and make more specific the other activities mentioned above: training andprovision of equipment and tools and the extension of HIS into a WIS. Moreover, thepractical application of the tools by staff trained on IWRM will provide focus for thedevelopment of the institutional arrangements. Basing them upon real situations makesthese activities more demand driven. This also implies that different institutional modalitiesmay arise.

Data describing the natural resource system

• natural system (rivers, lakes, etc) and man-made system (reservoirs, canals,pumps, etc.)

• monitoring data (meteorology, hydrology, hydraulics; quantity and quality)• parameters describing the behaviour of the system (losses, operation rules,

etc.)

Data describing the socio-economic system

• demographic data• macro-economic data• water use related data (monitoring and parameters)

− agriculture (area, crops)− water supply (domestic, municipal and industrial)− inland navigation− recreation− hydropower− public health

Data describing the administrative and institutional system

• description of legal framework• description of institutional framework


In the execution of the basin studies specific attention will have to be given to:

• involvement of all stakeholders and relevant organizations;• institutional development and capacity building; and• the process to be followed in integrated river basin planning, both with respect to the

planning aspects and to the interaction with the stakeholders and decision makers

The basin studies proposed will have to be carried out as full-fledged pre-feasibility studies.These will thus be different than the Sabarmati and Godawari studies, which were mainlydemonstration studies and in which the approach and tools were more important than theoutput. The ultimate results of the proposed river basin studies will have to become the basisfor the development and management of the basin in the years to follow. It is essential thatall stakeholders involved accept and support the results of the studies and thatadministrative and political commitments be given to implement the plan.

It is suggested to select river basins for these studies that represent the different conditionsin India, i.e. water shortage, drainage/flooding issues, water quality, environmentaldegradation (e.g. erosion), etc. At least one of the river basins should comprise two or morestates and has to address interstate issues, for example the (full) Godavari / Krishna rivers.

At present several states have already carried out WRM planning studies or have suchstudies in progress. Most of these studies are limited to the state boundaries. For real IWRMstudies it is necessary to cover the full river basin. Moreover, to enable a compilation andassessment at national level, these studies should be coordinated, e.g. regarding the toolsand assumptions used (scenarios etc.). CWC will have to play a major role in this respect.Still, if such studies have been carried out they will provide a major source of information forthe studies proposed here.


7 Institutional aspects

7.1 Creating a platform for broader appreciation of the HIS

For implementation of HP in the southern states, administrative entities responsible for theHIS (the “HIS units”) are generally part of the Water Resources Department, the IrrigationDepartment, or a department with a mandate similarly broader than hydrology alone.However, the officials in these units have implemented the project perhaps more from amonitoring 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 hasoften made it difficult to resolve bureaucratic and other obstacles to HIS implementationwhere such resolution would require the intervention of the secretary and/or the cooperationof the Finance 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 are still being held seems to be theexistence of HP. It should be noted though that the HIS became only recently operationaland more visible for HDUG members. Until such time it was difficult to generate real interestin 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 present lukewarm participation and uninspiring agendas,(potential) users may cease to participate in HDUG meetings after completion of HP. TheHIS units may then also cease to convene the meetings, and the HDUG may in practice nolonger exist by the time the first network optimization is at hand. To ensure continuedattention for the dynamic aspects of the HIS, it is necessary to revamp the present HDUG orto consider workable alternatives.

7.2 Reallocating responsibility for the HIS

One alternative could flow from the fact that the completion of the HIS in the present HPstates, and the possible vertical development of the HIS and its application in those states,offers an opportunity for a better demonstration of the system’s functionality and relevance.Successful vertical development would appear to involve shifting responsibility for projectimplementation from the monitoring units to the development units in the responsibledepartments. This would automatically broaden the perspective on HIS implementation anddevelopment, and as such could provide an incentive for generating interest in the HISbeyond the department.


At first glance, it appears difficult to assign responsibility for HIS development in the “new”states to the more planning-oriented units as well, since in the short term the focus willremain on designing and implementing (upgrading of) the observation networks and thephysical and administrative/procedural infrastructure for data processing, storage, anddissemination.

