IPP255 v3

SOCIAL ASSESSMENT Public Disclosure Authorized

ORISSA COMMUNITY TANK MANAGEMENT PROJECT

Public Disclosure Authorized

Public Disclosure Authorized Prepared by Verve Consulting for Orissa Community Tank Development & Management Society, Department of Water Resources, Government of Orissa

Dated the 7th of December 2007

Public Disclosure Authorized

Orissa Community Tank Management Project Social Assessment

Contents

Sl. No. Subject Page

1. Introduction 4

2. Social Assessment Study 4

3. Study methodology 5

4. Tank irrigation systems in Orissa: the challenges 7 and opportunities

5. Diversity in tank irrigation systems in Orissa 10

6. Stakeholder Analysis 14

7. Perceived Impact on beneficiaries 26

8. Issues of significance for the project 27

9. Design elements to approach the issues 29

10. Orissa tank rehabilitation: Process Map / Cycle 36

11. Major risks and assumptions in the project 39

Annexure Brief summary note on the review of Orissa Pani Panchayat Act, 2002 and assessment of the institutional capacity of Pani Panchayats

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Abbreviations

ADM Additional District Magistrate AMS Agriculture Marketing System ANM Auxiliary Nurse Mid-wife AVAS Assistant Veterinary Assistant Surgeon AWW Angan Wadi Worker BDO Block Development Officer; CARM Community Agriculture Resource Management DM District Magistrate DPU District Project Unit EB Executive Body FEO Fishery Extension Officer FGD Focused Group Discussion FPS Fisheries Production System GB Governing Body GC General Caste GoO Government of Orissa GoO Government of India GP Gram Panchayat GPEO Gram Panchayat Extension Officer HA Hectares HhPS Household Production System HH Household IB Institutional Building IDGI In-depth Group Interview ITDA Integrated Tribal Development Agency JE Junior Engineer JVO Junior Veterinary Officer LAO Land Acquisition Officer LAO Land Acquisition Officer LI Livestock Inspector LPS Livestock Production System M,E&L Monitoring, Evaluation and Learning MI Minor Irrigation MIP Minor Irrigation Projects MLA Member of the Legislative Assembly MP Member of Parliament NGO Non Government Organisation NSDP Net state domestic product O&M Operation and Maintenance OBC Other Backward Caste OCTDMP Community Tank Development and Management Project ORMAS Orissa Rural Development and Marketing Society OTELP Orissa Tribal Empowerment and Livelihood. Programme PESA Panchayats Extension to Scheduled Areas PIP Project Implementation Plan PO-DRDA Project Officer – District Rural Development Agency PP Pani Panchayat PPM Project Planning Matrix PRI Panchayat Raj Institution RI Revenue Inspector RRB Regional Rural Banks SCO Soil Conservation Officer SCs Scheduled Castes SHGs Self Help Groups SO Support Organisation SPU State Project Unit STs Scheduled Tribes VAS Veterinary Assistant Surgeon WALMI Water And Land Management Institute WR Water Resource

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Introduction

1. The Government of Orissa (GoO) with the Government of India (GoO) has initiated the Orissa Community Tank Development and Management (OCTDM) Project with funding from the World Bank. The project plans to rehabilitate 900 tanks out of the 3646 large tanks (each with a command area of 40 hectare to 2000 ha) existing in the state, covering a total command area of about 0.12 million hectares in eleven river basin areas of Orissa. The ultimate project objective of OCTDM is to improve tank based livelihood systems and strengthen community management of selected tank systems in Orissa. The project components of OCTDM are: (i) strengthening community based institutions to assume responsibility for tank system improvement and management; (ii) tank systems (physical side) improvement; (iii) livelihood support services for tank system users and (iv) project management. According to the plan of GoO and World Bank, the project would be prepared and implemented through a state level society under the Department of Water Resources, GoO.

II. Social Assessment Study

2. The OCTDM project recognizes the existence of physical, hydrological, socio-economic and cultural diversity across tank systems in Orissa. The tank users in Orissa comprise of various sub-groups having differential endowments, livelihood pattern, gender, caste, ethnicity and other regional features. Most importantly, each sub-group has different nature of interests, expectations, concerns and influence as far as the tank system is concerned. The project also comprehends that the problems encountered by a sub group and their needs will be unique in comparison to other sub-groups.1

3. In light of the above diversity, a social assessment study was conducted under the OCTDM project. The study was carried out by Verve Consulting based at Bhubaneswar. The objective envisaged for this assignment is to:

ƒ Conduct a social assessment study, chiefly, to better understand and address social development issues, and ensure accomplishing the outcomes – inclusion, cohesion, equity, security, decentralization and accountability.

4. The study includes beneficiary assessment; stakeholder analysis; likely impact and risk assessment; and monitoring & evaluation mechanism. Rules for securing land and tribal development plan form part of the social assessment study but these two sections were dealt separately in keeping into account the importance of the same in the project.

5. The results of the social assessment study are presented in the following five sections of the document:

Section-03 provides details about study methodology more specifically the study design, sampling, stakeholder consultation, and tools & techniques used for data collection in the study.

Section-04 describes the tank irrigation systems in Orissa and highlights the challenges and opportunities existing in the tanks systems in Orissa.

1 As part of the project preparation work, various studies were carried out under the project viz. Social Assessment study, Institutional Assessment (Pani Panchayat) study, Environmental Assessment study and Hydrological study. Some of the findings of these studies which are relevant for the social assessment report are incorporated in this document. A summary of the findings of Pani Panchayat study is annexed.

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Section-05 basically provides an idea to the reader on the diversity existing across tanks. The diversity analysis of tanks is presented in three broad categories: diversity relating to tank physical structures, usage and socio-economic diversity.

Section-06 focuses on stakeholder analysis. It gives a detailed idea to the readers about the various stakeholders associated with the tank systems, their current status, expectations and issues.

Section-07 deals with likely project impacts both positive and adverse effects on various tank sub-user groups.

Section-08 incorporates all those issues which are significant for the project design and implementation.

Section-09 takes the reader through the design elements to approach each of the significant issues.

Section-10 deals with the Project Planning Matrix (PPM).

Section-11 presents the major risks and assumptions in the project.

III. Study methodology

6. A combination of cross-sectional survey design and descriptive case-study method was adopted for undertaking the social assessment study. In order to provide both macro and micro perspective on social development issues associated with tank irrigation systems in Orissa, the study not only carried out a sample based survey but also went beyond identified samples and consulted all those categories of key informants at community, panchayat, block, sub-division, district and state level who could contribute towards the objective of the study. A total of 25 sample tanks and diversion-weirs under Minor Irrigation Projects were identified for the study across ten agro-climatic zones, spread over in 21 districts of the state. The study used Stratified Random Sampling Method for selection of 340 farmer households covered under the study across 25 sample tanks.

Table 1 Type wise numbers of sample tanks and households covered Sl. Tank Ayacut No. of Sample HHs Total Sample HHs No. Type Sample Interviewed interviewed under a Tanks per tank particular tank type 1. Type-I <100ha 13 10 130 2. Type-II 100-500ha 6 15 90 3. Type-III >500ha 6 20 120 Total 25 45 340

Stakeholder consultation

7. The stakeholder consultation exercise was carried out with tank user groups and with different secondary stakeholders. The detail about the consultations is given hereunder:

Consultation at tank level: At the tank level, the study team consulted all the sub-user groups such as big farmers, small & marginal farmers, landless-share croppers, wage earners, fisher groups, cattle grazers, brick makers, women groups, tribal groups, etc. in the 25 sample tanks and did a detailed stakeholder and risk analysis exercise with each of these categories separately.

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Consultation at the intermediary level: The consultation exercise was carried out at the Panchayat, block, sub-divisional, district and state level with different government agencies such as minor irrigation, agriculture, fishery, veterinary, revenue, women & child development, Panchayat Raj, Integrated Tribal Development Agency (ITDA), Scheduled Caste & Scheduled Tribe department, etc.

Consultation workshop at the state level: A state level stakeholder consultation workshop was conducted in July, 2007 in which the findings of the study were shared and issues significant to the project e.g. land acquisition, tribal development issues, community level conflicts between various stakeholder groups, etc. were discussed in detail. Representatives from various departments like Water Resources (Officials from the M.I. department, OCTDMP team members, members of the Training and Support Group), Revenue, Fishery, Agriculture, Animal Husbandry & Animal Resources, WALMI, Revenue and Department of Planning participated in the discussion. Representing the World Bank, were the Social Expert and the expert on institutional aspects, to provide insights. Representatives from Mission Shakti; and NGOs viz. Centre for World Solidarity, Bhubaneswar and ASHA, Gajapati were also present for the workshop.

Consultation workshop at the district level on tribal development: A district level stakeholder consultation was organized at the district headquarter in Mayurbhanj district (one of the tribal dominated districts of Orissa) in order to understand implications of the project interventions in a scheduled area with respect to governance mechanisms under PESA, livelihood interventions and land acquisition. The most important objective of the consultation was to assess community willingness towards O&M. Members of Pani-Panchayats, community members, SHGs, community-based organizations and representatives of civil society and functionaries from the ITDA, MI Department, Agriculture, Fishery, Forest, Revenue, etc participated in the consultation.

Tools & techniques of data collection and analysis

8. The tools / instruments and techniques which were administered for data collection are presented below in Table 2:

Table 2 Tools & Techniques Sl. Techniques Tools / Instruments Respondents No. 1. Tank Social & Resource Profile Checklist cum Structured Community Members from the Mapping and Focused Group Information Sheet for Tank villages benefited / to be Discussion (FGD) Social Profile benefited under Tank system 2. Household Survey (for Household Interview Schedule Farmer Households in Tank beneficiary assessment) Command Areas 3. Stakeholder Analysis and Stakeholder Analysis Table and Tank-bed farmers, catchments Likely Impact Analysis using Instruction Sheet area farmers, fisher folk, FGD or In-depth Group washer man, cattle grazer, Interview (IDGI) Technique brick makers, PRI members, 4. Risk Analysis using FGD or Risk Analysis Table and Pani Panchayat Members, line IDGI Technique Instruction Sheet department staff at district & state level, etc.

9. As far as data analysis is concerned, both quantitative and qualitative data analysis methods were employed. Required software package was used for carrying out the data computerization, analysis and generation of outputs. Data outputs for each variable are presented in tabular form with frequencies, percentages and averages. Besides, multi-variate tables are also generated based on study requirements.

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IV. Tank irrigation systems in Orissa: the challenges and opportunities

The state of Orissa: An overview

10. Orissa is one of the richest states in terms of resources but has the largest number of poor people in the country - a paradox. Vulnerability of the state comes from a high level of dependence on agriculture which is least diversified, a paddy dominated mono-cropped system that does not give enough to farmers and highly disaster prone because of repeated cyclones and floods. The total population of the state was 36.8 million in 2001 with a density of 236 persons per sq. km. There has been an increase in the literacy rate from 49.10 percent in 1991 to 63.08 percent in 2001. In Orissa, Scheduled Tribes (STs) (with 62 tribes) account for 22.21% and Scheduled Castes (SCs) (with 93 castes) make-up 16.12% of the total population of the State.

11. The occupational classification as per 2001 Census shows that the total workers in the State account for 14.27 million constituting 38.79% of the total population of the State. Out of the total number of workers, main workers accounted for 67.2%. The main workers comprise of cultivators (35.8%), agricultural labourers (21.9%), household industries workers (4.2%) and other workers (38.1%).

