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MAHARASHTRA WATER SECTOR IMPROVEMENT PROJECT
FINAL EVALUATION REPORT
Submitted To
Project Preparation and Monitoring UnitWATER RESOURCES
DEPARTMENTGOVERNMENT OF MAHARASHTRA
By
SHELADIA ASSOCIATES, Inc, USA
In Association With
AGRICULTURAL FINANCE CORPORATION LTD.Mumbai, India
AUGUST, 2014
MAHARASHTRA WATER SECTOR IMPROVEMENT PROJECT
FINAL EVALUATION REPORT
Submitted To
Project Preparation and Monitoring UnitWATER RESOURCES
DEPARTMENTGOVERNMENT OF MAHARASHTRA
By
SHELADIA ASSOCIATES, Inc, USA
In Association With
AGRICULTURAL FINANCE CORPORATION LTD.Mumbai, India
AUGUST, 2014
MAHARASHTRA WATER SECTOR IMPROVEMENT PROJECT
FINAL EVALUATION REPORT
Submitted To
Project Preparation and Monitoring UnitWATER RESOURCES
DEPARTMENTGOVERNMENT OF MAHARASHTRA
By
SHELADIA ASSOCIATES, Inc, USA
In Association With
AGRICULTURAL FINANCE CORPORATION LTD.Mumbai, India
AUGUST, 2014
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FINAL REPORT
FINAL EVALUATION REPORT
ON
MAHARASHTRA WATER SECTOR IMPROVEMENT PROJECT(MWSIP)
Part I
MAIN REPORT
MWSIP
FinalReport
August, 2014
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MWSIP Final Evaluation Report, March, 2014
Preface
The National Water Policy adopted by the Govt. of India in the
year 1987 highlighting theneed for farmers participation underwent
revision in the year 2002 laying down moreemphasis on Water Use
Efficiency, Community Participation and Participatory
IrrigationManagement. The Policy recommended adoption of
participatory approach in themanagement of water resources and as
well as establishment of Water User Associationsfor transferring
the water management task ultimately to the user groups. In
accordanceto these recommendations, the Maharashtra State Water Pol
icy was framed in the year2003 in order to ensure a sustainable
development and optimal use and management ofwater resources in the
State for maximizing the social and economic benefits for the
State.Subsequently the enactment of the Maharashtra Management Irr
igation Systems byFarmers Act in the year 2005 gave statutory
recognition to the constitution and ope rationof Water User
Associations for enabling the farmers to act collectively to
improve theproductivity of irrigated agriculture.
It was at this juncture the World Bank assisted Maharashtra
Water Sector ImprovementProject was launched in the State in the
year 2007 with the twin objectives ofstrengthening the State's
capacity for multi -sectoral planning, development &
sustainablemanagement of the water resources and secondly for
improving the irrigation servicedelivery and productivity of irr
igated agriculture. The initial duration of the project wasupto
March2012 which was subsequently extended to March2014. The
projectinterventions included rehabilitation of canal wor ks and
establishment of water userassociations for transferring the
operation and maintenance of the systems to WUAs andensuring
volumetric supply of water to them in 12 Major schemes, 11 Medium
schemesand 212 Minor schemes with a delineated command area of 6.45
lakh hectare spread overin 33 districts of the State. A dedicated
Project Preparation and Management Unit (PPMU)was established
within the Water Resources Department for successful implementation
ofthe project.
M/s Sheladia Associates Inc USA in association with M/s AFC
India Ltd (formerlyAgricultural Finance Corporation Ltd) had the
privi lege of being a part of this prestigiousassignment having
been designated as an External M&E Agency for the complete
period.The assigned tasks included preparation of fourteen half
-yearly Monitoring Round reportsfor providing periodic feedback to
the PPMU on the qualitative and quantitative aspects ofprogram
implementation. As a part of the Monitoring & Evaluation
exercise, three Mid-term Evaluation Studies were also undertaken
during 2009, 2011 and 2013 respectively forassessing the outcome
and impact of the project interventions. This Report pertains tothe
Final Evaluation which was proposed towards the end of the project
i.e. March2014.The Report briefly brings out the outcome and impact
of the project components onvarious performance indicators.
We are deeply indebted to the Water Resources Department, GOM
for giving us anopportunity to provide our services for the
project. We are also very grateful to theAgriculture Department,
GSDA and all other project stakeholders with whom we hadfruitful
interactions during the course of our monitoring and evaluation
exercise.
Jan Twarowski A.K.GargDirector Managing DirectorSheladia
Associates, AFC India LtdU S A Mumbai, India
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MWSIP Final Evaluation Report, March, 2014
Table of Contents
Sheladia Associates, Inc., USA & AFC India Ltd., Mumbai
INDIAMAHARASHATRA WATER SECTOR IMPROVEMENT PROJECT
(Ln4796-IN)Final Evaluation Report (March 2014)
TABLE OF CONTENTS
Page No.
Preface i
Table of Contents ii vi
Executive Summary vii xix
Chapter 1 BACKGROUND 1 71.1 International context for Integrated
Water Resource Management 11.2 International Context of
Participatory Irrigation Management/Irrigation Management Transfer
21.3 Challenges facing the Maharashtra State water sector at the
onset ofMWSIP 41.4 Laying down the groundwork activities in
Maharashtra to spurIWRM and IMT/PIM 51.5 Project Preparation by the
World Bank and Govt. of Maharashtra 7Chapter 2 INTRODUCTION TO
MWSIP INTERVENTION 8 122.1 MWSIP 82.2 Project Area 82.3 Project
Development Objectives 82.4 Scope and Description of main
activities 92.5 Financial Progress 102.6 Implementation
Arrangements 112.7 Implementing Partners and their role 12Chapter 3
FINAL EVALUATION APPROACH & METHODOLOGY 13 183.1 Study Design
133.2 Study Sample 133.3 Methodology for selection of sample
households under randomlyselected schemes 143.4 Scheme
category-wise selected sample number 163.5 Coverage of CCA in the
Sample schemes 163.6 Region-wise distribution of sample schemes
against total 163.7 Data Generation 173.8 Definitions used for
evaluating Irrigation System Performance,Financial Performance and
Social Indicators 18
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Page No.
Chapter 4 PROJECT DESIGN AND ACHIEVEMENTS 19 424.1 Project
Design and Relevance 194.2 Project Benefits 204.3 Project
Components & Achievements 214.4 Component A-1 : Establishment
of Maharashtra Water ResourcesRegulatory Authority (MWRRA) 214.5
Component A-2 : Restructuring and capacity building of IDCs 224.6
Component A-3 : Restructuring and capacity building of WRD 234.7
Component A-4 : Strengthening and capacity building of WALMI 244.8
Component A-5 : Integrated Computerised Information System (ICIS)
244.9 Component B-1: Participatory rehabilitation and modernization
254.10 Component B-2 : Dam safety works 264.11 Component B-3 :
Formation and capacity building of WUAs 274.12 Component B-4 :
Improved Water Management Practices in SelectedProjects 334.13
Component B-5 : Strengthening Agricultural Support Services 344.14
Component B-6 : Environment and Social Management Plan: 374.15
Component C-1 : Groundwater Management Pilot 384.16 Component C-2 :
Piloting commercialization of irrigation servicemanagement 394.17
Component D-1 : Project Preparation and Management Unit 404.18
Component D-2 : Monitoring and Evaluation 414.19 Component D-3 :
Information, Education and Communication 42Chapter 5 PROGRESS UNDER
IRRIGATION SYSTEM PERFORMANCE INDICATORS 43 - 695.1 Introduction
435.2 System Performance Indicators
(I) Storage 45
(II) Irrigation 45
(III) Water Delivery Efficiency (WDE) 51
(IV) Water Use Efficiency (WUE) 53
(V) Transit losses in canals of major, medium and minor schemes
61
(VI) Equity Performance 61
(VII) Water Delivery Capacity Index 625.3 Financial
Indicators(I) Cost Recovery Ratio 63
(II) Revenue Collection Performance 63
(III) Revenue Collection Per Unit Volume of Water Supply (for
Irrigation) 665.4 Annual Agricultural Income 67
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Page No.