However, as another alternative, this could perhaps be overcome by transferring theresponsibility for monitoring to River Basin Organizations. This should be done as part ofimplementing the draft National Water Policy, which states: “With a view to give effect toplanning, development, and management of water resources on a hydrological unit basis,along with a multi-sectoral, multi-disciplinary, and participatory approach as well asintegrating quality, quantity, and the environmental aspects, the existing institutions atvarious levels under the water resources sector will have to be reoriented / reorganized oreven created, wherever necessary.”

The possibility for placing responsibility for the HIS in the RBO exists not only in the presentHP states (in connection with vertical development of the HIS), but also in the potential newstates. This is because, as soon as the decision-in-principle to entrust basin management toRBOs is taken, even the HIS limited to hydrological data only would have its logical placethere. The advantage of developing the HIS in these new states immediately in the RBOframework would be a) that it would be given its proper place from the start, and b) that itwould avoid having to shift responsibility from an HIS unit first developed under adepartment of the state government to an RBO later on, at which time such departmentmight have developed a vested interest in retaining the unit.

7.3 The national water policy and RBOs

According to the draft policy, RBOs should be established for the planned development andmanagement of river basins as a whole or of sub-basins wherever necessary. The existingNational Water Policy (NWP) proposes to set up special multi-disciplinary units to preparecomprehensive plans taking into account not only the needs of irrigation, but alsoharmonizing various other water uses, so that the available water resources are determinedand put to an optimum use having regard to existing agreements or awards of Tribunalsunder the relevant laws.

With regard to groundwater, the NWP states that there should be periodic reassessment ofthe groundwater potential on a scientific basis, taking into consideration the quality of thewater available and economic viability of its extraction. Moreover, exploitation ofgroundwater resources should be so regulated as not to exceed the recharging possibilities,and also to ensure social equity. Finally, the NWP stresses the need for integrated andcoordinated development of surface water and groundwater resources and their conjunctiveuse, which it wants to be envisaged right from the planning stage and should form anintegral part of the project implementation.

The policy identifies a well-developed information system at the national/state level for waterrelated data in its entirety as a prime requisite for resource planning. The HIS developedunder HP is a first step in this direction, in the sense that it must be further expanded bothgeographically and in terms of content to become a national Water Information System(WIS) comprising all relevant data.


A logical conclusion of the above mentioned considerations in the National Water Policy is,that if integrated water resources planning and management should be the responsibility ofRBOs, then these RBOs should also avail of the requisite information system. It wouldtherefore seem appropriate to orient the (expanded) HIS to use by the RBOs. The minimummode for implementation of this concept would be to establish in the RBOs a link to the HISmaintained by the state agencies. However, ultimately the situation could be reversed, as itcould prove more expedient to shift the entire responsibility for the HIS to the RBOs and toprovide the state agencies with links to the HIS in the RBOs.

Establishing the functions of RBOs could be different for surface water and groundwater, asmanagement and development of the latter is much more confined to the local area than inthe case of surface water. Hence, the responsibility for data collection on groundwater mightremain with the state organization, while RBOs would take over this responsibility in the caseof surface water. Nevertheless, the need to consider surface and groundwater data in itsentirety, coupled with the need to expand the hydrological content of the database with otherdata to develop information relevant to integrated water resources planning andmanagement, would argue for a strong link to the groundwater HIS – and an explicit relatedresponsibility for groundwater data – for the RBO.

7.4 Establishing RBOs

At present, RBOs exist in a number of states, with different mandates. They are referred toin the National Water Policy, but the institutional make-up of the existing organizations doesnot conform to a general standard, particularly regarding their mandate and authority.Successful use of RBOs would require further specification of function, position, andresponsibilities in both central and state law. Central legislation should outline generalcharacteristics of the RBOs and provide a frame of reference for state laws, particularly withrespect to inter-state arrangements. This may involve changes to existing laws at all levels.

Another issue to be tackled decisively in establishing the RBOs is removing the mono-disciplinary civil engineering culture and attitude prevailing in the existing water resourcesand irrigation departments. This may be done through deputation of relevant officers fromdifferent stakeholder departments and agencies. This would render the establishment of theRBOs neutral in terms of civil service employment, as positions created in the RBOs wouldbe filled exclusively through redeployment and/or deputation. This makes sense, since theRBOs would take over responsibilities and tasks now carried out by the differentdepartments and agencies. The organizations involved in the establishment of RBOs,including in the redeployment and/or deputation of their staff would be AgricultureDepartments, Groundwater Departments, Environment Departments, Rural DevelopmentDepartments etc.