12. The State is divided into ten agro-climatic zones with varied characteristics. Its land can be classified into three categories: low (25.6%), medium (33.6%) and up-lands (40.8%). Agriculture and allied sectors continue to be the main-stay of the State’s economy with a contribution of about 25.75% to NSDP during 2004-05 at 1993-94 prices. According to the Agricultural Census conducted by the Board of Revenue, there were 3.96 million operational holdings in Orissa in 1995-96 of which small and marginal holdings accounted for 81.97% while the remaining 18.03% came under the category of semi-medium, medium and large holdings.

13. The surface and ground water available in the state is more than sufficient for the agricultural requirements in the state. One of the primary pre-requisites for enhancing agricultural production in the State is to ensure availability of adequate water for irrigation. The total cultivated land of the State is nearly 6165 thousand hectares, of which the irrigation potential of 44.7% i.e. 2758.142 thousand hectares land in Kharif season and 21% i.e. 1294.920 thousand hectares land in Rabi season has been created by end of March, 2007. This indicates that prudent exploitation and optimum utilization of water resources is yet to be achieved. According to an assessment done by the Water Resource Department, GoO, nearly 5900 thousand hectares of cultivable land (out of the total 6165 thousand hectares) in Orissa can be brought under irrigation.

14. In the Kharif2 season, 8.4% (i.e. 519.02 thousand hectares) of the total 44.7% irrigation potential created in the state is contributed by the minor (flow) irrigation sources. The minor (flow) irrigation projects created in the state comes under the purview of Minor Irrigation Department. MI department operates under the administrative control of WR department and is Status of MIPs as on March 2006 180 responsible for execution, operation & maintenance 540 2082 of MI projects having 40 to 2000 hectares of 844 command area capacity in the state. Tank based irrigation comes under the ambit of the MI department. By the end of June 2005, the department has 3646 MI projects across the state of Functional MIPs Partly Derilict MIPs Completely Derilict MIPs On-going MIPs

2 Kharif season starts with the onset of monsoon and continues till the end of monsoon i.e. from July to October. During this period the soils are water reach and helps in easy germination.

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which 958 are diversion weir MI projects and the rest are storage reservoir based MI projects. Out of these 3646 MI projects, 844 are Partially Derelict MIPs and 540 are Completely Derelict MIPs. 2082 are functional MIPs. 40% of the total MI projects are located in the Southern and Western districts of Orissa. The legal and policy framework that has been developed by Government of Orissa for grounding irrigation mechanisms and for optimum utilization of irrigation facilities in the State are viz. Orissa Irrigation Act & Rule, 1959; Orissa Pani Panchayat Act, 2002 & Rule, 2003; State Water Policy, 2007; and Reservoir Fishery Policy, 2006.

Opportunities and challenges in tank irrigation systems in Orissa

15. The tank irrigation systems in Orissa throw following opportunities and challenges for OCTDM project:

Opportunities ƒ Opportunity for generation of effective and efficient generation of outputs through proper rehabilitation and conservation of tank systems in Orissa ƒ Opportunity for promotion of tank based livelihoods – Other than benefiting farmers with increased agricultural productivity there is also scope to benefit marginalized sections like: o landless in terms of taking up pisciculture, fingerling cultivation, cattle grazing, duck rearing, brick making and other livelihood ventures; o small & marginal farmers through equitable distribution of water; o wage earners in terms of increased opportunity for agriculture labour and opportunity for daily wage earning in tank renovation, operation and maintenance works o tribals in terms of creating scope for them to act as one of the active stakeholders so that they can equitably reap benefits of tanks like other user groups o tail-end farmers in terms of ensured water supply ƒ Opportunity for crop diversification (shifting from the sole paddy crop to various other cash- crops especially pulses and vegetables) ƒ Opportunity for all season cultivation and cropping in two seasons (Kharif and Rabi3 season) and in some case also three seasons (Kharif, Rabi and Summer4 season) ƒ Opportunity to maintain minimum residual water recharge level of land and water bodies ƒ Opportunity for livestock promotion (scope to have adequate cattle feeds with improved vegetative cover and fodder cultivation) – more livestock means there will be more scope for organic farming ƒ Opportunity for resource augmentation by tank users in terms of both money and labour to meet a part of the O&M cost ƒ Opportunity for establishment of tank level user institutions ƒ Opportunity for opening up extension counters for seeds, pesticides, fertilizers and agricultural implements ƒ Opportunity for shifting of focus from government centric approach to people centric approach or techno/engineering centric approach to techno-social approach: o Involvement and contribution of tank users in rehabilitation, operation and maintenance of tanks o Ownership of Tank users’ in the entire process o Tank users’ engagement in resolving their own conflicts and promoting equitable use of tank resources ƒ Opportunity to attract market institutions for procurement of inputs and sale of various tank based livelihood products

3 Rabi season begins after post monsoon period from November and continues till February. 4 Summer season starts after the end of Rabi season i.e. from March to June.

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ƒ Opportunity for creation of a tank based social-lab (serving the purpose of demonstration and learning ground for other villages) ƒ Opportunity for development of an integrated policy keeping into account the local needs ƒ Opportunity for redefining systems and scope for greater convergence and concerted initiatives

Challenges ƒ Decay of tank systems vis-à-vis rehabilitation and conservation of tanks: The key challenges are: o Excessive siltation of tank bed and water distribution channels o Cultivation and deforestation in upper catchments areas cause heavy siltation of tank bed and channels (need for catchment treatment and maintenance of channels) o Tank bed and channel encroachment o Weed infestation in tank bed o Damage, leakage and theft of sluices (need for sluice rotation and management) o Leakage, seepage and breach in tank bunds o Construction of new canals or channels, issue of land acquisition o Tampering of field outlets and channels o Use of appropriate technology in tank rehabilitation for preventing natural and man-made hazards and to get durable benefits from rehabilitated tank systems o In-equitable water distribution with specific reference to use of appropriate technology in creation of field channels for the same and also use of appropriate technology in checking water loss ƒ Operation and maintenance of tank systems vis-à-vis engagement and ownership of water users: The major challenges in this are: o Deferred maintenance of tanks resulting in further degradation of tank systems o Inter and intra users’ conflicts of interests, benefits and expectations (users such as farmers, fishermen, wage-earners, tribals and other user groups) o Inter village conflicts over enjoying water rights (e.g. conflicts between head reach and tail end farmers, conflicts between villages to undertake pisciculture; etc.) o Non-availability of common tank level platform for multi-users interface and participation in tank operation and maintenance o Lack of linkages between different livelihood groups o Transfer & sharing of O&M responsibility from government to tank users o In-ability of tank users to take up O&M responsibility o Lack of community level mechanism for revenue generation o In-equitable water distribution because of lack of appropriate norms and mechanisms o Establishing community level monitoring and supervision mechanisms ƒ Institutional Challenges: o Establishing interdepartmental coordination and convergence starting from state to village level o Establishing good governance and mainstreaming service delivery at all levels (building capacities of departmental staffs) o Formation and strengthening of local institutions o Linkage and integration of local institutions with various public and private institutions and with Panchayat Raj Institutions (PRIs) o Policy integration vis-à-vis need for improving policies and redefining systems keeping into account the local needs (moving from a single dimensional approach to an integrated policy development approach in considering policies such as Pani Panchayat Act, Fishery Policy, Irrigation Act, Rehabilitation & Resettlement Policy, etc.) o Market Linkages ƒ Challenges relating to financial and manpower resource mobilization and utilization:

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o Local level resource generation to share a part of the O&M costs in terms of money and labour o Leveraging resources from various government schemes for tank conservation and promotion of tank user groups o Manpower development of both tank users and service providers (need for knowledge building and skill development works at all levels)

V. Diversity in tank irrigation systems in Orissa

Physical diversity of tank systems in Orissa

16. The projects handled by MI department are of two types i.e. (i) tank/reservoir based project and (ii) diversion weir project. Out of 3646 minor (flow) irrigation projects handled by the department, 2663 are tank/reservoir based projects and the rest 958 are diversion weir MI projects. Both the type of projects, whether it is tank/reservoir based project or diversion weir project, use rain water by either storing it or diverting it from a stream, Nala or river for irrigation.

17. The emphasis in /reservoir based project is to store water and then irrigate land by taking water from the storage points. Therefore, large size tanks which can cater to a command area The essential features of tank/reservoir of 40 to 2000 hectares are shaped into water based projects are: storage reservoirs to serve the purpose of A bund or a dam which is generally irrigation. The tracts with undulating of earth, but is also sometimes partly topography and rocky sub-strata in the or fully masonry southern, western and a part of the northern Anicut and feeder channels to divert side of Orissa are mostly found suitable for water from adjoining catchments, tank irrigation. Therefore, 40% of the total MI Water in-let projects are located in the western and southern A waste weir to dispose of surplus part of Orissa. The tank based reservoirs are water, designed in such a way that it allows run-off Sluice or sluices to let out water for water from the catchments area to flow into the irrigation, and storage-reservoir and accumulate to the extent Distribution system. of the high storage level of the tank reservoir.

18. Unlike tank/reservoir based MI projects, the diversion weir projects basically aim at providing gravity flow irrigation by diverting stream or nala water supply without creating any storage. This type of project depends on the gravity of water flow in the stream for Essential features of diversion weir irrigation. In the hilly tracts and foot hill plains project are: of southern and western Orissa, the water is An obstruction (weir) or bund usually diverted by constructing bunds across constructed across the stream for the streams, made up of earth, stones and raising and cemented concrete walls. The regulation An artificial channel structures of diversion weir projects are done taking into account the intensity of water discharges. Weir is provided with scouring sluices in order to regulate the flow of silt in the off-taking channels.

19. The other important feature of minor surface flow schemes is the water distribution system. Irrespective of tank/reservoir based projects or diversion weir projects, water from the source is taken to the agricultural field through open channels such as lined or unlined canals, distributaries and minors in Orissa. From the outlet, water flows into the agriculture field through

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small water-courses. However, in most of the tank systems in Orissa, field to field irrigation is being practiced resulting in huge water loss.

Condition or Status of 25 Sample Tank Functioning with leakage in 3 tanks

Systems visited Functional condition in rest 12 tanks Condition of Tank Bund Overall condition of tanks Fully damaged in 4 tanks Partially damaged in 11 tanks 4 tanks are in complete derelict condition Good condition in 9 tanks Rest 20 tanks are in partially derelict condition Period of water retaintivity Condition of Spill way Completely damaged in 3 tanks 10 tanks with <4 months, 9 with 4-5 months, 2 Partially damaged in 11 tanks tanks with 6-8 month and 2 tanks with round the year water retaintivity Good condition in 9 tanks No spill way in 2 tanks No water retaintivity in 2 tanks Condition of Sluice gate Condition of Canal structure No Canal structure in case of 5 tanks No sluice gate in case of 3 tanks Partial siltation in 15 tanks Dis-functional in 7 tanks (contd….) Complete siltation in rest of 5 tanks

Diversity in uses of tank systems in Orissa

20. Over the years, people have been using tank systems for multifarious purposes. The uses of tank systems can be broadly categorized as direct and peripheral uses.