Chapter 6 CAPACITY BUILDING, TRAINING AND AWARDS 70 - 856.1
Introduction 706.2 Capacity Building & Training Facilities,
Functionaries and Activities 706.3 State Needs in IWM Modernization
beyond MWSIP 706.4 Training Objectives, Faculty and Facilities at
META 716.5 Training Calendar, Trainees level and Courses at META
& RTCs 726.6 State Training Policy (2011) 736.7 Gap Analysis in
Planning, Design and Implementation of TrainingPrograms Suggestions
746.8 Specific Recommendations on META Training Courses 756.9
Training Objectives, Faculty and Facilities at Water and
LandManagement Institute (WALMI), Aurangabad 776.10 Training
Calendar, Training Level and Training Courses at WALMI 776.11 Gap
Analysis in Planning, Design and Implementation of TrainingPrograms
of WALMI Suggestions for Action Points 816.12 Specific
Recommendations on WALMI Training Courses 826.13 Foreign Trainings
and Study Tours 836.14 Punyashlok Ahilyadevi Holkar WUA Award
85Chapter 7 SOCIO ECONOMIC IMPACT 86 - 1147.1 Introduction 867.2
Study Sample 867.3 Demographic Details of Households 877.4
Occupation 907.5 Asset Ownership 927.6 Dwelling 967.7 Household
Income 977.8 Reach wise distribution of Sample households 1017.9
Net household income of households Reach-wise 1017.10 Scheme-wise
percentage share in net average annual hh income 1027.11 Reach-wise
percentage share in net average annual household income 1027.12
Average Land Holding of Farmers 1037.13 Land Development 1037.14
Cropping Pattern 1047.15 Crop yield per hectare 1077.16 Cropping
Intensity 1087.17 Irrigation Intensity 1097.18 MWSIP - Economic
Analysis 1107.19 Farmers practicing IPM, INM, Organic farming &
Bio-fertilizer use 1107.20 Farmers seeking advice on agricultural
practices 1117.21 Benefit derived by farmers through Consultations
112
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Page No.7.22 Awareness among Farmers about Water related Govt.
policies 1137.23 Awareness among Farmers about agriculture related
issues 1147.24 Conclusion 114Chapter 8 OPERATIONALISATION OF PIM
115 - 1228.1 Introduction 1158.2 PIM Policy Reform Initiatives
1158.3 State Water Policy, 2003 1178.4 Maharashtra Management of
Irrigation System by Farmers Ordinance,2004 1178.5 Maharashtra
Management of Irrigation System by Farmers Act, 2005and Rules 2006
1178.6 Maharashtra Water Sector Improvement Project (2006-2014)
1178.7 Institutional Structure for Operationalization of PIM 1188.8
Implementation of PIM Action Plan 1188.9 Focus on Agro
Entrepreneurship Development 1198.10 SWOT Analysis 1198.11 Nature
of Awards Instituted by GOM to Encourage and InviteCompetition
among WUAs 1218.12 Recommendations 121Chapter 9 PROJECT
IMPLEMENTATION AND MANAGEMENT EFFICIENCY 123 - 1339.1 Project
Activities Implementation Efficiency 1239.2 Institutional Reforms
in Water Sector (Component A) 1239.3 Structural Reforms in Water
Sector (Component B) 1259.4 Innovative Pilots (Component C) 1309.5
Project Management (Component-D) 1319.6 Overall Implementation
Efficiency of MWSIP 133Chapter 10 LESSONS LEARNT 134 - 13910.1
Introduction 13410.2 Project Implementation Plan 13410.3 Sector
Reforms 13410.4 Inter Coordination and Collaboration 13410.5 Water
Resource Regulation and Management 13510.6 Enhancement of Dam
Safety 13510.7 Effectiveness of rehabilitation 13510.8
Effectiveness of Farmers Participation in Irrigation Service
DeliveryFunctions 13610.9 Womens Role in Irrigation Service
Delivery and Management 13710.10 NGOs role in Capacity Building and
Training of Participatory Farmersand Farmers Organizations 137
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Page No.10.11 Strengthening of Agricultural Support Services
13710.12 Farmers Fiscal Responsibility in Project Implementation
Program 13810.13 Effective Implementation of Innovative Groundwater
Pilots 13810.14 MWSIP on Long Time Frame Need for Phase-II Reforms
13810.15 Conclusion 139Chapter 11 CASE STUDIES 140 - 15611.1 A
successful and Self Sustainable WUA Demonstrating best practicesin
PIM 14011.2 Sustainable Water Management Experiences from the
IrrigationSector 14211.3 A Case Study on Increase in Final Share
value to Farmer (Producers)through Agri-Entrepreneurship Department
Project (EDP) activityDal Mill under MWSIP 14711.4 Case study on
Pomegranate cultivation under Horticulture promotion 14911.5 Case
study on Crop Diversification 15111.6 Growing of Exotic vegetables
: A success story 15311.7 Case study on Rose cultivation under
Floriculture promotion 15411.8 Case study on Gerbera cultivation in
Polly House 155PART II 157 - 247
Annexure 3.1 Region wise and district-wise distribution of
selected schemes againstProject, Control and Random sample
157Annexure 5.1 Live Storage Capacity versus Designed Storage
Capacity by Scheme Category(All Schemes) 159Annexure 5.2 Culturable
Command Area, Irrigable Command Area and Area Irrigatedthrough
Canals during IY 2012-13 in ha for all MWSIP 166Annexure 5.3 Water
Delivery Efficiency (WDE) for 24 BLS Schemes 170Annexure 5.4 Water
Delivery Efficiency (WDE) for All 235 Schemes 171Annexure 5.5 Water
Delivery Efficiency (WDE) for 39 Final Evaluation Schemes
178Annexure 5.6 Water Use Efficiency (WUE) at Scheme Level for 24
BLS Schemes 180Annexure 5.7 Water Use Efficiency (WUE) at Scheme
Level for All 235 Schemes 182Annexure 5.8 Water Use Efficiency
(WUE) at Scheme Level for 39 FE Schemes 189Annexure 5.9 Water Use
Efficiency (WUE) at Distributory Level for 24 BLS Schemes
191Annexure 5.10 Water Use Efficiency (WUE) at Distributory Level
for All 235 Schemes 192Annexure 5.11 Water Use Efficiency (WUE) at
Distributory Level for 39 FE Schemes 193Annexure 5.12 Water Use
Efficiency (WUE) at WUA(m) Level for 24 BLS Schemes 194Annexure
5.13 Water Use Efficiency (WUE) at WUA(m) Level for All 235 Schemes
196Annexure 5.14 Water Use Efficiency (WUE) at WUA(m) Level for 39
FE Schemes 204Annexure 5.15 Results of WDE and WUE At A Glance for
39 FE Schemes 206Annexure 5.16 Scheme-wise Water Delivery Capacity
Index for IY 2012-13 207Annexure 5.17 Recovery Collection
Performance and Cost Recovery Ratio 213Annexure 5.18 Agricultural
Income (Rs./ha) for BLS Schemes 229Annexure 5.19 Agricultural
Income (Rs./ha & Rs./TCM) for BLS and All Schemes 230Annexure
5.20 Agricultural Income (Rs./TCM) for BLS Schemes 233Annexure 7.1
MWSIP Economic Analysis 234*******
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Sheladia Associates, Inc., USA & AFC India Ltd., Mumbai
Executive Summary
I. Background
The World Bank funded Maharashtra Water Sector Improvement
Project is being implemented inthe entire State of Maharashtra with
the aim to increase the irrigation potential (3.86 millionha.
during IY 2003-04) and to increase the utilization (43% in 2003).
The program, with a projectoutlay of Rs. 18623.20 million, covered
selected 235 schemes in the state mainly to address
canalrehabilitation and modernization along with dam safety
measures. Further, the projectcontemplated handing over the systems
to the farmers in the command area (comprising 6.45lakh ha.) for
which around 1700 Water User Organizations were proposed to be
positioned in theproject area.
The Water Resources Department initiated these interventions
under the Project in 2005 forwhat was initially planned as a six
years implementation period, but which was subsequentlyextended up
to March 2014. The hierarchy of the implementation machinery is the
ProjectPreparation and Management Unit established within the Water
Resources Department,Government of Maharashtra, Ten Regional level
(headed up Chief Engineers) set-ups catering to17 circles which
supervises the grass-root level implementation of 235 executing
bodies at districtlevel headed by the Executive Engineers of the
Department.
Financial Progress: Original base cost of MWSIP is US $ 351.28
million (Rs.16,580.42 million) andthe revised cost is Rs.18,623.20
million as per the review meeting held during October 2013.
Thetotal cumulative expenditure incurred up to March 2014 on the
project components andactivities is Rs. 17,774.41 million, which
constitutes 107.20% of the original base cost and 95.44%of the
revised cost.
This Final Evaluation Report is intended to provide a better
understanding of to what extent theproject development objectives
have been achieved and the levels of impact attained by theproject
interventions. This analysis and evaluation is facilitated by the
baseline values establishedat the beginning of the project through
a Base-line Study.
II. Maharashtra Water Sector Improvement Project (MWSIP)
The project development objectives are: (i) to strengthen the
states capacity for multi-sectoralplanning, development and
sustainable management of the water resources and (ii) to
improveirrigation service delivery and productivity of irrigated
agriculture. The four project componentsare : Institutional
Restructuring and Capacity building; Improving Irrigation Water
ServiceDelivery and Management; Innovative Pilots and Project
Management.
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Executive Summary
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III. Project Achievements
Component A : Institutional Restructuring and Capacity
Building
3.1 Component A-1:
Establishment of Maharashtra Water Resources Regulatory
Authority (MWRRA)
The State of Maharashtra has become the first state in the
country to possess a Regulator for theissuance of water tariff
order. The water entitlement program included for 232 out of
235projects covering 1341 WUAs under MWSIP and 25 projects (other
than MWSIP) covering 27WUAs of non-MWSIP schemes. The MWRRA has
been successful in accomplishing all of theenvisaged tasks under
this component which included providing water entitlement,
evaluation ofthe entitlement program, establishment of a database
system, development of water tariffregulation, organizing
stakeholders consultation for water tariff determination,
appointment ofregulators, preparation of a technical manual
(bilingual) and preparation of an integrated statewater plan to
facilitate preparation of basin plans by the River Basin Agencies.
The authority wasalso successful in bringing out Annual Reports on
water accounting, auditing and bench markingperiodically. Awarding
entitlements to WUAs has enabled them to know the quantum of
wateravailable post rainy season for Rabi and Hot Weather. Since
the quantum of water availableduring the year is known, planning
for various Rabi and Hot Weather crops has become easier
forWUAs.