There are other broader public participation issues in water management that need to beaddressed. As described earlier, public participation in the HDUG format has been veryunenthusiastic. To initiate and sustain higher levels of public participation, it is necessary toidentify locally relevant issues and find appropriate and sustainable solutions. RBOs arelikely to provide the right kind of framework and environment for this.


7.5 Potential obstacles to establishing RBOs

The need identified in the draft policy, to consider institutional restructuring in line with thewater resources functions to be performed in the framework of the hydrological unit, impliesthat some of the responsibilities now lying with state and central organizations would betransferred to the RBOs. However, the states may refuse to relinquish their responsibilitieson this issue in light of the provisions of the Union Constitution defining water as a statesubject. Perhaps this debate may be resolved under the new approach through therealization that basin-oriented management by RBOs does not equal central governmentinterference in state affairs, but instead, provided due regard is given to the interests of thestates participating in the respective RBOs, represents the creation of a platform forexecution of state responsibilities on a technically as well as institutionally appropriate level.Thus, basin planning and management by the RBO should not be seen as being farremoved from state involvement as might be the perception in the case where centralgovernment organizations would do the same. The proposed project for vertical andhorizontal expansion of the HIS could be an appropriate proving ground for experimentationwith new institutional approaches. This could include different forms of constituting theRBOs (e.g. as authority, commission, department, coordinating body, etc.) and varyingmandates in line with local situations and needs.

A prerequisite for successful use of RBOs seems to be that the states should have aguarantee that this would not in any shape or form imply nullification of their constitutionalauthority over water resources and water management. While leaving this authority intact,perhaps even re-confirming it, the objective should be to delegate only the implementation ofthe relevant responsibilities to the RBOs. Inter-state arrangements with supervisory powersover the RBOs, with recourse to adjudication by Union Government-instituted tribunals,should provide satisfaction to the states that they would not relinquish anything.

7.6 The role of existing river basin organizations

RBOs are nothing new in principle to the Indian institutional landscape. The existing NWPalready provides for the establishment of special multi-disciplinary units in each state toprepare comprehensive plans taking into account not only the needs of irrigation but alsoharmonizing various other water uses. One of the primary technical functions of the RBOswas to be the development of a network of data banks and databases at the basin level, anetwork that should be made freely accessible to all user agencies. In other words, thesuggestion to establish the HIS in the RBOs is in line with existing policy.

The implementation of IWRM requires a combination of an institutional and technicalapproach. The institutional aspects relate to the willingness of the various departments to co-operate, compromise (the balancing of interests) and to commit themselves to theimplementations of the decisions taken. This requires water wisdom and qualifiedorganizations. Although these institutional aspects seem to be the most crucial, it is believedthat the technical aspects may strongly support and stimulate the required institutionaldevelopments. Good information helps to convince the decision-makers and stakeholdersinvolved on the benefits of the approach. In many cases IWRM will result in win-winsituations. These win-win situations are made possible by carrying out sound socio-economic and technical analysis.


Another major function of the RBOs identified in the past was to monitor implementation ofschemes included in the approved basin plans undertaken by the states. During preparationof the Ninth Plan, it was considered that the RBOs potentially could have a very significantrole in catchment area development in preventing deterioration of the land resource bypromoting appropriate preventive measures through soil and water conservation programson the basis of integrated watershed management.

The following powers were proposed for the RBOs:

• Conduct and coordinate research into aspects of conservation and utilization of waterresources such as power generation, irrigation, navigation, flood control, soilconservation, and land use.

• Publish statistics and other information relating to the various aspects of thedevelopment of the interstate river or river valley.

• Oversee storage apportionment, regulation, and control at various points in the riverbasin.

• Require any state government to furnish such information as required regarding:1. projects for the regulation and development of the inter-state river or river valley;2. topographical, meteorological, hydrological, and other sub-soil data.