Direct Uses ƒ People use tank water for irrigation. ƒ Fishery or pisciculture in the tank reservoir ƒ Drinking ƒ Domestic purposes such as cooking, cleaning, bathing etc. ƒ Bathing of livestock ƒ Maintaining rituals and ceremonies (especially use tanks to take a dip after funerals) ƒ Duck rearing ƒ Fingerling cultivation Table 3 Current uses of sample tank systems ƒ Fodder cultivation Uses No. of sample tanks ƒ Washer men Irrigation 21 ƒ Traditional activities like pottery, bell & Drinking 1 brass metal works etc. Bathing 15 ƒ Recharging the other peripheral water Washing Clothes 13 bodies (domestic) Brick making 2 Fishing 10 Peripheral Uses Livestock use (cattle 16 ƒ Silted tank bed clay for pottery, bricks, grazing, drinking, earth works for houses and for improving cleaning) productivity of agricultural land ƒ Vegetative cover around the tank bed and in the catchment area is used for cattle grazing ƒ Fuel wood from the vegetative cover around tanks ƒ Maintain the ecological balance of the area

Socio-economic diversity of tank users in Orissa

21. As per the information gathered from the field, there are 99 villages which come under the 25 sample tanks covered under the study. A total of 17693 households of different socio- economic background reside in those 99 villages of which almost all households directly or indirectly use tank resources for livelihood and domestic purposes. Out of these 17693

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households, 7421 had land holdings of them 4749 (64%) are marginal farmers with land holdings below 2.5acres and 1855 (25%) have small land holdings of 2.5 to 5 acres in the tank command area. The rest 11% i.e. 817 farmers possessed medium or more than medium land holdings (big land holding) i.e. above 5 acres of land in the command area. Among the different category of land holders, the least beneficial were the 28% households who have less than 1 acre of land holding in the tank command area. Therefore, many farmers mostly from this category or from completely landless category (1078 farmers in 25 tanks) had to do share cultivation in command areas. The landless and marginal farmers those who don’t cultivate land on share basis have to depend on agricultural labour or wage earning opportunities for earning their livelihoods. Apart from wage earning, there are also people who do pisciculture and depend on cattle grazing.

22. The caste wise break-up of these households show that 24.5% i.e. 4339 out of 17693 households belong to the Scheduled Caste communities and 17.9% i.e. 3162 households belong to the Scheduled Tribe communities. The rest 57.6% i.e. 10192 households belong to general caste or other backward caste communities.

23. In Orissa, Scheduled Tribes (STs) with 62 tribes account for 22.21% and Scheduled Castes (SCs) with 93 castes make-up 16.12% of the total population of the State. The term 'Scheduled Tribes' first appeared in the Tribes deemed under Article 342 to be Scheduled Tribes in Orissa Constitution of India. Article 366 (25) defined 1.Bagata; 2. Baiga; 3. Banjara, Banjari; 4. Bathudi; 5. Bhottada, Dhotada; 6. Bhuiya, Hbuyan; 7. Bhumia; 8. Bhumij; 9. Bhunjia; 10. binjhal; 11. Binihia, scheduled tribes as "such Binjhoa; 12. Birhor; 13. Bondo Poraja; 14. Chenchu; 15. Dal; 16. Desua tribes or tribal Bhumij; 7. Dharua; 18. Didayi; 19. Gadaba; 20. Gandia; 21. Ghara; 22. Gond, communities or parts of gondo; 23. Ho; 24. Holva; 25. Jatapu; 26. Jung; 27. Kandha gauda; 28. Kawar; or groups within such 29. Kharia, Kharian; 30. Kharwar; 31. Khond, Kond, Kandha, Nanguli tribes or tribal Kandha, Sitha Kendha; 32.Kisan; 33. Kol; 34. Kolah Laharas, Kol Laharas; 35. Kolha; 36. Koli, Malhar; 37. Kondadora; 38. Kora; 39. Korua; 40. Kotia; communities as are 41. Koya; 42. Kulis; 43. Lodha; 44. Madia; 45. Mahali; 46. Mankidi; 47. deemed under Article 342 Mankirdia; 48. Matya; 49. Mirdhas; 50. Munda, Munda Lahora, Munda to be Scheduled Tribes Mahalis; 51. Mundari; 52. Omanatya; 53. Oraon; 54. Parenga; 55. Paroja; 56. for the purposes of this Pentia; 57. Rajuar; 58. Santal; 59. Saora, Sever, Saura, Sahara; 60. Shabar, constitution". According Lodha; 61. Sounti; 62. Tharu to Article 342, “the President may, with respect to any State or Union territory, and where it is a state, after consultation with the Governor there of by public notification, specify the tribes or tribal communities or parts of or groups within tribes or tribal communities which shall, for the purposes of this constitution, is deemed to be scheduled tribes in relation to that state or Union Territory, as the case may be”. The criterion followed for specification of a community, as scheduled tribes are indications of primitive traits, distinctive culture, geographical isolation, shyness of contact with the community at large, and backwardness. This criterion is not spelt out in the Constitution but has become well established.

24. Considering the low socio-economic backwardness of Scheduled Tribes as compared to other communities, certain areas have been declared as ‘Scheduled Area’ as per the provision of Constitution of India. The term `Scheduled Areas' has been defined under Paragraph 6 of the Fifth Schedule of the Indian Constitution as "such areas as the President may by order declare to be Scheduled Areas" in consultation with the respective state governments. Some of the established norms that are followed for declaring an area as Scheduled Area are preponderance of tribal population; compactness and reasonable size of the area; under-developed nature of the area; and marked disparity in economic standard of the people. About 45% of the geographical area of Orissa has been specified as Scheduled Areas.

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25. The areas that have been demarcated as Scheduled Areas in Orissa are: Scheduled Areas in Orissa The Scheduled Areas Order, 1977, made in exercise of the powers conferred under sub paragraph (2) of paragraph 6 of the Fifth Schedule of the Constitution, specifies the following Scheduled Areas in the State of

Orissa:

Districts completely declared as Scheduled Area: 1. Mayurbhanj, 2. Sundargarh, 3. Koraput, 4. Rayagara, 5. Nabarangpur, 6. Malkangiri, and 7. Kandhmal Districts partially declared as Scheduled Area: 1. Kuchinda Tahsil in Sambalpur District; 2. Keonjhar and Telkoi Tahsil of Keonjhar Sub-division and Champua and Barbil Tahsils of Champua Sub-division in Keonjhar district; 3. R Udayagiri Tahsil, and Guma and Rayagada Blocks of Paralakhemundi Tahsil of Paralakhemundi Sub-division (now the Gajapati district except Kashipur and Gosani Blocks); 4. Suruda Tahsil excluding Gazalbadi and Gochha Gram Panchayats in Ghumsur Sub-division of Ganjam district; 5. Thuamul Rampur Block of Kalahandi Tahsil and Lanjiagarh Blocks falling in Lanjiagarh and Kalahandi Tahsils in Bhawanipatna Sub- division of Kalahandi district; and 6. Nilgiri Block of Nilgiri Tahsil in Nilgiri Sub-divison in Balasore district

26. Apart from the above, the provisions of the Panchayats (Extension to Scheduled Areas) – PESA Act, 1996, vide which the provisions of Panchayats, Implications of PESA Act contained in Part IX of the Constitution, were extended to The following are some implications which need to be adhered to while Scheduled Areas, contain taking up any initiatives in the Scheduled Area: special provisions for the 1. Acquisition of land for development projects and for resettling or benefit of Scheduled Tribes. rehabilitating persons affected by such projects: Shall be taken-up in With the strength and support consultation with Zilla Parishad (with or without consultation with the of PESA Act, 1996 the Gram Sabha) traditional Gram Sabhas5 in the 2. Planning and management of minor water bodies: Shall be taken up in consultation with Zilla Parishad (with or without consultation with the tribal areas are being endowed Gram Sabha) with special functional powers 3. Control and supervision of activities of various organizations and and responsibilities to ensure individuals and their office bearers engaged in social work: Shall be effective participation of the enforced by Panchayat Samiti with or without consultation with Gram Tribal Societies in their own Sabha 4. Listing of development projects: Shall be taken up by Palli Sabha for development and in harmony approval and necessary action of Gram Sabha with their culture so as to 5. Ownership of Minor Forest Produce (on 68 selected items): Shall be preserve/ conserve their taken-up under Gram Panchayat traditional rights over natural 6. Management of village market: Shall be taken up under Gram Sabha resources. Parallel State 7. Safeguard the cultural identity, community resources and dispute resolution: Shall be taken up under Gram Sabha legislations have been enacted in Orissa to give effect to the provisions of the PESA Act, 1996.

27. With regard to tank based irrigation projects are concerned, a large number of tanks which come under the purview of MI department are located in the Scheduled Areas of the state. As a result, the tank irrigation systems similar to other communities greatly benefit the Scheduled Tribes population in the State. Thus, the PESA Act and other provisions for the Scheduled Areas are applicable to initiative like OCTDM project operation in the area.

28. The numbers of tanks existing in the districts which are completely declared as Scheduled Area are presented in the table 4.

5 Every village shall have a Gram Sabha consisting of persons whose names are included in the electoral rolls for the Panchayat at the village level. Zilla Parishad: It is the district level apex body of Panchayat Raj Institutions and consists of representatives from each constituency, Panchayat Samiti chair persons, MPs and MLAs representing the district. Panchayat Samiti: It is the Block level apex body of PRI which consist of consist of all elected members, all G.P. Sarpanchs and local MLAs and MPs representing that particular Block.

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Table 4 District wise number of projects of MI department Sl. District Total No. of Total No. Sl. District Total No. of Total No. No Blocks in of No Blocks of the District Projects in the Projects District Districts completely declared as Scheduled Area Districts not demarcated as Scheduled Area 1 Kandhamal 12 57 14 Angul 8 156 2 Koraput 14 50 15 Bargarh 12 177 3 Malkangiri 7 28 16 Bhadrak 7 17 4 Mayurbhanj 26 202 17 Bolangir 14 165 5 Nawarangapur 10 52 18 Cuttack 14 106 6 Rayagada 11 81 19 Deogarh 3 31 7 Sundargarh 17 89 20 Dhenkanal 8 165 Sub-total 559 21 Jajpur 10 133 Districts partially declared as Scheduled Area 22 Jharsuguda 5 54 8 Balasore 12 48 23 Kendrapara 9 15 9 Boudh 3 64 24 Keonjhar 13 148 10 Gajapati 7 149 25 Khurda 10 180 11 Ganjam 22 994 26 Nayagarh 8 153 12 Kalahandi 13 131 27 Nuapada 5 33 13 Sambalpur 9 106 28 Puri 11 9 Sub-total 1492 29 Sonepur 6 53 Sub-total 1595 Grand Total 306 3646

VI. Stakeholder Analysis

29. The projects implemented in the past whether for infrastructure development or community development, were mostly technical output oriented in nature with little focus on sustainable outcome or impact of the project on the beneficiaries. Although the ultimate focus of these projects was to benefit the people however, there was hardly any process initiated where the beneficiaries themselves get involved in managing and owning the projects. Keeping in account the importance of stakeholder participation and involvement in the project, a detailed stakeholder consultation and analysis was carried out as one of the important components of the Social Assessment study undertaken by GoO under OCTDM Project with an aim to support the project in evolving an effective project implementation plan and strategy. Such consultations were carried out with various stakeholders at village, panchayat, block, district and state level.

Stakeholder Mapping

30. A list of all the stakeholders identified at different level is presented below in two categories, viz. direct beneficiaries and indirect beneficiaries.