It is worth noting that the incumbent designated as MWRRA
Chairman during the inception ofthe project in 2005 continued for
more than six years until all activities could be put in place
fortaking forward in the future. Planning Commission in their 11
midterm appraisal mentioned thatthe most sweeping institutional
reforms have been introduced in Maharashtra through theMaharashtra
Water Resources Regulatory Authority (MWRRA) Act, 2005
3.2 Component A-2 :
Restructuring and capacity building of IDCs
The MWRRA Bill provides the authority to establish RBAs to
mandate river basin wise planningand management of the states water
resources in an integrated manner. The Bill calls for
theadministration of water use entitlements to be delegated to
RBAs. To carry out the expandedresponsibilities to be assigned by
the authority, the already existing Irrigation
DevelopmentCorporations were proposed to be restructured into River
Basin Agencies. Accordingly this sub-component of MWSIP addresses
conversion of one IDC viz. Krishna Valley Irrigation
DevelopmentCorporation at the first stage on a pilot basis which
would be followed by the remaining IDCs. Theproject was successful
in re-defining the role of the existing IDCs to take up the
envisagedactivities as a River Basin Agency to provide support to
MWRRA. The superimposition of RBAfunctions onto the IDC structure
may be tested for a period of approximately 2 years at whichtime
the effectiveness of this approach may be assessed.
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Executive Summary
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3.3 Component A-3 :
Restructuring and capacity building of WRD
The Government resolution for Restructuring of Water Resources
Department including METAand MERI was issued by the State
Government in October 2010 and the restructuring has beencompleted
as envisaged under the component. With regard to capacity building,
the Departmentfunctionaries underwent training at NCCBM, Faridabad
related to construction material in use ondams and canal
structures. Three courses on construction materials have been
organized for 90engineers during the inception of the project.
META, Nashik of GoM is the principle institutionimparting training
programs periodically to direct recruits of Maharashtra Service of
Engineersand to in-service Engineers in the Water Resources
Department and the Public WorksDepartment since July 1964. The
Regional centers at Aurangabad, Nagpur and Pune startedfunctioning
since 1983. During 2007-08 to 2013-14, META has organized 1389
courses for 52,559trainees both for WRD and PWD. The trainee
engineers from WRD constitute more than 80percent of the total.
MERI at Nashik is principally a research institution, occasionally
engaged inconducting training on GIS and use of remote sensing
technique (June July 2011).
3.4 Component A-4 :
Strengthening and capacity building of WALMI
WALMI was established in the year 1980 as autonomous registered
society under the WaterResources Department. A dedicated cell
within WALMI for imparting training to the farmers fromWUAs has
been created under this component of MWSIP. The intervention has
helped in thecapacity building of the stakeholders on the project
objectives and issues related to theimplementation through the
dedicated Cell. WALMI has organized 315 training programs for23,489
WRD functionaries and WUA trainee participants during April 2005 to
March 2014.WALMI has five faculties to cater to the training
programs on different subjects.
3.5 Component A-5 :
Integrated Computerised Information System (ICIS)
This sub-component envisaged introduction of information
technology in the Water ResourcesDepartment with networking of
computers and development of suitable ManagementInformation System
(MIS) Model coupled with training to the end users. Procurement of
requiredGoods and Services has been completed. Server set-up at
State Data Center was completed inMarch 2013. Training for the
hardware, Linux operating system and Open Office has beencompleted.
Regarding networking, agreements have been signed with BSNL / MTNL
andimplementation has started. VPN has been successfully activated
at 178 Locations. Applicationtraining for 660 users and for 649
master trainers has been completed in the trainings conductedat
META, Nashik. User ids have been issued to all the 3000 users. The
ICIS is now considered asan e-Governance initiative by the WRD and
has been recently christened as eJalseva. Forsuccessful
implementation of eJalseva a dedicated Project Management Office
has beenestablished at Pune.
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Executive Summary
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Component B: Improving Irrigation Water Service Delivery and
Management
3.6 Component B-1 :
Participatory rehabilitation and modernization
The Canal Rehabilitation works have been completed fully in 216
schemes and partially in 14schemes covering CCA of 6,08,007 ha
(94%) against total CCA of 6,45,604 ha as on March, 2014.In the
remaining out of 235 i.e. five schemes have been dropped due to
certain limitations.Contract Management Committees (CMCs) were a
highly effective method for contractmanagement and supervising the
physical works provided that they were supplied with thecontract
documents and aware of the schedule for the works. CMCs also
engender ownership bybeneficiaries and should continue to be
used.
3.7 Component B-2 :
Dam safety works
The objective of the dam safety component was to undertake and
implement remedial worksrelated to the safety of dams and
appurtenant structures to ensure that all distress-relatedfeatures
are appropriately tackled for sustainability of the delivery
system. This intervention wasaddressed in 281 dams of 278 schemes
and the progress made as on March 2014 was that theworks of 266
dams in 263 schemes were physically completed. These works are
essential toassure the supply of water and at the same time avoid
catastrophic flooding by averting damfailure. Some farmers
understood and appreciated that dam safety works would assure
thesupply of water. In remaining 15 dams of 15 schemes, the works
are either terminated orcontracts were not awarded and currently
not under implementation.
3.8 Component B-3 :
Formation and capacity building of WUAs
The envisaged target for promoting WUOs at different levels in
the command area of theselected 235 MWSIP schemes was 1708 WUOs.
The project achieved formation of 1678 WUOscomprising of 1508 WUAs
(100%), 99 DLAs (82%), 30 CLAs (88%) and 41 PLAs (93%).
Theformation of remaining higher level WUOs are under way and are
expected to be completed verysoon. The existing 1508 WUAs are on an
average having about 15,080 MC members (10 perWUA) and around 3000
office bearers (one President and one Secretary/per MC). Under
MWSIP,820 office buildings for WUOs (49%) were constructed and
handed over. The training provided tothe WUAs comprises of Initial
and Refresher training. The Training of Trainers (TOT) programwas
organized by WALMI, for the selected officers of WRD and other
implementing partners inthe discipline of Irrigation, Agriculture,
Sociology and Accounts, who in turn imparted the abovetwo levels of
training program to Members/Directors of MC of all WUAs in their
jurisdiction. Inall, Initial training has been provided to 91.0
percent of WUAs. NGOs were initially appointed forcapacity building
of WUOs for a period of 2 years. Prescribed-entitlement has been
sanctioned to1341 WUAs (89%) by MWRRA. As on March 2014, the system
has been handed over to 1096
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MWSIP Final Evaluation Report, March, 2014
Executive Summary
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Mumbaixi
WUAs (72.68%) for operation and maintenance. The WRD is yet to
provide office building to 303WUAs as per the target envisaged and
the work at all the sites is under way for completion byMarch,
2014.
3.9 Component B-4 :
Improved Water Management Practices in Selected Projects
The program was undertaken in six schemes viz. two major (Ghod
& Kukadi), one medium(Mangi) and three minor schemes (Diwale,
Hiware and Benikre). The volumetric supply started inthe year 2007.
Measuring Devices have been installed and the State Report on water
auditing andbenchmarking published annually also includes these six
schemes. After successful completion ofthe Pilot phase, the Water
Entitlement Program has been expanded to other schemes.
3.10 Component B-5 :
Strengthening Agricultural Support Services
The Agricultural Support Services (ASS) programme was
implemented by the Department ofAgriculture in 66 irrigation
projects of which 9 are Major Irrigation Schemes, 13
MediumIrrigation Schemes and 44 Minor Irrigation Schemes in the
State. The Component was successfulin fulfilling the targets
envisaged under its activities that include : the establishment of
VillageSupport Groups (VSGs) & Krishi Vigyan Mandals (KVMs),
Providing training to Master Trainers &Extension Service
Providers, Organizing farmers Training & Exposure Visits,
CropDemonstrations, Strengthening of Agro-polyclinics &
District Training Centers, Strengthening ofSAMETI & RAMETI,
Mainstreaming of ATMA model for Agricultural Support Services and
finallyAgro-entrepreneurship Development through implementation of
innovative projects. The ASSintervention was effective proved with
improved productivities and overall production.
3.11 Component B-6 :
Environment and Social Management Plan
The Govt. of Maharashtra had undertaken an Integrated
Socio-Environmental Assessment (ISEA)Study which identified water
sector related social &environmental issues which may result
fromthe proposed rehabilitation and modernization of canals and dam
safety works andrecommended suitable Socio-Environmental Management
Framework (SEMF) along with samplemitigation plans. The assessment
of Social & Environmental issues for all 235 schemes has
beencompleted. No R & R plans were required for any of the
schemes. All concerns raised in the studyhave been addressed
through respective Components and sub-components of MWSIP. In
orderto address the gender issues and increase womens participation
in the WUA activities,WALMI has organized 36 courses for women WUA
members. Under the Agriculture supportservices component Training
and Demonstration programs on IPM/INM were organized.Compensatory
tree plantation is required in 29 schemes. Plantation has been
carried out in 6schemes (Ghod, Kukadi, Pench and Itiadoh Major
schemes, Kanholi Medium & Zilpa Minor). Inorder to address the
environmental issues, particularly with respect to water logged and
salinesoils, 234 drainage schemes have been completed in the six
selected major schemes. Draft
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Guideline document for field engineers for Social &
Environmental Mainstreaming have beenfinalized. Training workshops
have been organized for field engineers for providing orientation
onSEMF and SMP.