Progress has been slow on both the establishment of RBOs and the formulation of riverbasin master plans. Yet, several basin organizations now exist, though their functions arenot always framed in terms of the proposed mandate described above. A number of existingRBOs are listed below:

Area River Basin Organization FunctionsN Yamuna Board Issues policy directives for inter alia water sharingE+C Sone River Commission Developed RB master plan and was since wound upC Betwa Control Board Controls execution of projects in the basinC Bansagar Control Board Controls execution of projects in the basinE Damodar Valley Project Manages operation of the basin (flood control, flood

forecasting, power generation, irrigation, etc.)N Bhakra Management Control Board Responsible for utilization of reservoirs, manages dam

operationE Bramaputra Control BoardS Tungabhadra Control Board Operation and management of the system (2 basins)N Ganga Action Plan Cleaning up of the river systemN Yamuna Action Plan Cleaning up of the river systemC+W Narmada Control Authority Controls development of water resources in the basinW Narmada Development Department Executes development (Gujarat state government

department)C Narmada Valley Development

AuthorityExecutes development (MP state governmentdepartment)

W Sardar Sarovar ConstructionAdvisory Committee

Monitors construction in the river basin

MWR, Indus Wing Coordinates development in international river systemMWR, Eastern Rivers Wing Coordinates development in international river systemMWR, Bramaputra Control Board Coordinates development in international river systemMWR, Farrakha Barrage Coordinates barrage operation


7.7 Other forward linkage looks

The HIS forms an essential part of the comprehensive and integrated water resourcesplanning and management programmes at regional and macro levels. The optimumleverage of the HIS will be derived only when it is used by institutions at these levels for theoverall socio-economic benefit of the communities. Therefore, in the follow-up project effortswill have to made to build ‘forward linkage-loops’ with relevant sectors and institutions. Someexamples of such linkages include issues related to Women and Water, Public PrivatePartnership in building and utilizing HIS, monitoring of water use for refining GEC norms,creating, promoting and sustaining higher degree of HIS awareness, development of anurban HIS etc. These are only preliminary ideas towards possible implementation during thevertical expansion phase. The concept, approach and application of each of these issuesneed to be examined in detail prior to implementation.

7.8 Conclusion

Now that HP has made available an integrated hydrological information system, anadditional push becomes possible to further develop the RBOs in the direction of theirproposed mandate and powers. At the same time, the existence of the RBOs is itself anopportunity to take data collection, processing, analysis, and dissemination to a higher planeby expanding the HIS in the direction of a general water information system through theinclusion of additional types of data. This elevates the function of the HIS from “mere”monitoring to development coordination and planning in and between the states. This mayserve to improve the appreciation of the utility of the HIS and its related institutionalarrangements, and should thus improve sustainability of the achievements of HP. Theproposed new project to horizontally and vertically develop the HIS could be an appropriateproving ground for experimentation with this approach.


Annex I

Modified approach for horizontal expansion of the HIS

Surface Water

Network design

The horizontal expansion of HP may cover as many as 17 states as specified in Table 5.1,though in different phases. While these states are characterized by common geographicalcharacteristics, they also have unique features that will require an area-specific variance inapproach, based on the dominant river systems. Punjab has ‘Beas’ and ‘Sutlej’ with ‘Kandyarea’ at the foothills and the plains. There are extensive irrigation systems with canals anddrains covering the length and breadth of the state. Haryana has the ‘Jhajjar river’ flowing inand becoming a drain for irrigation surpluses, as it flows into Rajasthan. The Yamuna basinhas flat land and difficulty of drainage from intense storms, with consequent flooding.Rajasthan has a vast area, adjoining Uttar Pradesh and Madhya Pradesh, that have riverswith defined channels similar to the Southern Peninsula, whereas the rivers in the ‘TharDesert’ are different with less defined channels and flowing only for short spells.Uttar Pradesh has the ‘Ganges and its tributaries’, and so has Bihar. Rivers are fast flowingin the foothills, with silting and scouring. In the ‘Bhabbar zone’ there can be considerablesub- terranian flows. The North bank tributaries to the Ganga are the Ghagra, Gandak,Adhwara group of rivers, Kosi and Mahananda and they span both Uttar Pradesh and Bihar.The South bank tributaries include the Chambal, and the Sone. West Bengal hasMahananda, the Teesta from the hills. Nearer to the delta they are characterized by sluggishdeltaic channels and tidal effects. The Bhramaputra river may pose the greatest challenge tomonitoring, where boat-mounted ADCP systems will be required. Network design,integration of networks and data collection methodologies, therefore, have to take intoconsideration these inherent issues and problems, unique to the geographical areas.