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Table 5 Stakeholders/Beneficiaries at different levels Village Level Panchayat Block Level Sub Division District Level State & Country Level Direct Beneficiaries Indirect level Level Beneficiaries 1. Farmers (Big & medium 1. Rice mill Direct Direct Direct Direct Beneficiaries Direct Beneficiaries farmers; small & marginal owners; 2. Beneficiaries Beneficiaries Beneficiaries 1. Executive Engineer 1. Chief Engineer, Minor Irrigation; farmers; share croppers; tank Traders-buyers 1. Sarpanch 1. Block 1. Assistant (Minor Irrigation); 2. 2.Directorate of Agriculture and bed encroachers and (Vegetable (PRI); 2.Ex – Development Engineer / Sub- District Agriculture Food Production; 3.Directorate of catchments area vendors; Rice sarpanch; 3. Officer (BDO); 2. divisional Officer and Additional Horticulture; 4.Directorate of Soil encroachers); 2. Pani traders and Panchayat Fishery Extension Officer (Minor District Agriculture Conservation; 5. SC & ST Panchayat; 3. Fishery group Fish traders); Executive Officer (FEO); 3. Irrigation); 2. Officer; 3.Soil Development department; (Primary Fishery 3. Various Officer / Gram Panchayat Sub-Divisional Conservation Officer 6.Directorate of Animal Husbandry Cooperative Society); SHG community Panchayat Extension Officer Veterinary (SCO) & Assistant Soil & Veterinary Services; group involved in Fishery; level Secretary; (GPEO); 4. Junior Officer; 3. Conservation Officer; 4. 7.Directorate of Fisheries; Individual private institutions 4.Village Agriculture Officer Additional Deputy Director, 8.Revenue Department; 9.OCTDM, contractors; Traditional (Youth clubs Agriculture (JAO) / Assistant District Horticulture and Project Team; 10.Department of fisherman group; etc.); 4. and village Worker – Agriculture Officer; Agriculture Horticulturist; 5.Land Water Resource; 11. WALMI and Agricultural labourers / daily work Agriculture 5. Junior Engineer Officer; Acquisition Officer (LAO) other Training Institutions; wage earners (includes committee); 4. Dept.; 5. (JE), Minor 4.Ranger and Rehabilitation & 12.Women & Child Development women labourers); 5. Cattle Retailers Panchayat Irrigation; 6. 5.Assistant Resettlement Officer; Department; 13.Department of grazers and livestock (sellers of level SHG Forester; 6. District 6.Chief District Veterinary Forest; 14.Technical Support owners; 6. Brick makers; 7. products like Federation Revenue Inspector Welfare Officer; 7.Divisional Agencies (from government and Traditional occupation agriculture groups (RI); 7. Veterinary Officer Forest Officer; 8. non-government sector); groups (Potters; Washer seeds, 6. Livestock Assistant Surgeon Indirect DM/ADM/PO-DRDA; 15.Research Institutions; 16.Social man; etc.); 8. Duck rearer; pesticides, Inspector (LI) (VAS)/Assistant Beneficiaries 9.District Social Welfare Development Agencies / NGOs 10. Common villagers (using fertilizers and – Livestock Veterinary 1. Formal Officer; 10.District Indirect Beneficiaries tank for drinking water, implements); 5. Aid Centre; Assistant Surgeon Credit Fishery Officer; 11.NGO 1.Traders (buyers); 2.Seed bathing, toilet, washing Local informal 7.Veterinary (AVAS)/Junior Institutions; 2. Functionaries Companies; 3.Fertilizer clothes, observing rituals, credit Department Veterinary Officer Retailers Indirect Beneficiaries Companies; 4.Pesticide etc.); 11. Tribal and institutions Gomitra/MPCS (JVO), 8. Tehsildar; (sellers); 3. 1. Formal Credit Companies; 5.Transporters Scheduled caste groups; 12. (money /WDCS 9. Chairman, Traders Institutions; 2. Retailers Formal Credit Institutions ; Private contractors (tank lenders, Indirect Panchayat Samiti; (buyers); (sellers); 3. Traders 6.(RRBs, Cooperative Bank & renovation, O&M work); 13. mahajan, etc.); Beneficiaries 10. NGO 4.Transporters; (buyers); 4. Transporters; commercial Banks Ward member (PRI); 14. 6. AWW & Traders Functionaries 5.Media 5. Development programs Agro Industry Government Functionaries ANM; 7. (buyers) and Indirect / projects run by other Development programs / projects (Amin & Chain Man of Traditional Retailers Beneficiaries Government departments; run by other Government Revenue department; Amin / occupation (sellers) 1. Formal Credit 6.Marketing Agencies departments (e.g. OTELP, etc.) Khalashi of Minor Irrigation groups Institutions; 2. (e.g. ORMAS); 7. Agro Media Groups (print & electronic) department; Forest guard of (Carpenters; Input and output Industry; 8. MLA/MP and Country level Forest department and Black smith Retailers (sellers); 9. Media 1. Government of India Village Agriculture Worker and Mason) 3. Input & output Departments (Rural Development, of Agricultural Department) traders (buyers) & Tribal Development, etc.) and 2. and 15. NGO functionaries 4. Transporters World Bank ______Verve Consulting 16 Orissa Community Tank Management Project Social Assessment

Current status of beneficiaries/stakeholders

Status of Farmers

ƒ Out of 340 households surveyed in 25 sample tank systems, maximum i.e. 40.3% (137 households) belong to Other Backward caste (OBC) communities. Next highest of about 33.2% i.e. 113 households belong to Scheduled Tribe communities followed by 17.1% i.e. 58 households belong to Scheduled Caste communities. The rest 9.4% i.e. 32 households belong to General caste communities. ƒ 54% i.e. 184 households have nuclear family type and the rest 46% i.e. 156 households belong to the joint family category. ƒ More than half of the households i.e. 179 (53%) reside in kuchha houses without electricity facility. Only 14.1% i.e. 48 households reside in pucca houses with electricity facility. Very few households from the Scheduled Tribe (3%) and Scheduled Caste (7%) communities are comparable to households belonging to the Other Backward Caste communities (23%) and General caste communities (28%) who stay in pucca house and have electricity connection. ƒ 48% (163 out of 340 households) households reported having marginal land holdings i.e. below 2.5acres per person, of them again half (i.e. 78 out of 163 marginal land holders) possessed land below 1 acre. The next highest i.e. 22.4% (76 out of 340 households) had small land holdings between 2.5 to 5 acres. About 10% i.e. 34 households were completely landless, practicing share-cropping in the tank command areas. The aggregation of percentages of small, marginal and landless households comes to around 80%. ƒ Higher number of productive assets is possessed by general caste and OBC communities in comparison to ST and SC communities. Near about 71% households had their own plough. Only 2% households from GC & OBC communities reported possessing tractors. 30% have their own well. None of the households from ST and SC communities possessed a tractor, power tiller and bore well. The percentages of dependence on various modern agricultural mechanics varied between 0.3% and 6.8% only. ƒ Highest i.e. 66% households had their own bullock. Only half of the households i.e. 54% had cows followed by 37% had hens and 22% had goats. Only 8% and 5% households had buffalos and sheep respectively. Hardly anybody possessed pigs. A very negligible percentage of households i.e. 3% (11 households) had ducks. ƒ 197 out of 340 households (near about 58%) reported having some cash savings. However, only 48 of them had savings in formal financial institutions. Nearly 44% households had savings in their own house and almost a similar percentage of households (42%) had savings in village SHGs. Only 19 households had savings above Rs.5,000/-. ƒ As a result of either no savings or low amount of savings, 164 (48%) households had to take money on loan from various sources. 90 (55%) out of 164 households had access to financial institutions in terms of availing loan. Only 2 (less than 1%) were supported with loan assistance under government programs. The study also revealed the dependence of 12% households on usurious local money lenders for which people had to pay an exorbitant rate of interest of 5% p.m. with mortgage and 10% p.m. without mortgage. ƒ Around 57% households had below 2.5acres of land and 20% households had lands between 2.5 to 5acres in the tank command area. ƒ In the year 2006-07, 24% households could not get tank water for irrigation. The aggregated percentage of households who could not get irrigation in Rabi and Summer season comes to about 77% and 93% respectively.

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Table 6 Quantum of land possessed vis-à-vis land irrigated in tank command area Agro-climatic Zones Own Land Possessed Own Land irrigated in Own Land irrigated Own Land in command area Kharif in Rabi irrigated in Summer Total No. of Total No. of Total No. of Total No. of Land in HHs Land in HHs Land in HHs Land in HHs acre acre acre acre East South Coastal Plains 279.16 N=83 165.28 N=69 58.7 N=39 9.3 N=9 North Eastern Ghats 268.52 N=89 133.97 N=59 12.85 N=14 5.9 N=4 Eastern Ghats High Land 16.84 N=9 10.5 N=4 2.33 N=2 . N=0 South-Eastern Ghats 20 N=9 14.5 N=6 . N=0 . N=0 Western Undulating Lands 19.55 N=8 8.25 N=4 . N=0 . N=0 West-Central Table Lands 107.15 N=41 66.6 N=34 4.5 N=5 . N=0 Mid Central Table Lands 96.1 N=18 35.3 N=16 3 N=2 6.8 N=5 North Western Plateau 22.68 N=8 . N=0 . N=0 . N=0 North Central Plateau 77.3 N=26 74.9 N=26 11.8 N=8 1.5 N=2 North Eastern Coastal Plane 18.65 N=8 9.94 N=8 . N=0 . N=0 Total 925.95 N=299 519.24 N=226 93.18 N=70 23.5 N=20

ƒ Other than the 41 landless households out of 340 sample households, another 19 households despite having their own land had to do share cropping in the tank command area to meet their daily food grains requirements. ƒ The season wise cropping pattern and yield rate is presented in the tables given below:

Table 7 Area cultivated vis-à-vis production in tank ayacut in Kharif season (year 2006) Crops Kharif Cultivation No. of HHs Area Cultivated (in acres) Total Production (Qt.) Yield Rate per Acre (Qt.) Paddy 329 832.9 7833 9.4 Ragi 7 4.35 8 1.8 Maize 9 15.94 101 6.3 Mung 2 1.6 2 1.3 Biri 5 1.55 1 0.6 Groundnut 1 0.5 2 4.0 Vegetables 3 2 27 13.5

Table 8 Area cultivated vis-à-vis production in tank ayacut in Rabi season (Year 2006) Crops Rabi Cultivation No. of HHs Area Cultivated (in acres) Total Production (Qt.) Yield Rate per Acre (Qt.) Paddy 2 2.1 21 10.0 Ragi 2 0.5 2 4.0 Maize 5 4.42 27 6.1 Mung 75 106.15 115.33 1.1 Biri 42 47.55 53.75 1.1 Sunflower 6 3.4 8.12 2.4 Vegetables 19 16.42 197 12.0

Table 9 Area cultivated vis-à-vis production in tank ayacut in summer season (Year 2006) Crops Summer Cultivation No. of HHs Area Cultivated (in acres) Total Production (Qt.) Yield Rate per Acre (Qt.) Paddy 19 27.85 232 8.3 Mung 1 2 1 0.5 Biri 1 2 1 0.5 Groundnut 6 6.2 23 3.7 Sunflower 6 8.6 9 1.0 Vegetables 3 2.3 22 9.6

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ƒ Almost all households i.e.306 out of 329 households (those who cultivated paddy in Kharif season) used their own seeds for cultivation. Near about 67 HHs purchased seeds from government certified sources and about 19 HHs purchased from farmers in the village. ƒ All most all households i.e. 319 (94%) out of 340 households applied Farm Yard Manure or organic fertilizers in their field. However, almost same percentage of households (87% i.e. 295 out of 340 HHs) applied chemical fertilizers. Use of pesticides as compared to chemical fertilizers was quite less as only 95 HHs i.e. 28% of the total households were found using pesticides to prevent their crops from insects.

31. From the above analysis, it is clear that paddy was the principal crop grown by majority of the households. For paddy, the land under cultivation in Kharif season was 832.9 acres which during Rabi and Summer season was only 2.1 acres and 27.85 acres respectively. Again, people those who cultivated paddy the yield rate was 9.4 quintal per acre in Kharif season which came down to 8.3 quintal in Summer season. Insufficient or un-availability of tank water was the reason highlighted by farmers for not being able to take up cultivation during Rabi and Summer season. The study also revealed absence of crop diversification in the area. Out of the 340 sample households, only an average of 4 to 5 households cultivated Ragi, Maize, Mung, Biri, Groundnut and Vegetables during Kharif season. The number of households cultivated above crops in Kharif season further came down in Summer season. In Rabi season, only 75 households cultivated Mung, 42 cultivate Biri and 19 did vegetable cultivation however, hardly any households took-up Paddy, Ragi, Maize and Sunflower cultivation during this season. In a nutshell, the findings of the study reveal lack of cultivation during Rabi and Summer season due to un-availability of tank water; lack of crop diversification; and lack of cash crop cultivation in the project area.