Component C: Innovative Pilots
3.12 Component C-1 :
Groundwater Management Pilot
The project has supported aquifer level user centered
groundwater management in three pilotaquifer areas in Khatav
Panchayat Samiti in Satara district, Bhokardan and Badnapur
PanchayatSamiti in Jalna district and Ashti Panchayat Samiti in
Beed district, representing different hydrogeological conditions in
the state. Supply side management interventions accomplished 116
Civilstructures as groundwater recharge systems in all 3 pilots.
Demand side management throughlow water consumption crops has been
adopted and is on increase gradually.
The success of this Pilot project has given confidence and
acceptability in the minds of allstakeholders and also creating
political will for introducing legal control to arrest depletion
ofgroundwater levels and eventually the Groundwater (Development
& Management) Act, 2009has been enacted and enforced through
its publication in the Gazette of Maharashtra on 3rd
December 2013. Based on the success of the MWSIP pilots, GSDA
reports that some community-level groundwater projects are being
taken up on the new Maharashtra Rural Water Supply andSanitation
Jalswarajya Phase 2 Project.
3.13 Component C-2 :
Piloting commercialization of irrigation service management
The purpose of this intervention was to convert present day
agriculture into a commerciallyprofitable business through
integration of small holdings into commercial agricultural
Companyextending benefits of large scale farming, professional
skills and investment by a competentprivate agency. Due to very
less response received from the private agencies when tenders
wereinvited this sub-component was dropped subsequently. Further it
was noted that large scaleadoption of innovative and improved
agriculture production, diversification, micro irrigation,
postharvest management & marketing practices and
operationalization of over 200 AEDPs under theAgricultural Support
Services Component (B-5) has given a big boost to commercial high
techirrigated agriculture in several schemes and has unleashed
creativity and innovations by thefarmers. In view of these
developments and to avoid repetition, it has been decided to drop
thepilot on innovative agriculture at all the four locations as
originally planned under this Subcomponent.
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Component D : Project Management
3.14 Component D-1 :
Project Preparation and Management Unit
The PPMU had been successful in coordinating with all the
Stakeholders and accomplishing theenvisaged Project Development
Objectives of Strengthening the Institutions in the Water Sectorfor
undertaking long term assignments to bring out reforms in line with
the State Water Policyand also the rehabilitation of the 235
irrigation schemes for increasing irrigated agricultureleading to
better agriculture productivity, and in-house monitoring. It also
monitored the work ofpublicity of State Water Policy with a view to
create mass awareness among farmers forparticipation in irrigation
management and for integrated water resources management.
Theexperiences gained could be much helpful in designing similar
projects in the water sectorreducing the time frame in Project
Preparation and Planning since systems are already in place.
3.15 Component D-2 :
Monitoring and evaluation
As external M & E Agency viz. M/s Sheladia Associates, Inc.,
USA in association with M/sAgricultural Finance Corporation, Ltd.
Mumbai which was appointed to address the monitoringand evaluation
component of the assignment, has successfully prepared 14
half-yearlyMonitoring Round Reports, Three Mid-term Evaluation
Reports and One Final Evaluation Report.These Reports helped
PPMU/WRD to monitor the progress, evaluate the works/performance
ofthe irrigation systems and ensure the output and outcome results
as envisaged in the ResultsFramework of the Project Appraisal
Document. WRD may consider establishing an internal M&EUnit for
generating a knowledge base that can inform future programming. WRD
should considerdeveloping a web-based MIS system for collection of
routine progress monitoring information,leaving more time for an
M&E unit or agency to focus on field visits and evaluation
3.16 Component D-3 :
Information, education and communication
This sub-component facilitated in educating the farmers on
issues relating to water sector in theState and creating mass
awareness on the necessity of farmers participation in operation
andmaintenance of the systems. Several initiatives have been
undertaken by the Water ResourcesDepartment to disseminate and
publicize the State Water Policy, the concept of
farmers'participation in irrigation management and integrated water
resources management throughorganizing Workshops & Seminars,
printing of IEC material and Media coverage.
IV. Impact under System Performance Indicators
The table below illustrates the impact levels under the System
Performance Indicators, whichwere defined during project
preparation, and compares these with the targets envisaged for
eachindicator. The figures relating to pre-project value pertains
to the 24 Schemes selected beforeinitiating the project for
establishing base-line. The post project value indicates the
currentsituation in those 24 schemes (i.e. irrigation year 2012-13)
as well as among the schemes selected
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for Final Evaluation and for the total project area which helps
in knowing to what extent theproject was able to achieve the
proposed targets under each indicator.
Results under System Performance Indicators during Final
Evaluation (IY 2004-05 versus IY 2012-13)
SlNo
Indicator
Pre ProjectValue
Target Post Project Value
Baselinevalues
% ValueBaseline
(24Schemes)
All 235MWSIP
Schemes
FinalEvaluation
(39Schemes)
1% Live Storage againstDesigned
69.00 - - 85.90 83.43 91.10
2 % ICA against CCA - - - 88.46 80.27 85.66
3Area Irrigated throughCanal, ha (All Schemes)
300,504 100,000 400,504 115,984 350,081 238,277
4 WDE at Scheme Level 31.19 100% 62.38 60.94 60.96 56.53
5WUE at Scheme Level,ha/Mm3
96.00 30% 125 133 147 137
6WUE at Distributory Level,ha/Mm3
146 30% 190 178 265 230
7WUE at WUE(m) Level,ha/Mm4
183 30% 238 209 270 265
8 Cost Recovery Ratio(CRR) 1.00 0.00 1.00 3.09 1.89 1.88
9Revenue CollectionPerformance from CanalIrrigation, %
45.00 20% 54.00 54.00 61.72 57.10
10Overall Revenue CollectionPerformance
(Irrigation+non-Irrigation), %
52.28 20% 62.74 80.00 79.49 71.31
11Revenue Collection per unitof water, Rs/TCM
25.34 20% 30.41 18.42 33.41 23.07
12Annual Agricultural Income,Rs/ha
29,245 30% 38,019 54,180 61,462 64,220
13Annual Agricultural Incomeper unit of Water, Rs/TCM
3,532 30% 4,592 8,049 9,035 8,798
V. Socio economic Impact
5.1 Study of Farmers: The Final Evaluation included a study of
farmers for assessing the projectimpact on the target group in
terms of agricultural productivity, quality of life and income
levels.The sample comprised of 3315 farmers in the Project area and
540 farmers from the Controlgroup. The sample was spread over in 39
MWSIP Schemes and 9 Non-MWSIP schemesrepresenting all the
agro-climatic zones of the State.
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5.2 Land holding Category : The Marginal and Small farmers
comprised 78.0 per cent of theproject sample while percentage
composition of Medium and Large farmers were 17.0 and 5.0per cent
respectively.
5.3 Poverty line : Compared to the Baseline, 7 percent more
families of the target populationare above the poverty line
following the project interventions. (Base-line: APL-74% : FE :
APL-81%).
5.4 Employment : The total number of household members in the
project sample comprised of0.16 lakh persons. The project
interventions have resulted in creating additional
person-daysemployment for the targeted families which is evident
from the decrease in percentage ofhousehold members engaged in
domestic work by 9.5% (BLS: 18.7 %; FE: 9.2 %). The percentageof
unemployed members in the sample households also decreased from
1.30 % to 0.20 %.
5.5 Household Assets: With regard to possession of household
assets by the sampledhouseholds, a major impact was observed in the
extent of households owning Mobile phones,Color TVs , DVD players,
Refrigerators, Stoves and Tables revealing considerable improvement
inthe quality of life due to increase in income levels (see item
5.8 below on Annual HouseholdIncome). Availability of Drip
Irrigation systems was observed in 22.0 per cent households in
theproject sample. Likewise those owning Electric Pumps and Mixer
Grinder accounted 30.0% and42.0% pf the total project households
respectively.
5.6 Quality of Dwelling : All the families were found owning
their own dwelling except for anegligible number. With regard to
quality of construction, the percentage of households usinggrass as
roof material decreased from 7.0% to 4.0%. Likewise, those
households possessingflooring made of Mud/Gobar paste reduced in
percentage from 61.0% to 23.0%. The percentageof houses has
electrification increased from 73.0% during pre-project situation
to 86.0% duringthe end evaluation.
5.7 Sources of Income : The figures relating to sources of
income of the project householdsrevealed that all the households
were deriving income from farm activities. Further income
fromon-farm and non-farm labour was observed in 62.0%
households.
5.8 Annual Household Income : The average net annual household
income among the projecthouseholds worked out to Rs.0.64 lakh per
household which indicates 41.0% increase over pre-project
situation. The corresponding figures pertaining to Non-MWSIP sample
indicated negativetrend. The income figures were arrived at, after
applying discounting factor.
5.9 Farm Income : The annual net farm income per household after
discounting works out toRs.0.41 lakh revealing 158% increase over
the pre-project situation. The percentage proportion ofFarm income
in the total household income has increased from 35.0 to 65.0 per
cent.
5.10 Average land holding : The average land holding of the
farmers was 1.70 ha. in the projectsample.
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5.11 Cropping pattern : The cropping pattern adopted by the
farmers after intervention ofMWSIP reveal increase in area under
cultivation of perennial crops i.e. from 11.0 per cent to 28.0per
cent of the total area cultivated.
5.12 Crop diversification : In comparison to pre-project
situation, the households during post-project period have started
introducing several new crops such as Horse gram, Kidney bean,
Cowpea, Custard apple, Sweet orange, Pomgranate, Guava, Cashew nut,
Citronella, Turmeric, Gingerand several vegetable varieties due to
assured water availability (refer Success Stories).