Meteorological Stations

Joint inspections by IMD and state agencies are necessary for SRG stations and amanageable network has to be established with a balanced approach for hilly terrain, plainsand deserts. ARG instruments need to be augmented with TBR’s (Tipping Bucket Raingauges) for selective quantitative forecasts. FCS locations must take the well spreadirrigation systems into consideration. Availability of staff in adequate numbers must be animportant factor while selecting network stations.

Gauging Stations

Water level measurement: Water level has to be measured at discharge sites and also atconfluences. For the larger rivers the level change is sluggish and experience indicates thata bubbler type instrument is a good option in such cases. They also have the facility foroperational transfer of level information. The other level gauges using pressure transducersmust be used selectively based on their past performance. Staff gauges and well-checkedlocal benchmarks are essential. With the northern plains exhibiting more shifting of channelsand scour, bench marks at sites and staff gauges need better positioning and attention.

Discharge Measurement: ADCP’s will be the preferred choice as the CWC becomes moreproficient in their use. The faster streams may need the ‘Dilution Methods’ of dischargemeasurement where the flows are turbulent. Both the ‘gulp’ and ‘constant rate of injection’need to be specified for use. Where the location offers suitable conditions for erectingcolumns and the river channels are confined, BoCW’s are a viable alternative.


Groundwater

Network design

In the Ganges and Brahmaputra river valleys, and in the Himalayan high lands groundwaterconditions are vastly different from what is seen in the Southern Peninsula. Large stretchesof the Southern Peninsula is made up of hard rocks and coastal aquifers. The differentformations in Northern India include glacial deposits, river borne sediments, flood plaindeposits, wind borne sediments and the Himalayan high lands. The sediments in NorthernIndia are very well stratified with clear demarcation of individual beds, which have largeregional consistency. The thickness of the alluvium goes down very deep and at someplaces even down to 1000 meters.

There is a large number of artesian springs, springs with limited pressure heads, thermalsprings etc. In Rajasthan the wind borne sediments have deep water tables and salinityconditions. The Himalayan high lands are made up of sedimentary rocks in Kashmir and inthe North East. These consist of limestone, sand stone and shale and some granite withdeep gorges and valleys filled with alluvium, having very high discharges which at someplaces emerge as springs, some of which are thermal springs.

In the canal command areas in Punjab, Haryana, Rajasthan and UP the groundwater systemin a number of canal commands is largely influenced by the surface irrigation system, with ahigh degree of salinity. Due to variations in the geometry of the aquifers and aquifercharacteristics, the layout of the monitoring network in the alluvial areas have to be differentfrom the hard rock areas. The areal density of the network can be thin, because of theregional consistency. However, for monitoring multiple aquifers in the same area, multiplepiezometers need to be constructed, some of which can be of the nested type.

Variations in water quality is also expected between the different aquifers within the samearea, some of which would have to be monitored in-situ. The basic observations andmeasurements of the groundwater system can be carried out using both natural features aswell as dedicated piezometers. Natural surface features that can be used as monitoringstructures will be springs, cavernous limestone caves, mine shafts, quarries and roadtunnels. These would provide access points for the measurement of groundwater levels anddischarge at several locations. In such areas the task in designing the monitoring set-up willbe restricted to providing access to sites, and making arrangements for measuring the waterlevels and discharges.

Construction of piezometers

In the construction of piezometers the designs will have to be of several types. The simplestdesign could be a hand drilled small diameter piezometer. The complicated deeppiezometers could be of telescopic designs. Piezometers with non-corrosive casing materialwould be required in areas with high temperature and sulphurous quality. The design ofwater level recorders and their numbers will be different. In many cases the water levels arelikely to be very shallow, where as in other areas the requirement would be to measurepressure heads. In some cases the temperature and water quality monitoring would becomeessential. The need for incorporating geophysical down-hole logging, pumping tests andGPS based surveying will become an essential component of the network design andpiezometer construction.

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