Response of farmers with regard to the scope of improving agricultural production

ƒ Regarding the scope of enhancing agricultural production, almost all the households, i.e. 335 (98.5%) out of 340 households said that the agricultural yield in the tank command area could be enhanced. ƒ When asked about the kind of measures needed to be taken for enhancing agricultural production, maximum i.e. 268 (79%) out of 335 households gave availability of adequate tank water as their first priority. Next to this, only 7% households considered availability of extension service and 4% households considered management of water logging problem in the area as important measures needed to be taken for enhancing agricultural production. ƒ Almost all of them (98%) conveyed that the government institutions could extend support in taking up these important measures for enhancement in agricultural production. ƒ Maximum no. of households i.e. around 82% (280 out of 340 households) said that neither MI department nor Pani Panchayat nor any other institution had ever taken their opinion on distribution of water. ƒ Most importantly, only 12% (11 out of 90 households are members of Pani Panchayat6) said that there was an agreement made on the distribution of water in the Pani Panchayat (PP). ƒ More than half of the households informed that the power of deciding distribution of tank water lies in the hands of the MI department. ƒ 40% informed the interviewer about the incidence of conflicts in the village over distribution of tank water. ƒ 83% households expressed their dissatisfaction on the way maintenance of tank systems was being done.

6 “Pani Panchayat” at the primary level consisting of all the water users, as constituted within a specified hydraulic boundary of a major, medium, minor (flow and lift-both surface and ground water and creek) irrigation projects.

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ƒ Amongst those who expressed their dissatisfaction, more than half i.e. 51% households, sighted handing over of tank maintenance work to the private contractors as the reason for their dissatisfaction. ƒ Near about a same percentage of households i.e. 48% perceived lack of community involvement in the maintenance of tanks systems as the reason for their dissatisfaction. ƒ When asked about bearing the cost of maintenance, 96% households said that it is the MI Department which should bear the cost of maintenance of tank system. ƒ 99% (336 HHs) preferred to have differential water charges based on quantum of water supplied or on the basis of total land irrigated. ƒ When the farmers were asked about their role in maintenance of tank systems, 84% agreed for making a contribution in terms of free labour during the tank maintenance work. Around 30% households said that they would like to be involved and contribute in preparation of tank maintenance plan and about another 59% said that they would like to be involved in monitoring and supervision of tank maintenance work. Most importantly, 21% household showed interest in mobilizing financial contribution from community members.

Status of Pani Panchayat (PP)

ƒ Out of 25 sample tanks, Pani Panchayat has been formed in 19 tanks. ƒ Due to lack of effective role played by Pani Panchayat, 61% of the farmers interviewed were not members of the PP and most importantly 77% of these farmers were not even aware about the existence of PP in the community. ƒ 41% households had never attended PP meeting since the time of joining Pani Panchayat. ƒ Almost all these households (more than 95% households) said that they were not informed about the meeting. ƒ About 24% said lack of time, 14% showed dissatisfaction over the functioning of PP and 16% felt dominance by Executive Body members are the reasons for not attending the meeting of the Pani Panchayat. ƒ The other interesting observation about PP are as follows: o Lack of initiative to give membership to all the farmers coming under a tank system o Instances of complete hamlets and villages were left out while forming PPs. No mechanism was followed to ensure the farmers of all the ayacut villages participate in the PP formation. o Members are not aware about the provisions under PP and some of them are even not aware about the existence of Governing Body (GB) & Executive Body (EB) in the PP. o Lack of participation of members in the GB meeting of PP o Lack of participation of members in the election of PP members o Lack of participation of members for deciding the water distribution mechanism o No agreements on water distribution o Strong influence and active presence of big farmers was observed whether it is the case of holding the post of EB or influencing decision making in the EB o More interested to get the contract for tank renovation work o Lack of ownership towards operation and maintenance of tank systems o No monitoring and supervision of water distribution o No control over tampering of field outlets and canal systems o No control in preventing tank bed encroachments and catchments area cultivation o Hardly any initiative to mobilize community in tank operation and maintenance work o No initiative to ensure timely payment of water tax

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Status of Fishery group

ƒ Out of 25 sample tanks visited, only 10 tanks have been given on lease for pisciculture. The rest 15 tanks have not been given on lease due to two reasons i.e. i) complete damage of tank reservoirs and ii) weed infestation or stumps in the tank reservoir which makes the tank unsuitable for pisciculture. ƒ Of those 10 tanks leased out for pisciculture, 6 have been given to women SHGs, 3 tanks have been given to individual private party and the rest one tank has been given to Primary Fishery Cooperative Society for pisciculture. ƒ Interestingly, of the 6 tanks leased out to women SHGs, 2 of the groups have subsequently leased out to individual private party and one SHG has handed over the tank lease to the male members of their family for pisciculture. ƒ The study team did not come across any traditional fisherman community who has been given tank on lease for pisciculture. ƒ All the 10 sample tanks where pisciculture activity is found has been leased out by Panchayat as the size of these tank reservoirs is below 40 hectares. ƒ 4 tanks have been leased out for a period of one year, 3 have been for a period of five years and the remaining tank has been leased out for a period of one year. ƒ The lease amount collected from the lease owners varies from a minimum of Rs.5, 000/- to a maximum of Rs.40, 000/- based on the size of tanks.

Table 10 Tank wise status of fish production, composition and stocking Sl. Name of MIP District Total quantity of Composition Stocking Source of No. fish production of catch status funding for during last (Yes/No) stocking year(Qt.) 1 Kusunpur Cuttack 1.5 Indian Major Yes Bank Fish 2 Jagata Ganjam 15 Indian Major Yes Bank Fish 3 Laxminala Boudh 5 Indian Major No Not D/W Fish Applicable 4 Khiladi Ganjam Information Not available 5 Bhitiribedi Ganjam 15 Indian Major No Not guba Fish Applicable 6 Baghirijhola Raigada 10 Indian Major Yes Government Fish, Minor Fish and Cat Fish 7 Dhepaguda Raigada 30 Indian Major No Not Fish Applicable 8 Pollinaidu Gajapati 8 Indian Major No Not Fish Applicable 9 Petupali Bargarh Information Not available 10 Champamunda Jharsuguda 3 Indian Major No Not Kata Fish Applicable

ƒ Most importantly, people engaged in pisciculture are mostly from landed or affluent families who have the capacity to either pay the lease amount individually or as a group. However, in none of the tanks efforts were made either by the Panchayat or by Fishery Department to benefit the households who do not have any livelihood opportunities e.g. the landless households. As a result it is the farmer households who reap dual benefits of tank system by doing agriculture as well as pisciculture.

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ƒ Interestingly, before leasing out the tanks there was hardly any inter departmental consultations for undertaking pisciculture in the tanks. The impact of lack of inter departmental coordination was also very much evident on the ground, in terms of serious conflict between people doing pisciculture and farmers who use the tank water for cultivation.

Status of Cattle Grazers

ƒ Cattle grazers are another important group of stakeholders found in 16 out of 25 sample tanks who depend on the tanks for drinking, cleaning and grazing (around the tank bund area) of their cattle/livestock. Most importantly, the tank system not only benefits the cattle grazers but also brings ultimate benefit to the livestock owners in the village in terms of providing space to the livestock for grazing as well as water to drink. ƒ It was also observed, that in some tanks, the cattle grazers have no alternative other than leaving their livestock in the open, around the tank bunds and agricultural fields for grazing. During the stakeholder consultation with the farmers’ community, there was dissatisfaction with the cattle grazers for letting their cattle into their agriculture lands especially when there were standing crops. However, given the lack of adequate vegetative cover was the reason behind this issue of friction between farmers and cattle grazers.

Status of Scheduled Tribes

32. The study through primary data collection process interviewed 113 ST households from 14 different tribal communities viz. Munda, Sabar, Sayunti, Bhuyan, Kandha, Kolha, Paraja, Bhatra, Binjhal, Ganda, Kishan, Jani, Santal and Juang. A brief status is presented hereunder:

ƒ Out of the 113 ST households covered under the study, 82 families dwell in ‘kuccha’ houses with no electricity. ƒ 95 households in total own land amounting to 307.45 acres, out of which 52 are in scheduled areas with 181.35 acres of land and 43 households are in non-scheduled areas with 126.1 acre of land. ƒ 34 households out of 113 own less than an acre of land. ƒ 92 out of 113 households in total own 210.18 acre of land in the tank command area of them 44 households in total own less than 1 acre of land in command area. ƒ In the 25 sample tanks covered under the study, 5 encroachers belonging to the ST community were found in only one tank, MI Project in Daungia, District Kondhmal. ƒ Out of the 5 farmers who have encroached land within the tank bed, no encroachment has been done by farmers belonging to landless or big farmer groups. ƒ Agriculture is the predominant livelihood preference amongst tribal households covered under the study. Collection of Minor forest produce (like ‘mahula’ flowers, leaves etc), Agricultural labour and wage –earning are the other predominant engagements of tribals. ƒ The yield per hectare of paddy is 8 quintals and of Ragi is 1 quintal in Kharif season. Yield per hectare of paddy in Rabi season is 13 quintals and that of vegetable sis 18 quintals. The yield per hectare of paddy in Summer season is 8 quintals. A significant portion of this produce is consumed by the households and some portion is bartered. Limited market linkage hinders trading of agricultural produce for monetary gains. ƒ Only 14 out of 113 in total felt that their opinion was considered in distribution of tank water. ƒ 25 households, 17(27.9%) households in scheduled areas and 8(32%) households in non- scheduled areas, out of 113, belong to tanks where Pani- Panchayat has been constituted and are members. Tanks where-in Pani-Panchayat has been constituted 64 households, 36(59%) in scheduled areas and 28( 43.8%) in non-scheduled areas are not members. 24 households belong to tanks where Pani-Panchayat has not been constituted.

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ƒ 105 out of 113 households would like to contribute in the form of free labour. ƒ 45 ST households are willing to pay towards maintenance of the tank.

Status of other users

ƒ There are some other sub-groups who also get benefit out of tank system viz. brick makers and potters. ƒ Out of the 25 tanks visited, in only one tank pottery (i.e. in Kabatkhajuri MIP in Jajpur District) activity is found. ƒ People engaged in brick making activity are found only in two sample tanks viz. Dhepaguda MIP in Rayagada district and Silati MIP in Nawarangapur district. But none of these stakeholders use these activities as a commercial venture. They are involved in brick making and pottery activity only to meet their own domestic requirements. ƒ However, the level of dependence of these two stakeholder groups on the tank system is quite low. Most importantly, they hardly have any conflict of interests with other stakeholders as far as using the benefits of tank system is concerned. ƒ Last but not the least it is the general mass of the community who depend on tank for various domestic purposes such as drinking; bathing and cleaning. ƒ Out of the 25 sample tanks, 15 tanks are used for bathing, 13 are used for washing of clothes and only one tank is used for drinking purpose. The study team did not come across any such conflicts or problems with regard to the use of tank systems for domestic purposes. ƒ There are about 10 sample tanks which are currently not used by people for any domestic purposes, firstly because the tanks are far off from the village and secondly because some of these tanks are in complete or partially derelict condition.