5.13 Crop Yield : The crop yield rate among the major crops
grown had considerably increaseddue to timely availability and
minimal water losses in transit. The yield under wheat
increasedfrom 13.9 quintal per ha. to 17.9 quintal per ha.. The
yield under Maize increased from 22.0quintal to 26.0 quintal per
ha. More or less cent per cent increase in yield was noticed in
case ofpulses. The per ha. yield under Sugarcane increased from 75
tons to 91 tons after the projectinterventions.
5.14 Cropping intensity : The overall cropping intensity in the
MWSIP area increased from 120per cent (pre-project) to 130 per cent
(post-project) against a decrease from 125 per cent to 122per cent
in the Control area.
5.15 Irrigation Intensity : The overall irrigation intensity in
the project area was 121 per centwhich includes irrigation through
Canal and Ground water alone.
VI. Project Highlights
The project has resulted in increase of irrigation potential in
the command area.
Assurance of water availability facilitates advance planning by
the farmers.
The project outreach in terms of number of farming households
benefitted under theprogram is 6.21 lakh farming families as
evident from the following statement.
CategoryNo. of
schemesNo. ofWUAs
CCA, haMembers Total
MembersAve. Landholding
Size, haMen Women
Major 12 1,083 4,73,772 3,62,348 88,594 4,50,942 1.05
Medium 11 150 54,685 48,442 12,431 60,873 0.90
Minor 212 276 1,17,147 90,272 19,219 1,09,491 1.07
Total 235 1,509 6,45,604 5,01,062 1,20,244 6,21,306 1.04
VII. Indirect Benefits
(i) Job Creation : The project has generated 24.76 million
person days of employment inthe project area in construction
activities.
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(ii) Outreach of ASS component : The benefits of Agricultural
Support Services componentextended outside the MWSIP command area
since villages were considered as unit forprogram planning by the
Agriculture Department.
(iii) WUA Capacity Building : WUA capacity building boosts
skills and confidence of themembers which provides benefits in
daily lives outside of WUA work.
(iv) WUA formation : The net-work of WUAs created in the State
by the Water ResourcesDepartment could be utilized by the
Department as a platform for launching anypromotional program or
for propagating any message from time to time. Infrastructure
/institutional set-up in Maharashtra and more general benefits to
water sector in thestate.
(v) Water entitlement concept-upscaling : MWRRA has also started
issuing andadministering water entitlements in a number of other
water/irrigation schemes tovarious bulk water users entities which
are outside the project area (26 WUAs of 24 nonMWSIP schemes).
(vi) Other states adopting WRM legislation : As a consequence to
the establishment ofMWRRA in Maharashtra through enactment of MWRRA
Act, two other states (AP andRajasthan) have enacted similar
legislation to establish a regulatory Authority /commission in
their state in the water sector.
(vii) Spread of Water Sector Institutions to other states : The
Planning Commission, GOI,has advised all the States in the country
to establish water sector regulator in their stateson the pattern
of Maharashtra by enacting similar legislation. The States of
ArunachalPradesh, Gujarat, Jammu & Kashmir, Kerala and Uttar
Pradesh have followedMaharashtra in moving toward establishment of
independent Water RegulatoryAgencies.
VIII. Key Recommendations
1. With respect to MWRRA going forward, after preparation of
River Basin Plans by therespective RBAs, the Water Resources
Department will initiate the process of preparing StateWater Plans
to submit to the State Water Board for onward submission to the
State WaterCouncil. Therefore, IDCs working as RBAs need consider
the preparation of integrated riverbasin plans as a priority
action.
2. WALMI training activities should continue to receive support
as they are of immense use tothe farmers as well as to the
Departmental personnel. This needs to be a continuous
on-goingactivity with an enhanced focus on Participatory Irrigation
Management.
3. On the ICIS, any remaining task need to be expedited to
enable the MIS model developed aspart of the project interventions
to further improve efficiency of the Department. To sustainthe
activities of the unit, it is critical to ensure that all
sanctioned positions are filled-in,avoiding any vacancies.
Modernization would be required after sometime to keep phase
withthe latest developments in the IT field. Periodic additional
training and orientation of the
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functionaries would be also required for being aware of these
new technologicaldevelopments.
4. With respect to canal rehabilitation works, the installation
of measuring structures at everyoff-take of the canal network is
yet to be put in place in all the schemes. Like-wise proposalfor
using CTF in fiber glass reinforced plastic (FRP) measuring devices
in the entiredistribution system (minor) to enable quick on-site
monitoring of the quantum of water hasbeen ensured about 70% of the
WUAs schemes. Similarly quite a few reservoirs alone havebeen
provided with automatic water stage recorders. Self-regulated
outlets (fixed dischargeof one cu sec) have been provided only in
Mangi Medium Irrigation project. Standing waveflumes provided in
most of the schemes on main canals and distribution system
needsrecalibration.
5. During project implementation, WRDs focus concerning farmers
organizations was primarilygeared towards rehabilitation of the WUA
minor level system, the formation of WALMI, DLA,CLA and PLA, and
training and capacity building of WUA (m). Major achievements were
alsomade on providing water entitlement and volumetric supply of
water to WUAs as well ashanding over of the system. Going forward,
attention need to be focused further on thefollowing
activities:
a. Training and capacity building for upper level WUOs viz.,
DLAs, CLAs & PLAs topromote pro-active involvement of the
management committee members.
b. Greater take up of providing water entitlement to WUA
members.
c. WUAs need to take up preparation of irrigation program
independently at their level.
d. WUAs need to do advance planning for efficient maintenance
management ofirrigation system as well as strengthening of field
channels
6. Based on the experience gained the successful implementation
of the pilot phase of thewater entitlement program, the exercise
needs to be expanded in the State to cover all theschemes in a
phased manner as per MWRRA Act.
7. With respect to activities of the Agricultural Support
Services component:
a. Given that Water Users Associations are important
stakeholders of VSG, the groupswill need continuous handholding
from the Department on similar lines to KVM inorder to enhance
their functional utility.
b. The farmers especially those who have additional sources of
irrigation like bore wellneed to be oriented on crop water
budgeting and consumptive use of water forconservative use of canal
water.
c. Farm mechanization need to be promoted in the command area,
as it was found thatproduction has improved significantly. To begin
with, especially harvesting and postharvest threshing may be given
priority due to the prevailing labor demand in thecommand
areas.
d. Convergence with other departmental program like IWMP, State
Rural LivelihoodMission, etc. need to be encouraged for promoting
livelihood activities.
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8. The Groundwater Pilot could be now replicated both within the
State and elsewhere in thecountry. The experiments made in these
pilot projects have produced encouragingcommunity based aquifer
level groundwater management model. The success message ofthis
venture needs to be propagated across the state, the country and
abroad to attract theattention of the Planners, Policy makers and
those using groundwater in the interest ofsustainable management of
this valuable resource.
9. The sixth chapter dealing with Capacity Building, Training
and Awards provides informationabout Institutions wherein the
Department officials and other Policy makers could bedeputed for
training both within the country and as well as abroad.
10. It is also suggested that the present practice of providing
Awards to WUAs at State andRegional level could also be extended to
District-level by Scheme category in order to createmore
competition among the WUAs.
*******
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Chapter 1
BACKGROUND
1.1 International context for Integrated Water Resource
Management
Inter-sector competition over water resources is a common
concern for all countries across theworld. Demand for water has
increased dramatically as populations and economies worldwidehave
grown, leading to increased wealth and increased demand for food
and energy.Competition between users has increased resulting in
difficult allocation decisions. Findings froma 2012 UN-Water Task
Force analysis of data from over 130 countries show that
water-relatedrisks and the competition for water resources are
perceived by a majority of countries to haveincreased over the past
20 years. The rapidly accelerating pressures on freshwater
systemsarising from increasing demands, as well as emerging impacts
from climate change, areexacerbated by local management, which is
not equipped to adapt and respond adequately. As aresult the
resilience of water resources and ecosystems is threatened, as is
the well-being ofcommunities and the economic growth of countries
and industries that are dependent on theirrelated services.
Among the major international water management events of the
past few decades the 1992United Nations Conference on Environment
and Development (UNCED) held at Rio de Janeirostands out as an
event of outstanding importance. UNCED covered a very broad range
ofdevelopment issues and from a water resources perspective was
informed by the InternationalConference on Water and the
Environment with its highly influential Dublin Principles.
UNCEDproduced Agenda 21 which in Section 2 of Chapter 18 on
Freshwater Resources emphasizedThe holistic management of
freshwater and the integration of sectoral water plans andprograms
within the framework of national economic and social policy, are of
paramountimportance for action. Chapter 18 called for the
application of an integrated approach to thedevelopment, management
and use of water resources. This integrated approach,
oftenshortened to IWRM, is now being adopted universally.
Another major international conference on development was the UN
Millennium Assembly in2000, which resulted in agreement on a set of
Millennium Development Goals (MDGs). Waterresources management
underpins all 8 of the MDGs and is directly linked to the
realization ofGoal 7 on ensuring environmental sustainability. The
MDGs have had a major strategic influenceon development policy in
the last decade. Ten years after the UNCED a major impetus
toimproving water management through the adoption of the Integrated
Water ResourcesManagement (IWRM) approach was provided by
Governments at the 2002 World Summit onSustainable Development
(WSSD), held in Johannesburg, South Africa. One hundred and
ninetythree countries agreed to the Johannesburg Plan of
Implementation (JPOI), in which Article 25calls for the development
and implementation of IWRM and water efficiency strategies,
Plansand Programs at National and at Regional levels, with
national-level IWRM plans to be developedby 2005.