Status of engagement of line departments

ƒ As the nodal agency, MI department apart from construction work is entrusted with the responsibility of forming Pani Panchayats. Although the departmental engineers have taken up this additional responsibility of forming PPs, they require support of social development agencies to deal with the community level conflicts over use of tank benefits and mobilizing tank users’ involvement in tank operation and maintenance. ƒ Lack of adequate field level manpower is the reason behind allowing the natural time of transition to the community to be able to initiate any social development processes. Although they possess the knowledge about the provisions of the Pani Panchayat, they however lack the understanding of the processes involved in initiating community level development through participation of various farmers’ groups during pre-peri-post formation stages of PPs. The departmental engineers realize the need of participation and ownership of farmers and urge the support of social development agencies for promotion of PPs. ƒ Other than the MI Department, the fishery Department, Panchayat and agriculture departments are directly associated with the tank based MI projects. However during consultations with these departments, the study team could hardly find their involvement in terms of extending support to MI department in mobilizing tank users for sustainable use of tank systems. ƒ The fishery department is aware about the need of undertaking feasibility assessment of tanks with the MI department before leasing out the same for pisciculture. However, hardly any such assessment was done by analyzing the water requirements of farmers and fisher group vis-à-vis water availability and conditions of the tank. ƒ The MI and agriculture departments hardly converge to come out with a joint micro plan that would cater to the requirements of the farmers. Most importantly before attending the Pani Panchayat meeting, both the departmental staffs never discuss on how they would support the

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Pani Panchayat members. This is the reason for which the members of the Pani Panchayat are ignorant about the various schemes and programs of Agriculture Department. ƒ Likewise, the need of greater convergence with the other departments such as Panchayati Raj, Women & Child Development, Revenue Department, SC&ST development, etc. was also felt especially with regard to tapping the provisions and schemes for promotion of tank based livelihoods.

Expectations of beneficiaries

Table 11 Beneficiary / stakeholder wise expectations Beneficiaries / Expectations Stakeholders 1. Farmers ƒ Renovation of tank structures and water distributory systems 2. Pani ƒ Adequate water storage in the tank reservoir for all season cultivation Panchayat ƒ Contracting of tank renovation work to Pani Panchayat members members ƒ Handing over of operation and maintenance work of tanks to Pani Panchayat members ƒ The head reach farmers expect their lands to be irrigated before the tail end-famers ƒ Tail end farmers expect some mechanism so that they can access tank water ƒ Big farmers wish to get major share of water be it within the head or tail-end region ƒ S&M farmers and share croppers want govt. intervention to control the dominance of big farmers ƒ Availability of extension services: subsidized seeds, fertilizers, pesticides and technical know- how to start multi–cropping, especially cultivation of cash – crops and light-duty crops ƒ Big farmers wish to control and influence the overall decision making and functioning of the Pani-Panchayat through representation in the executive body of the PP committee ƒ Small and marginal farmers and share croppers look forward to their engagement in other tank based livelihood opportunities like duck-rearing and pisci-culture ƒ Landless share-croppers expect their inclusion in PP and expect to participate in the decision making process for tank water distribution 3. Agricultural ƒ The daily wage earners expect MI department to create more wage earning opportunity in the area Labourers / through renovation, operation and maintenance of tank systems. daily wage ƒ At least two or three time cultivations in a year so that they get adequate opportunity for earners agricultural labour 4. Landless ƒ Landless daily wage earners expect government to ensure their engagement in other tank based livelihood opportunities like pisci-culture, duck rearing, fingerling cultivation, fodder cultivation, etc. and in household enterprises such as rice processing unit, etc. ƒ Landless households expect some provision for them to cultivate the barren lands in the tank ayacut – want PP and government to make some provisions on the same 5. Fishery ƒ Panchayat to follow a transparent mechanism for leasing out tanks group ƒ Round the year water retentivity in the tank ƒ De-siltation of tank bed for creating adequate water storage facility for pisciculture ƒ Panchayat (Sarpanch / Ward member) to resolve conflicts created by farmers ƒ Training and infrastructural support such as boat, net, fish-house, etc. from government ƒ Clearing weeds and stumps in the tank bed for making it suitable for pisciculture ƒ Farmers or PP members to consult them before opening the sluice gate ƒ Government / Panchayat not to lease out the tank to individual private contractor ƒ People expect to know the technique of fishing in the big reservoir 6. Brick ƒ Some provision or mechanism to use the tank silt and water for brick making without any makers objection or hindrance by others ƒ They are very much interested to take brick making activity as a commercial venture provided there is adequate mechanism for marketing of bricks 7. Traditional ƒ Potters expect govt. to help them in alternative livelihood options (no demand for pottery now) Occupational ƒ Washer men expect free access to tank water as they have been using the tank since long. They Group also expect repairing of canal systems so that they can use the canal water for washing of clothes. ƒ The local carpenters hope that their would be more scope for repairing of agricultural implements if people do two or three times cultivation in a year ƒ Masons in the area expect their engagement in tank and canal system repairing work so that they get some income out of the same 8. Duck rearer ƒ Round the year water storage in the tank for survival of ducks ƒ People those who have ducks expect support for the safety of ducks ƒ People want to know the technical details about duck hatching

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Beneficiaries / Expectations Stakeholders 9. Cattle ƒ The cattle grazers expect adequate water storage in the tank especially during summer season grazers & ƒ Free access to use tank water for drinking and cleaning of livestock livestock ƒ Some measures to improve vegetative cover around tank reservoir and canal systems owners 10. Common ƒ The common villagers those who use tank water for domestic purposes (such as drinking water, villagers bathing, toilet, washing clothes, observing rituals, etc.) want free access to tanks as they have been using the same since long ƒ The tanks which are used for drinking water, people expect that the various livelihoods groups depending on tank water should ensure cleanliness of the tank water so that the same can be used for drinking purpose – expect government to take some initiatives for cleanliness of tank systems as part of public health initiative 11. Tribal and ƒ Want to be engaged in tank renovation work as unskilled labour Scheduled ƒ Support to increase agricultural productivity so that they need not have to only depend on Caste groups collection & selling of forest produces and they need not have to migrate in search of work ƒ Want support to take up duck rearing ƒ Want to also do pisciculture but expect support from government in terms of training, finance and infrastructures like net, boat, etc. ƒ Availability of subsidized credit from government for agriculture and other related income generating activity ƒ Government to control the exploitative trading practices done by outsiders ƒ Profitable marketing facilities so that they get reasonable price for selling of produces ƒ Government to stop wood traders for clearing the vegetative cover in the area ƒ Government to stop the dominance of farmers from general caste communities. ƒ Want their involvement in PP 12. PRI ƒ The Ward member and Sarpanch expect MI department staff to consult them on regular basis Members before undertaking any activity in the village ƒ They expect some mechanisms for their involvement in the Pani Panchayat ƒ They expect government to initiate awareness program on Pani Panchayat in the village ƒ They also expect the agriculture department must take initiative to open extension counters in the village for selling of seeds, pesticides and fertilizers in subsidized rates 13. Govt. MI Department Functionaries ƒ Provision of adequate fund for complete renovation of tank systems ƒ Sensitization of tank users through awareness programs ƒ Training or capacity building of PP members before handing over the tank renovation work ƒ Expect more field level manpower support e.g. Amin and JEs ƒ Appropriate system at block and district level to ensure inter-departmental coordination ƒ Support of social development agencies to form and strengthen Pani Panchayats ƒ Adequate fund flow from govt. for regular and timely R&M work of tank systems ƒ Fishery department to follow the water policy of the state, as per which fishery should be given second preference to irrigation ƒ Want agricultural department to inform PP members about the various provisions they have ƒ Pani Panchayat should be entrusted the responsibility of collecting water tax from farmers

Fishery Department ƒ Proper water level in the tank should be maintained ƒ Adequate fund support from government for stocking of fingerlings at the tank level ƒ MI department to help in developing fish nursery tank at the tank level ƒ MI department to take step in clearance of weeds and stumps in the tank bed ƒ Also want to start policulture or single prawn crop culture which would gain more monetary benefit to the people ƒ Want adequate fund support for training of PFCS and providing infrastructural support like boat, net, pump-set, etc. ƒ Preference to traditional fishermen group as they do not have any other livelihood option ƒ Water charges from the fishery group should be charged in proportionate to the total quantity of fish production ƒ The department is not in favour of formation of tank or water user association by taking all the users such as farmers, fishery group and other sub-groups in one platform.

Agriculture Department ƒ Construction of proper water distribution channels which would technically benefit the

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Beneficiaries / Expectations Stakeholders agricultural production ƒ Enhancement in tank reservoir capacity for better irrigation coverage ƒ Handing over of responsibility to upper reach farmers to protect tank and canal bunds ƒ Revenue department to revise the water tax system ƒ PP to apply and get license to sell seeds, fertilizers and pesticides ƒ PP to sensitize farmers for use of organic manure ƒ Farmers to take interest in doing cash crops but in such case the various government departments need to coordinate with each other to support farmers ƒ Prior information about the PP meeting so that the JAO can attend the meeting on time ƒ MI department to regularly attend their district and block level departmental meeting for joint planning and execution ƒ Joint review with the MI department to fix annual agricultural program

Other Departments ƒ The Veterinary department expects MI and agriculture department to support them in promoting goat/sheep/diary farming through PPs ƒ The Veterinary department wants landless households should be given government land for perennial fodder cultivation ƒ The Veterinary department also expects the various financial institutions to come forward with the livestock insurance facility ƒ Revenue department expects PP to play in important role to prevent tank bed encroachments ƒ Revenue department expects generation of revenue regularly against water tax and land tax ƒ Revenue department expects MI department to immediately report any incidence of land encroachments ƒ Forest department expects people to take initiative for plantation in catchments area and expects PP to avoid clearing the forest cover in the catchments area for cultivation ƒ Forest department also expects improvement in the vegetative coverage around the tank structure for maintaining proper ecological balance in the area

Issues identified during stakeholder consultations

33. The following important issues were identified during the consultations:

(i) Issues relating to physical structure of the tank system: Most of the tanks structures are in derelict and dilapidated condition requiring immediate attention and renovation works. (ii) Dominance of big farmers: The big (and medium) farmers exercise dominance over almost all aspects of the tank system. They derive their prominence from their social and economic condition of affluence possessing large land holdings and belonging to influential castes. (iii) Inter-village conflicts on water availability and usage: Many instances of inter-village conflicts were shared relating to usage of water. (iv) Disparity of water availability between villages: There is disparity related to availability of water between villages lying within the head-reach and the tail-end regions. (v) Conflict of interests between the farmers and fishermen community: Conflict of interest between the farmers and fishermen community were noted in few villages with respect to usage of water. (vi) Lack of awareness about Pani Panchayats: In almost all the villages covered by the 25 M.I.Ps selected for the study, the community in general had limited/no knowledge about the existence Pani-Panchayat. (vii) Lack of convergence between Pani-Panchayat and other CBOs: It was observed that there is no convergence of interests and activities of the Pani- Panchayat and other community based organizations working for community (viii) Tank-based livelihood options are not practiced systematically in most of the tanks and diversion- weirs in the sample. Pisci-culture is practiced in only 10 out of 25 tanks. This however is not supplemented by adequate training and capacity-building. The case of duckery, etc., is no different.

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(ix) Tank bed encroachment (x) Lack of convergence between departments: There is not much convergence on issues and activities between allied Departments like the Minor Irrigation, Agriculture and Revenue. (xi) Extremist elements: Influence of extremist elements was sensed in the districts of Mayurbhanj, Keonjhar, Malkangiri, Raigarh, and Samabalpur.

VII. Perceived Impact on beneficiaries

Sl. No Stakeholders Perceived Impacts Type of Impact 1. Big and Medium ƒ Increase in agricultural productivity (cash crop prod.) and income + Farmers ƒ Reduction in the agricultural cost by use of bio-farming methods ƒ Reduction in the cost of marketing of produces due to establishment of marketing mechanisms ƒ Improvement in the technical know how of farmers ƒ Need based and rational participation of farmers in PP ƒ Less influence as a result of empowered Pani Panchayat and other - community institutions ƒ Reasonable share of profit as a result of Pani Panchayat intervention in regulated or controlled share out practice 2. Small and ƒ Greater access to tank water + Marginal Farmers ƒ Increase in agricultural productivity (cash crop prod.) and income ƒ Increase in the profit from share-in cultivation ƒ Increase in income through other tank based livelihood activities ƒ Reduction in the agricultural cost by use of bio-farming methods ƒ Reduction in the cost of marketing of produces due to establishment of marketing mechanisms ƒ Increased participation and project ownership ƒ Access to better quality inputs and agricultural know-how ƒ Easy access to credit from formal financial institutions and reduction in the dependence on local money lenders ƒ Increase in the productive assets base of farmers such as agricultural assets, savings, livestock, etc. ƒ More access to government schemes and programs 3. Landless and ƒ Better knowledge and skills to take up various alternate livelihood options + Sharecroppers; ƒ Increase income through alternate livelihood options such as fishery, Agricultural or livestock rearing, fodder cultivation, fingerlings, duck rearing, etc. Daily Wage ƒ Increased opportunity to do share cropping and for agricultural labour Laborers ƒ Increased opportunity for wage earning during tank renovation work ƒ Increased say in agriculture/land related matters ƒ Easy access to credit from formal financial institutions and reduction in the dependence on local money lenders 4. Tank Bed ƒ Loss of encroached land and source of livelihood (for landless encroachers) - Encroachers ƒ Reduction in household income due to loss of encroached land ƒ Less participation and ownership in tank development ƒ Migration to other places in search of work (for landless encroachers) ƒ Reflection of their issues in the Pani Panchayat + 5. Pani Panchayat ƒ Increase in the number of members + ƒ Representation of all types of water users in the PP - consolidation of PP as a Water Users Association ƒ Timely and regular meeting of PPs ƒ Well defined norms and procedures ƒ Increase in the level of involvement of PP members for generating 10% contribution (financial & non-financial) from water users ƒ Active involvement of PP members in community mobilization for operation & maintenance of tank systems ƒ Less incidence of conflicts over the use of water ƒ Well defined water distribution agreement ƒ Less incidence of tampering of filed outlets ƒ Well maintained records and books related to accounts

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Sl. No Stakeholders Perceived Impacts Type of Impact ƒ Less influence or control by big farmers

6. Brick makers ƒ Adequate availability of water for brick making + ƒ Better market linkages ƒ Increase in the number of people engaged in brick making activity 7. Fishery group ƒ No conflict on use of water with the farmers group + ƒ Increase in the fish production and income ƒ Adequate fishing infrastructure and better market linkage ƒ Better knowledge and skills to do pisciculture ƒ Establishment of Primary Fishery Cooperative Society and more representation of landless and traditional fishermen community in PFCS ƒ Membership in the Pani Panchayat ƒ Revival of fishing as a traditional occupation 8. Washer men ƒ Round the year water availability for washing of clothes + ƒ Increase in income as a result of their engagement in other livelihood options promoted under the project ƒ Greater social recognition 9. Pottery ƒ Increase in income as a result of their engagement in other livelihood + options promoted under the project 10. Cattle/Livestock ƒ Ample grazing options because of improvement in the vegetative cover + Grazers and ƒ Adoption of other livelihood options by cattle grazers owners ƒ Easy access to livestock extension services ƒ Improvement in the animal husbandry practices of livestock owners ƒ Increase in income as a result of livestock promotion activities such as dairy goiter, etc. 11. Duck Rearing ƒ Increase in the number of people taking up duck rearing activity + ƒ Increase in income from duck rearing activity ƒ Improvement in the knowledge and skill of people on duck rearing activity ƒ Better market linkage for selling up of duckery products

VIII. Issues of significance for the project

34. Issues those are significant for the project to address them during different levels of project cycle management are as follows:

(i) Inclusion and equity: The biggest challenge before the project is, how to include and equitably benefit the most marginalized sections of the populations (belonging to diverse socio-economic background e.g. ST, SC, landless, women, small & marginal farmers, etc. residing under tank systems. (ii) Cohesion: The other biggest challenge before the project is, how to ensure cohesiveness among various stakeholder groups and create an enabling environment for project implementation. As observed, there were conflicts between farmers and fishermen group. There were also intra farmers’ group conflicts in the community where big farmers dominate the small and marginal farmers in Pani Panchayat activity; water distribution & management; etc. (iii) Participation: As discussed, the big farmers mostly dominate and actively participate in the community level activities. There was almost negligible or passive participation of landless, small & marginal farmers, tribal communities, etc. observed especially in tank operation & management and in Pani Panchayat activities. Large percentage of households did not even know about the existence of Pani Panchayat and were not members of the same. Those who are members, hardly few of them participated or showed interest in Pani Panchayat activities.

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(iv) Transparency and accountability: The other important issue before the project is with regard to setting up of a transparent and accountable system as far as implementation of OCTDMP is concerned. Therefore, the project operational structure which has been designed is very much in line with maintaining a transparent and accountable system starting from state level to tank level. As per the structure for OCTDMP, the Project Director is responsible for overall project management from the state level. At the district level, the district Collector (who is the Chairman of DPU) and the Executive Engineer of MI (who is the district project director) are responsible for overall project execution and management at the district level. Greater emphasis has been also given to establish an M&E system that provides timely and necessary information for achieving a transparent and accountable system within the project. (v) Decentralization: Another important issue that the project would like to address is with regard to establishment of a decentralized governance mechanisms in implementation of OCTDM project. (vi) Land Encroachment and Acquisition: The project will cover only the existing tanks and therefore new land acquisition is expected to be minimal. However there might be some encroachment of existing land under the reservoir area. Also the existing distributory system is completely or partially derelict and non-existing in majority of the tank systems. Land will have to be acquired for tank systems where distributory systems are non-existent or not correctly aligned. Encroachment issues on silted canal systems will also be an issue to be taken into consideration in the project design. The major land related issues which have emerged after looking at the project requirements from an engineering perspective are – Encroachment (tank bed and distributory system) and Land Acquisition (aligning distributory systems and non-existent distributory systems) (vii) Tribal development issues: Scheduled Tribe communities/population in the project area (29 districts) will be covered under the project. According to World Bank, for all investment projects of the Bank in which Indigenous People are present or have “collective attachment” to the project area, it becomes essential for the borrower to identify Indigenous Population likely to be covered or affected by the proposed project. As per the study findings, the specific issues associated with tribal development are: lack of awareness and access to information; subsistence resource base; dominance of other caste groups; poor access to credit, market and other institutions; lack of capacity to manage O&M of tanks; limited practice of alternative livelihoods; etc. In order to address such issues, a specific Tribal Development Plan has been developed. (viii) Livelihood support: the project has planned to earmark 18% of the total funds towards providing livelihood supports to different tank users so that they effectively tap the tank resource for improving their livelihoods. (ix) Capacity Support and Capacity Building issues: Capacity of stakeholders to manage and execute programs at different levels (community, block, district and state level) of project operation is another important issue or challenge before the project. The capacity issues can be broadly categorized as capacity support issues and capacity building issues. Under capacity building issues, the tank users or the community level stakeholder groups e.g. Pani Panchayat members, Fishery group members, etc. do not have the required technical, operational and managerial capacity to manage the operation and maintenance of tanks systems, manage Pani Panchayat activities and also take-up various livelihood options. For which, the capacity of the community level groups and institutions need to be developed so that they themselves are able to take-up various community level initiatives such as operation and maintenance of tank systems, livelihood promotion, mobilization of community contributions, etc. On the other side, these community level stakeholders would require support from the project especially in terms of linking them with various government departments, establishing linkage with credit institutions, establishing market linkage, etc.

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(x) Gender Issues: Women are one of the key constituencies who have large stake but limited influence and their inclusion in usage ad livelihood system is critical for the project (xi) Convergence across departments: The departments directly associated with tank projects are MI, fishery, Agriculture, Revenue, Panchayati Raj and SC&ST Development departments. However during consultations with these departments, the study team could hardly find any inter-departmental convergence in terms of setting up of a common agenda and action plan; common execution strategy; joint monitoring and supervision, etc. for management of tank systems and improving tank based livelihoods. (xii) Sense of ownership and project sustainability: To address some of these issues, the project has taken some important stands particularly in terms of ensuring following commitment from the users before start of the renovation work or even before selecting a tank for rehabilitation: community willingness to participate in the rehabilitation by contributing 10% of the cost of rehabilitation (5% upfront in cash); undertake operation, maintenance and management after the renovation work is being done; undertake responsibility for collection of water charges and management of the fund for undertaking satisfactory maintenance work

IX. Design elements to approach the issues

Inclusion and equity

35. While selecting the tanks for renovation, the major issue before the project is to see, which are the districts and the blocks (under each district) that needs to be included so that the most marginalized population of the state gets the maximum benefit out of the investments proposed under the project. Keeping in view of this, the tank selection criteria has been developed by OCTDM project team on the basis of preliminary findings of various preparatory studies undertaken in the project. Also, feedbacks from various state and district level stakeholders have been taken into account for developing the tank selection criteria. The details about the tank selection criteria are presented below: i. Tanks in which major repairs/renovation has been taken up during last five years under any scheme of GoI or GoO have been deleted ii. Tanks have not been considered where the gap ayacut i.e. difference between the designed ayacut and the actual ayacut is less than 20% iii. Tanks where actual ayacut is more than the designed ayacut have been omitted iv. Completely derelict tanks have been ignored except the smaller ones (40 ha to 100 ha ayacut) which can be renovated with World Bank cost norms.

36. In total, 1572 tanks have been identified for renovation under the project, based on the application the above tank selection criteria. Of these 1572 tanks, decision has been taken to renovate 300 tanks each in Batch-I (i.e. from 2008 to 2010), Batch-II (i.e. from 2009 to 2011) and Batch-III (i.e. from 2010 to 2013). All the 29 districts in the State where MI projects exist have been selected for OCTDM project operation. Only Jagatsinghpur district has not been included as there is no MI project in the district. The districts which have been selected include both tribal and non-tribal dominated districts. Specific initiative has been taken for selection of tanks in those blocks where the ST and SC population is more than 25%. Out of 221 blocks to be covered under the project in 29 districts, 187 i.e. 85% blocks have been identified where the ST and SC population is more than 25%.

37. Apart from taking care of the inclusion of STs and SCs, the project has also taken the decision to cover all the water user groups in the community under an integrated livelihood promotion initiative. In this regard, some project level decisions has been taken such as stepping ahead to include fishery group as part of PP and amendment of PP act to enlarge its scope for

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inclusion of various other water user groups. The project is also in the process of developing specific plans to include and benefit the landless, marginal farmers, share croppers, tail end farmers, duck rearing groups, brick makers, washer man, women, etc. through various livelihood promotion activities.