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IWRM rests on the following principles as an overall
framework:
Social equity: ensuring equal access for all users (particularly
marginalised andpoorer user groups) to an adequate quantity and
quality of water, necessary tosustain human well being.
Economic efficiency: bringing the greatest benefit to the
greatest number of userspossible with the available financial and
water resources.
Ecological sustainability: requiring that aquatic ecosystems are
acknowledged asusers and that adequate allocation is made to
sustain their natural functioning.
Since 1992, 80% of countries have made progress with water
sector reform to adopt principles ofintegrated management of water
resources and are working through the process from policy tolaws,
strategies and plans.
Some countries face challenges to get agreement on new policies
or laws that reflect integratedapproaches to water management (Sri
Lanka, Pakistan, Namibia, Guatemala, Costa Rica,Cameroon, Antigua
and Barbuda) or have adopted new water laws that remain fettered
byvested interests (Mexico). Yet others, even with complex federal/
state structures have managedto agree and implement sweeping
reforms (Brazil, Australia). Countries that have made progresswith
their water policies and laws may still struggle with full
operationalization and particularlywith the issue of integrating
water resource management across water using agencies
andstakeholders (Jamaica, Bangladesh, Armenia, Tunisia). Whether
getting the enabling environmentright or rolling out national
systems to manage water resources on the ground, it is common
forthere to be problems slowing down or even stalling progress.
Whether due to inadequateconsultation, political priorities,
resistance to change or fear of losing benefits these are
naturalobstacles that have to be overcome. Some countries are
already demonstrating that better watermanagement can be achieved
while others may need more support and shared lessons to
moveforward at a faster pace. There is no quick fix for sustainable
water management and so theNational and International leaders have
to demonstrate their commitment for the long haul.
1.2 International Context of Participatory Irrigation
Management/Irrigation ManagementTransfer
Parallel to the concern about water resources management, two
other major movements havebeen emerging across the globe and
shaping policy: (i) liberalism; and (ii) a call for a
moreparticipatory development approach. The participatory movement
has advocated that the size ofgovernment should be reduced and that
people should participate more in governance,management and
financing resource development in order to promote sustainable and
equitabledevelopment. Participation promotes the subsidiarity
principle of making decisions at the lowestlevel possible, thereby
increasing stakeholder participation. In combination,
liberalization andparticipation have led to the concept of
self-reliance coming to the forefront of the developmentstrategy.
Moreover, in order to comply with the structural adjustments
required by theinternational financing institutions in the last few
decades, governments have devised ways todecrease public spending
in most sectors. This disengagement has not spared agriculture
(inparticular, the irrigation sector).
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Within the above context, governments across the world have
responded and embarked on aprocess of irrigation reform meant to
tackle the increasing demands on irrigated agriculture andto
enhance its performance while coping with both liberalization and
participatory strategies.Among reforms in irrigated agriculture,
irrigation management transfer (IMT) has appeared asthe most
important and far-reaching reform thus far.
The emergence of IMT as a process for subsector reform can be
traced back to the early 1970s,when a general disappointment with
the performance of irrigation systems (following hugeinvestments by
governments and international agencies in the 1950s and 1960s)
began to takehold. More often than not, irrigation agencies
established with the purpose of supplying water tothose systems
under a rigid, top-down approach failed in their objectives.
Farmers who weremeant to pay for these services in order to keep
the operation sustainable began to falter in theirobligations and
to demand better services tailored to their needs. A vicious cycle
of non-paymentand infrastructure deterioration ensued. By the
1980s, the world economic downturn had forcedgovernments to revise
their policies of trying to keep the irrigation systems running
from theirmeager budgets after lack of payments of water charges by
farmers had only increased. The needfor reform was ripe. Thus,
typical objectives of IMT programs became:
Eliminate or reduce recurring government expenditures for
operation andmanagement of irrigation systems.
Establish financially self-reliant water service providers to
replace the public agencyin the management of systems.
Reverse the increasing rate of deterioration of
infrastructure.
Provide transparency in management and accountability of the
service provider towater users.
As an end-result, the main objective of IMT was to achieve
improvements in theperformance of the irrigated agriculture sector,
including both productivity andfinancial and physical
sustainability.
The concept of IMT normally refers to the process that seeks the
relocation of responsibility andauthority from the controlling
government agencies managing irrigation systems (under thepublic
sector) into the hands of non-governmental organizations (NGOs),
such as WUAs, or otherprivate-sector entities. Usually, these are
established as recipients of the transfer or handover
ofmanagement.
In dealing with IMT issues, a second, interrelated concept,
referred to as participatory irrigationmanagement (PIM), is often
encountered. Normally, this refers to the increased involvement
ofwater users in irrigation management, along with the government;
thus, it consists more of abehavioral or attitudinal change than a
reform process per se. Thus, while the IMT conceptintends to
replace the role of the government, PIM seeks to strengthen the
relationship betweenwater users and government by adding farmer
participation to government management. Theconcepts intersect at
the co-management stage of IMT, where, before a final transfer
takesplace, the government agency and the recipient organization
agree to share responsibilities. Thepoint here is that, while
having intersecting elements, the two concepts are not exactly the
sameand, therefore, they should not be interchangeable. However,
owing to a number of factors,
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mostly related to the acceptance of terms, PIM is widely used in
many circumstances andcontexts that really correspond to the
concept of IMT.
Irrigation management transfer is taking place in five
continents. This type of reform began to beimplemented as far back
as the 1960s in Taiwan Province of China, Bangladesh and United
Statesof America; in the 1970s, in Mali, New Zealand and Colombia;
and in the 1980s, in the Philippines,Mexico, Tunisia and the
Dominican Republic. The bulk of the irrigation reform peaked in
the1990s, when countries such as Morocco (1990), Australia (1994),
Turkey (1994), Peru (1995),Albania (1996) and Zimbabwe (1997)
initiated the process. The new century already showsexamples of
interventions taking place in the Sudan and Pakistan (2000), India
(2001) and China(2002), each of which has experienced a unique
process and result. Today, more than 57countries have embarked on
some type of irrigation sector reform that has IMT. This
correspondsto 40 percent of countries reporting more than 10 000 ha
under irrigation. These represent 72percent of the world population
as they include among others China, India, the United States
ofAmerica, Indonesia, Pakistan and Bangladesh, and represent 76
percent of the irrigated area ofthe world (FAO, 2007). To make
these reforms work, its often necessary to accompany
theirimplementation with infrastructure rehabilitation work to
provide an incentive for stakeholdersto fully buy-in to the changes
and be willing to take on O&M responsibility.
1.3 Challenges facing the Maharashtra State water sector at the
onset of MWSIP
During identification and preparation of the MWSIP in 2004-2005,
the water sector inMaharashtra was facing an array of critical
challenges. The first among them was an increase incompetition
among different sectors, giving rise to disputes and conflicts over
water use withrapid urbanization and industrialization in urban
centers, more demand is being placed on watersupply for domestic
and industrial use, as well as thermal and hydro power. Over the
long-term,ensuring efficient and equitable intra and inter-sectoral
management of the States scarce waterresources would become an
increasingly critical issue. Given the limited institutional
capacity tocarry out integrated water resources planning,
allocation and management at State & River Basinlevels and
inter-sectoral co-ordination, the competing demands placed on
Maharashtras waterresources required to be dealt with more
effectively.
Poor quality irrigation service delivery undermining the
performance of irrigated agricultureposed a second challenge for
the water sector in the state. In many command areas, theefficiency
of water use was very poor, often due to deteriorated conditions of
the canal anddistribution system which had not received adequate
maintenance. Farmers have tended to usefar more water than needed
for the crops, which does not lead to greater yield but rather
causeswater logging and salinity problems. In many instances, this
is partly due to ignorance on the partof the farmers of optimum
water uses and a reluctance to adopt modern irrigation
techniquessuch as pressure irrigation and volumetric
measurement.
Another common and widespread challenge was the considerable
inequity in the distribution ofwater. The head reach areas usually
consume a major share of the water, while the tail reachesoften do
not receive adequate irrigation even though both pay the same
irrigation charges. Acombination of political, caste and class
pressures often lead to dominant groups or communities
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consuming more than their share of precious water resources. In
other instances, poor designand implementation of projects have
also led to inequitable distribution.
Financially unsustainable water services resulting from high
costs, low cost recovery and theconsequent low levels of
expenditure on O&M, has led to the rapid decline of the
physicalcondition of irrigation and drainage infrastructure. The
method of charging an Irrigation Cess onthe basis of crop and
cropped area has also contributed to inefficient use of water. A
peculiarityof the present system of collection of water charges and
the rate structure is that it does notincentivize farmers to save
water if a farmer saves water, he does not pay less, while if he
usesthe saved water to irrigate larger areas, he actually pays
more, as irrigation charges are areabased. The farmer will also pay
more if he switches to a more water intensive crop regardless
offarmers water use efficiency.
Likewise, limited cost recovery in the irrigation sector has
also contributed to inefficient on-farmuse of irrigation water and
added to the fiscal burden of the state. More importantly, the
largestate-guaranteed market borrowings by the Irrigation
Development Corporations (IDCs) tofinance construction of storage
infrastructure, which without distribution systems completedwere
not generating any return and had been exacerbating a fiscal crisis
in the state.
Lastly, planning and management of water resources in the state
was seen as fragmented andun-coordinated and was not being done
holistically, treating surface and groundwater as oneresource.
1.4 Laying down the groundwork activities in Maharashtra to spur
IWRM and IMT/PIM
Recognizing the urgent need to begin addressing the challenges
discussed above, theGovernment of Maharashtra (GoM) took a number
of actions in the years leading up to theimplementation of MWSIP.
To establish a more appropriate policy and institutional
frameworkfor multi-sectoral and environmentally sustainable water
resources planning, allocation andmanagement, and to separate over
all water resources planning and allocation functions fromthe
service delivery functions, the GoM carried out the following
actions:
i. GoM adopted the Maharashtra State Water Policy 2003. The
objective of theMaharashtra State Water Policy is to ensure a
sustainable development and optimal useand management of the State
water resources to provide the greatest economic andsocial benefit
for the people in the State of Maharashtra in such a manner that
maintainsimportant ecological values within the rivers and
adjoining lands. The policy hasinnovative features such as water
audit, benchmarking of water resource projects, waterentitlements,
etc. The policy also directs to make 15% reservations for drinking
waterpurposes and 10% reservations for industrial water use
purposes in the forthcomingprojects.
ii. GoM passed the Maharashtra Water Resources Regulatory
Authority Act (MWRRA Act)2005. The MWRRA aimed to carry out the
following functions: to regulate the water tariffsystems and water
charges for the use of these resources; to ensure that water
resourcesdevelopment and management within the State is carried out
as per the Integrated StateWater Plan prepared by the State Water
Board and approved by State Water Council; to
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review and ensure administration of water use entitlements: at
the river basin / sub-basin, water using sectors (such as drinking
water, industries, irrigation etc.), and atutility/project level
between water using sectors, and also between various water
userentities within each sector within the State; to assist and
facilitate the development of aframework for the preservation and
protection of the quality of surface and sub-surfacewater within
the state, to decide the criteria for trading of water so as to
maximize theefficiency of water use. As a sequel of these policy
initiatives, a comprehensive sectorimprovement project was
envisaged; and prioritization of water utilization for
drinking,industries, farming and other users.
iii. GoM decided to restructure the existing IDCs into River
Basin Agencies (RBAs). TheMWRRA Act provided the authority to
regulate and administer river basin wise planningand management of
States water resources in an integrated manner and to delegate
theadministration of water use entitlements through River Basin
Agencies. To carry out theexpanded responsibilities to be assigned
by the authority, the existing IDCs had to berestructured in to
RBAs.
In line with global efforts in water resource management and
irrigated agriculture, theGovernment of India in 2002 revised its
National Water Policy to stress water use efficiency,community
participation and Participatory Irrigation Management. The Policy
outline for farmerswas
Assured delivery of water; The right to fix and collect water
rates; Freedom of cropping pattern within the allocated water;
Participation in all decision making; Physical improvement in the
irrigation system; Efficient reliable and equitable distribution of
water; Quick resolution of conflicts; and Augmented farm
productivity.
The Policy also recommended that irrigation, as the largest
consumer of fresh water, should aimto get optimal productivity per
unit of water. Scientific water management farm practice
andsprinkler and drip systems of irrigation should be adopted
wherever feasible. On communityparticipation, the National Water
Policy 2002 recommends that the management of waterresources for
diverse uses should incorporate a participatory approach in various
aspects ofplanning, design, and development of the schemes.
At the state level, to promote more efficient, equitable and
sustainable irrigation service deliverythrough effective
involvement of Water Users Associations (WUAs) and to reduce the
canalirrigation subsidies, the GoM also passed the Maharashtra
Management of Irrigation Systems byFarmers (MMISF) Act 2005.
Earlier the management of irrigation system was carried under
theprovisions of irrigation Act, 1976. As per this Act the
operation and maintenance of irrigationsystems, collection of
irrigation revenues and equitable distribution of water was
theresponsibility of Water Resources Department. GoM has decided to
reverse this concept andprovide for transferring ownership and
control of irrigation systems to WUA for purpose of
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equitable distribution of water, maintenance of irrigation
systems and collection of irrigationrevenue. The Water Resources
Department shall act as a facilitator.
1.5 Project Preparation by the World Bank and Govt. of
Maharashtra
The project, in line with the GoMs and the Banks strategy, was
the first operation of a long term(12-18 years) engagement and
partnership with GoM on water sector reform within theframework of
the Maharashtra State Water Policy. This in recognition of the fact
that all thewater sector issues cannot be addressed together at one
time; in the short term and in a singleoperation. With the aim of
prioritizing and supporting the appropriate sequencing of water
sectorreform initiatives, the project was designed to be a six year
first phase, with a strategic focus oncreating and supporting the
enabling environment for the efficient, sustainable and
equitabledevelopment and management of water resources in the
state, beginning with establishing theappropriate policy,
regulatory, and institutional framework in the water sector. The
design of thesubsequent phases for possible Bank support will
depend on the actual progress made with thereform initiatives and
the lessons learned during the term of the current assignment.
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Chapter 2
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Chapter 2
INTRODUCTION TO MWSIP INTERVENTION
2.1 MWSIP
The Maharashtra Water Sector Improvement Project commenced from
the year 2005 with initialduration of six years up to March, 2012
which was subsequently extended up to March, 2014with the same
scope of coverage. The Base Cost of the project was Rs.16580.42
million (US $351.28 million) and the proposed revised cost was
Rs.18623.19 million.
2.2 Project Area
The Project covered 235 Schemes spread over the four River
Basins of the State with a delineatedCultivable Command Area of
6,45,604 hectares. The Basin-wise number of Schemes with totalCCA
is given in the following table.
Table 2.2River Basin-wise number of MWSIP Schemes and Area
Coverage
River BasinNo. of Schemes Delineated CCA , ha
Major Medium Minor Total Major Medium Minor Total % to total
Godavari 5 6 114 125 269,425 27,070 67,817 364,312 56.4
Krishna 5 3 42 50 174,656 8,796 27,714 211,166 32.7
Tapi 1 2 30 33 21,761 18,819 17,830 58,410 9.0
WestFlowing
1 - 26 27 7,930 - 3,786 11,716 1.8
Total 12 11 212 235 473,772 54,685 117,147 645,604 100.0
The Godavari basin covered 56.4% of CCA with 125 schemes (5
major, 6 medium and 114minors), Krishna basin covered 32.7% of CCA
with 50 schemes (5 major, 3 medium and 42minors), Tapi basin 9.0%
of CCA with 33 schemes (1 Major, 2 Medium and 30 Minor) and
WestFlowing 1.8% of CCA with 27 schemes (1 Major, 26 Minor).
The canal rehabilitation works were carried out in 235 schemes
(12 Major, 11 Medium and 212Minor schemes) and dam safety works on
281 dams of 278 schemes (8 Major, 12 Medium and258 Minor
schemes).
The administrative set-up for the implementation of MWSIP
comprised of 40 Divisions of 18Circles under 10 Chief Engineers in
the five Regions, namely Konkan (26 schemes), Marathwada(45
schemes), North Maharashtra (29 schemes), Vidarbha (91 schemes) and
WesternMaharashtra (44 schemes) of the State.
2.3 Project Development Objectives
The MWSIP has been prepared to achieve the objectives of State
Water Policy and to meet thechallenges being faced by the water
sector in the Maharashtra state. The project is presumed to
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be the first phase of a long-term engagement with World Bank on
water sector reform within theframe work of the state's Water
Policy. The twin objectives of the project are (i) to strengthen
theState's capacity for multi-sectoral planning, development, and
sustainable management of thewater resources; and (ii) to improve
Irrigation service deliveries on sustainable basis to
increaseproductivity of irrigated agriculture and contribute to
reduction of rural poverty.
2.4 Scope and Description of main activities
The MWSIP comprises of four components viz. (A) water sector
institutional restructuring andcapacity building; (B) improving
irrigation service delivery and management; (C) innovative
pilots;and (D) project management . The project components are
further divided into 16 sub-components which are briefly stated
below. While Component A addresses the first ProjectDevelopment
Objective Component B is directed towards accomplishment of Second
ProjectDevelopment Objective. Component C was meant for piloting
and demonstrating newapproaches & technologies, applied
research and training in the water sector. Component Dtakes care of
the Project Management and Awareness generation through
Information,Education and Communication.
Component A: Water Sector Institutional Restructuring and
Capacity Building
This component focuses on institutional reforms in the water
sector with the objective ofstrengthening the states capacity for
multi-sectoral planning, development and management ofthe water
resources on a river basin basis. The Sub-Components of Component A
supports: (i)the establishment and operationalization of MWRRA;
(ii) restructuring of the existing MKVDC intothe MKVWRC as a river
basin agency and its capacity building; (iii) restructuring and
capacitybuilding of the WRD; (iv) capacity building of Water and
Land Management Institute (WALMI);and (v) establishment of an
Integrated Computerized Information System (ICIS).
Component B: Improving Irrigation Service Delivery and
Management
This component contemplates on improving irrigation service
delivery and productivity inirrigated agriculture through improved
irrigation system performance, effective participation ofwater
users in irrigation system management, increased cost recovery,
implementation of waterentitlements, and improved agricultural
support services delivery. The Sub-Components include:(i)
participatory rehabilitation and modernization of 235 irrigation
schemes (12 major, 11mediumand 212 minor) covering about 6.45 lakh
ha. of cultural command area (CCA);(ii) enhancing thesafety of 281
dams in 278 schemes supplying water to the project area through
rehabilitation andmodernization; (iii) formation and capacity
building of around 1700 WUOs in 235 irrigationschemes; (iv)
implementation of improved water management practices and
instruments, such asbulk supply and volumetric charging of water to
WUAs as per their water entitlements in 6selected irrigation
schemes (2 major, 1 medium, and 3 minor) in the Krishna Basin
during theproject; (v) strengthening of agriculture support
services in the project area through theAgriculture Department; and
(vi) implementation of social and environmental management
plan,consistent with the Social and Environmental Management
Framework (SEMF), that will addressthe social and environmental
issues related to the project interventions, and strategies
devisedfor enhancing the positive social and environmental
impacts.
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Component C: Innovative Pilots
This component covers the implementation of innovative pilots
and supports: (i) three pilots ofuser-centered aquifer-level
groundwater management; and (ii) four pilots of innovative
irrigatedagriculture (subsequently dropped). The Aquifer Level User
Centered Groundwater Pilots wasimplemented in the districts of
Satara, Jalna and Beed,
Component D: Project Management
This component addresses the establishment of (i) a state-level
Project Preparation andManagement Unit (PPMU); (ii) inducting an
external agency for monitoring and evaluation of theproject and
(iii) creating awareness among the stakeholders about the
initiatives under taken bythe state in the Water Sector through an
information, education and communication campaign.
2.5 Financial Progress
The component-wise fund utilization against the project
base-cost as well as the revised cost ason March 2014 is depicted
in the following Table. It may be observed that the project has
beensuccessful in implementing the project interventions to the
extent of cent percent of the base-cost and 95.44 percent of the
revised cost.
Table 2.5 Project Component and Sub-Component wise financial
Progress(as on March 2014)
(Rs. In Million)
Sl.No.
Project Components /Sub-Components
Base costRevised
CostExpensesincurred
% of Exp. toBase cost
% of Exp. toRevised cost
AInstitutional Restructuring andCapacity Building
996.39 818.70 658.32 66.07 80.41
1
Establishment &operationalization ofMaharashtra Water
ResourcesRegulatory Authority
169.92 237.17 234.62 138.08 98.92
2Restructuring and CapacityBuilding of IrrigationDevelopment
Corporation
47.20 0.00 0.00 0.00 0.00
3Restructuring and CapacityBuilding of Water
ResourcesDepartment
236.94 66.89 64.82 27.36 96.91
4Strengthening and CapacityBuilding of WALMI
69.86 56.26 41.65 59.62 74.03
5Integrated ComputerizedInformation System.
472.47 458.38 317.23 67.14 69.21
BImproving Irrigation ServiceDelivery and Management
15167.73 17521.31 16,864.60 111.19 96.25
1Participatory Rehabilitation andModernization of
selectedschemes
12278.14 14312.68 13,637.14 111.07 95.28
2 Dam Safety Works 1102.12 1810.63 1,839.49 166.90 101.59
3Formation and CapacityBuilding of WUOs
456.90 536.19 540.12 118.21 100.73
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Sl.No.
Project Components /Sub-Components
Base costRevised
CostExpensesincurred
% of Exp. toBase cost
% of Exp. toRevised cost
4Improved Water Managementpractices in selected projects
49.56 0.00 0.00 0.00
5Strengthening AgriculturalSupport Services
1082.77 856.90 843.68 77.92 98.46
6Environmental and SocialManagement Plan
198.24 4.91 4.17 2.10 84.93
C Innovative Pilots 226.56 68.25 62.93 27.78 92.19
1Piloting Users-centered AquiferLevel Ground WaterManagement
127.44 68.25 62.93 49.38 92.19
2Piloting Commercialization ofIrrigation Service Management
99.12 0.00 0.00 - -
D Project Management 189.74 214.93 188.56 99.38 87.73
1Project Preparation andManagement Unit
82.13 89.39 91.55 111.47 102.42
2 Monitoring & Evaluation 68.91 111.70 90.67 131.58
81.18
3Information, Education andCommunication
38.70 13.84 6.33 16.36 45.74
Total Base Cost =(A)+(B)+(C)+(D)
16580.42 18623.19 17,774.41 107.20 95.44
2.6 Implementation Arrangements
The project was initially designed to be implemented over a
period of six years. It involved theWRD working in partnership with
other line agencies (e.g. agriculture, horticulture, GSDA, etc.),as
well as with the WUAs, NGOs, and private sector. The main
implementing agency is the WaterResources Department with
management support provided by the multi-disciplinary PPMU.
Thechief executive of PPMU reported to the Secretary, WRD, for
day-to-day working. There is a statelevel PSC to provide
inter-departmental co-ordination and strategic direction and take
decisionsas needed to ensure timely and successful implementation
of the MWSIP. The PSC is chaired bythe Chief Secretary and is
comprised of the Principal Secretaries/Secretaries of the
Departmentsof Finance, Planning, Water Resources, Agriculture,
Water Supply and Sanitation, Industries andother participating
departments. Principal Secretary/Secretary, WRD, is the Convener of
the PSC.
The Water Resources Department, Agriculture Department and GSDA
have been the mainexecuting Departments. The activities under the
first component on institutional restructuringand capacity building
were implemented by the WRD, WALMI, the MWRRA and IDCs who
weredesignated to play the role of River Basin Agencies. The second
component, relating to improvingirrigation service delivery and
management, participatory rehabilitation and modernization
ofirrigation schemes, formation of Water User Organizations, their
capacity building and fostering,implementation of water
entitlements, and Dam Safety, were carried out by the WRD in
closeassociation with WUOs themselves. The Agriculture Department
was vested with theresponsibility of implementing the agriculture
support services activities. The third componentfeatured two
innovative pilots (i) user-centered aquifer level groundwater
management and (ii)innovative irrigated agriculture. The first
pilot was carried out by the GSDA. The Innovative Pilot
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on Irrigated Agriculture was planned with anticipated support of
a private sector for whichextension activities did not proceed
well. In view of the little progress made in this regard and
thefact that similar initiatives are already undertaken under the
on going Maharashtra AgricultureCompetitiveness Project (MACP) the
World Bank agreed during 2011 to drop this activity fromMWSIP .
A detailed Project Implementation Plan (PIP) was prepared by the
PPMU, WRD, in closeassociation with all the implementing agencies
of the GoM, which provided more detailedinformation on
implementation arrangements for the Components and Sub-components
ofMWSIP.
2.7 Implementing Partners and their role
The organogram given below provides the details of the inputs
given by all the implementingpartners under MWSIP.
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Sheladia Associates, Inc., USA and AFC India Ltd., Mumbai 12
on Irrigated Agriculture was planned with anticipated support of
a private sector for whichextension activities did not proceed
well. In view of the little progress made in this regard and
thefact that similar initiatives are already undertaken under the
on going Maharashtra AgricultureCompetitiveness Project (MACP) the
World Bank agreed during 2011 to drop this activity fromMWSIP .
A detailed Project Implementation Plan (PIP) was prepared by the
PPMU, WRD, in closeassociation with all the implementing agencies
of the GoM, which provided more detailedinformation on
implementation arrangements for the Components and Sub-components
ofMWSIP.
2.7 Implementing Partners and their role
The organogram given below provides the details of the inputs
given by all the implementingpartners under MWSIP.
*******
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Sheladia Associates, Inc., USA and AFC India Ltd., Mumbai 12
on Irrigated Agriculture was planned with anticipated support of
a private sector for whichextension activities did not proceed
well. In view of the little progress made in this regard and
thefact that similar initiatives are already undertaken under the
on going Maharashtra AgricultureCompetitiveness Project (MACP) the
World Bank agreed during 2011 to drop this activity fromMWSIP .
A detailed Project Implementation Plan (PIP) was prepared by the
PPMU, WRD, in closeassociation with all the implementing agencies
of the GoM, which provided more detailedinformation on
implementation arrangements for the Components and Sub-components
ofMWSIP.
2.7 Implementing Partners and their role
The organogram given below provides the details of the inputs
given by all the implementingpartners under MWSIP.
*******
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Chapter 3
Sheladia Associates, Inc., USA and AFC India Ltd., Mumbai 13
Chapter 3
FINAL EVALUATION APPROACH & METHODOLOGY
3.1 Study design
The study design pre-supposes evaluating the project outcome and
impact in line with the projectdevelopment objectives and the
project developmental interventions undertaken. This Reportattempts
to briefly state the physical and financial progress achieved under
the sub-components ofthe project, their relevance, efficiency and
resulting project outcome benefits. The exercise involvedsourcing
of information in the following manner.
(i) The Results Framework indicated in the Project Appraisal
Document has been asguidance for selecting the outcome indicators
that have to be measured and assessed.
(ii) The Project Implementation Plan was consulted to know the
mandate and theenvisaged Implementation arrangements for each of
the Component and Sub-Componentto assess to what extent they have
been achieved at the final evaluation stage.
(iii) The progress information received on the six monthly
monitoring formats for theperiod ending Sept2013 from all the
Scheme authorities were used to measure theachievement made under
the system performance indicators during the irrigation
yearJuly,2012-June,13 in all the 235 Schemes. In order to measure
the net proje