Cohesion and stakeholder participation

38. Various community level institutions such as Pani Panchayat, Fishery Cooperative Society and other community level groups will be promoted with an aim to use them as a vehicle to enhance the level of stakeholder participation and also use them to resolve community level conflicts. The following social and institutional interventions have been planned under the project to ensure cohesiveness within the community and activate stakeholders’ participation: ƒ Creation of an enabling environment by resolving inter and intra stakeholder groups conflicts at the community level through sensitization and awareness generation programs ƒ Formation of water user associations at tank level and a network of water users at the Block level ƒ Capacity building or training (class room & on-field training) or orientation of various stakeholders ƒ Preparation of an integrated micro level plan by various stakeholders and role delineation among different stakeholders ƒ Mobilization of tank users’ participation in tank renovation work and in operation & maintenance work ƒ Community level monitoring and supervision ƒ Handing over of project management work to tank users’ association

Transparency and accountability

39. The project operational structure has been designed in line with maintaining a transparent and accountable system starting from state level to tank level. A three tier project operational structure viz. State level, District level and Tank-Village level has been developed for implementation of the project. At the State level OCTDM society has been set-up under Department of WR to coordinate the overall implementation of the project. Under the society, a State Project Unit has been established, headed by a Project Director which consists of six operational units such as Technical, Livelihoods, Institution Building, M,E&L unit, Communication and Financial Mgt. and Procurement Unit. A District Level Implementation Committee will be also formed, headed by District Collector as the Chairman of the committee. Apart from state and district level set up, Support Agencies will be appointed by the DPU to execute the operational plan at the tank level along with JE/AE of MI department.

40. In order to establish an accountable and transparent mechanism, greater emphasis has been given to establish an M&E system that provides timely and necessary information for achieving the same. Therefore, from the very beginning the project would like to set clear deliverables for which process has been started to establish baseline status and set up output/process, outcome and impact indicators so that the progress against the same can be measured from time to time. This would help to not only set right the accountability mechanism but also provide platform for maintaining transparency within and outside the project with regard to achievement of necessary project outputs. Through establishment of an effective M&E system, the project would also like to assess utilization of funds vis-à-vis quality of activities undertaken under the project and set right the same if there are any deviances. Keeping in mind the importance of establishment of M&E system, the project therefore has placed the provision of M&E expert at state level and district level project operation. (The project operational structure is given hereunder)

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PROJECT OPERATIONAL STRUCTURE

PROJECT LEVEL COMMUNITY LEVEL

State District Tanks Tank Village

OCTDMS District Level Support Implementation Committee Organization (s) A team of 3 Community members – one level groups person each for such as social farmer, State Project Unit District Project Unit mobilization, fisheries and Project Director District Project Director technical women Executive Engineer support and forums livelihoods

Water User P P P Additional Project Director Networks P P P

1. Technical Unit 1. Technical Unit 2. Livelihoods Unit 2. Livelihoods Unit 3. Institutional Building 3. Institutional Building 4. Monitoring, Evaluation & Learning 4. Monitoring, Evaluation & Learning 5. Communication 5. Communication 6. Financial Mgt. & Procurement Unit 6. Financial Mgt. & Procurement Unit

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Decentralization

41. Another important issue that the project would like to address is with regard to establishment of a decentralized governance mechanisms in implementation of OCTDM project. The basic idea behind this is to adopt a need based implementation mechanism instead of going for a top-down approach of implementing a project. The advantage in this is to design and implement a program based on exact requirements of people. Hence, certain initiatives have already been taken and also would like to take for establishment of a need based implementation mechanism.

42. The initiatives that have already been taken are as follows:

ƒ Carried out social, hydrological, institutional and livelihood assessment studies prior to implementation of the project – one of the major thrusts in the studies conducted was to employ participatory tools with an aim to provide scope to stakeholders to assess and analyse their own problems and priorities and then suggest measures to address the same.

ƒ Conducted state and district level stakeholder consultation workshops which was participated by stakeholders at tank, block, district and state level. In these workshops, the project discussed the problems and priorities of people and took inputs and suggestion from stakeholders on overall project planning and designing.

ƒ Designed the project operational structure in such a way where greater emphasis is being given to District Project Unit to lead the whole implementation process starting from planning to decision making and project management. As per this operational structure, the district Collector will be the Chairman of the DPU and the Executive Engineer will act as the District Project Director. The funds will be placed to District Project Unit for implementation of project activities at district level. As the Chairman of district project unit, the district Collector will review and approve the planning process and implementation of activities.

43. Besides all the above, the following are some of the initiatives that the project would like to take up while implementing the program:

ƒ Initiation of bottom-up planning process: The whole idea in this is to first start with tank level micro-plans and then move to next level of planning at block, district and state level. As a result of this bottom-up planning process, the exact needs of people can be identified based on which the project can plan appropriate initiatives at block, district and state level to fulfill those needs.

ƒ As part of decentralization process, the project would also like to initiate a mechanism so that after renovation of tanks, the same can be handed over to Pani Panchayat for operation and maintenance. The idea is to give greater control to people for management of tank systems.

ƒ The project has also decided to take initiative in expanding the scope of Pani Panchayat so that all the water users can participate and have a say as far as tank management is concerned. Through this initiative, the project would like to establish a decentralized tank management system where all the users have the scope to contribute against the present system, where only farmers have been given the scope to be part of Pani Panchayat under PP act.

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Livelihood Support

44. The following key interventions have been planned to extend livelihood support under the project.

Livelihood Interventions Livelihood Interventions Sector Sector Agriculture ƒ Integrated plant nutrient Horticulture ƒ Vegetable cultivation management with emphasis on Development ƒ Off-Season Vegetable Cultivation / spices / fortified compost, NADEP Pit bulk crop / aromatic and Vermi-compost ƒ Bio Based IPM demonstrations in vegetables ƒ Integrated crop management ƒ Organic Farming ƒ Integrated Pest Management ƒ Low cost poly house / shed net nursery ƒ SRI cultivation ƒ Seed Grid Foreshore ƒ Effective utilization of tank Livestock ƒ Expanded Breeding improvement services Plantation foreshore areas. Production rendered at doorstep by the AI through (FSP) ƒ Introduction of foreshore System (LPS) Gomitras/LI and formation of breeder plantation for resources association mobilization for Pani Panchayat ƒ Control breeding program in cattle through for tank management and hormonal heat induction maintenance. ƒ Development of fodder crop ƒ Improving the situation of fodder ƒ Introduction of proven Ram/ Buck for higher and fuel wood in tank areas. meat productivity. ƒ Helping natural resource ƒ Animal health /mastitis control/nutritional regeneration supplement/vaccination/ de-worming camps. ƒ Information, Education and Communication linkage for sustainability ƒ Strengthening of Capacities of Gomitra’s ƒ Support facility for livestock development (dairy farming/goiter/ sheep/duckery/Broiler) to landless farmers Fisheries ƒ Determination of MWSA of tank Household ƒ Demonstration on mushroom, backyard Production ƒ Construction of Community Production poultry, kitchen garden, value added System Captive nursery System (HhPS) products (FPS) ƒ Construction of fish pit (trench) ƒ Other income generating activities for SHGs for short seasonal tanks ƒ Training of Women Groups ƒ Promotion of pen culture ƒ Exposure visit of women ƒ Stocking of quality fish seed ƒ Farmer-Scientist Interaction (advanced fingerlings/ yearlings) ƒ Facilitation of market linkage PPP mode ƒ Feed Supplements ƒ Barricading spillway & sluice gate ƒ Ensure scientific management practice through the field machinery of Fisheries Department ƒ Provision of adequate number of fishing crafts and gears for harvesting Agriculture ƒ Establishment of CARM Centers Institutional ƒ Policy level modifications and changes Marketing at ten-tank clusters Service delivery ƒ Convergence of various departments at System ƒ Operationalization of FFS block, district and state level (formation and (AMS) ƒ Cost reduction through agri- strengthening of project steering committee) inputs mgt. by the CARM ƒ Development of an integrated action plan ƒ Market-led production and strategy in keeping into account the ƒ Group formation micro level plan developed by tank users and ƒ Value addition and promotion of execution of the same ‘local brands’ ƒ Orientation on appropriate technologies

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Livelihood Interventions Livelihood Interventions Sector Sector ƒ Contract farming ƒ Technology demonstrations ƒ Market information support ƒ Krushak melas ƒ Maha Krushak melas ƒ Farmers’ trainings ƒ National level trainings for farmers ƒ Master Farmer Trainer’s training ƒ Skill Development Training for Agricultural Labourers ƒ Training of SO, line dept and resource persons ƒ Exposure visit on technology adoption and market led production areas within and outside the state.

Convergence

45. Specific emphasis has been laid in this project to achieve inter departmental coordination so that an integrated development approach can be adopted under the project by effective channelisation and dovetail of funds and resources for promotion of tank based livelihoods.

46. The plans that have already been made in this regard are as follows:

ƒ Setting up of District Project Unit under the Chairmanship of District Collector so that the Collector who is the head of the district can actually take up initiatives to bring all the departments in one platform and dovetail / channelize resources for the benefit of common mass under the tank system. ƒ Taking support of revenue department for acquisition of lands (wherever necessary) and also take the support of same department to provide lands to landless encroachers in lieu of displacing them from the tank bed encroachments. ƒ Taking support of fishery department in formation of Primary Fishery Cooperative Society and channelising infrastructural and resource support from the department for profitable pisciculture activity under a tank system. ƒ Taking support of SC&ST development department for specifically benefiting these vulnerable groups by linking them under various programs implemented under the department ƒ Taking support of Panchayati Raj department for effective engagement of PRIs in both schedule and non-schedule areas especially in terms of mobilizing community, developing community level micro-plans, identification of beneficiaries, monitoring and supervision, etc. ƒ Taking support of Agriculture departments for establishment of extension counters, crop diversification, foreshore cultivation, transfer of technical know-how to farmers, etc. ƒ Similar plans have been also developed to channelise support from Veterinary, Horticulture, Forest and Soil Conservation departments.

Capacity Building and Capacity Support

47. For effective execution of project deliverables, the OCTDM project has to take-up the following capacity building measures at the community level:

ƒ Understanding to take up micro level planning ƒ Capacity to assess own problems and priorities ƒ Capacity to form water users’ institution ƒ Knowledge and skills to manage water users’ institution

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ƒ Technical skill to take-up tank operation and maintenance work ƒ Skills to mobilize community for generation of community contribution ƒ Knowledge and skills to take-up various tank based livelihood options ƒ Negotiation skills for resolving inter and intra stakeholder conflicts and personal differences ƒ Advocacy skills to demand for services

48. Apart from the above capacity building initiatives, decision has been taken to employ Support Agencies which would provide support at the tank level on community mobilization, livelihood promotion; facilitation of linkage between community with various government departments, financial institutions and market; etc.

Land Acquisition

49. As discussed new land acquisition is expected to be minimal. However, there might be some encroachment of existing land under the reservoir area. Besides, land will have to be acquired for tank systems where distributory systems are non-existent or not correctly aligned. In view of this a detail framework has been designed which is given in the chapter on rules for securing land.

Tribal Development

50. Considering poor socio-economic backwardness and vulnerability, development of tribals especially in the Scheduled Areas of the state is being given utmost importance in the project. As per the study findings, the specific issues that would require project interventions are: lack of awareness and access to information; subsistence resource base; dominance of other caste groups; poor access to credit, market and other institutions; lack of capacity to manage O&M of tanks; limited practice of alternative livelihoods; etc. In order to address such issues, a detail Tribal Development Plan has been developed and presented in the chapter on Tribal Development Plan.

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6 Orissa Tank Rehabilitation – Process Map Cycle*

Sl Activity Responsibility Review/ No Primary Secondary Assoc. Approval

Identification Phase 1 Identification -- Preparation of Long List of Tanks MI – WR Department DPU (Technical Unit) SPU (Technical Unit) GoO

Pre-Planning Phase 2 Orienting Line Departments – Water Resources, Agriculture, & Animal DPU SPU GoO Resources, Fisheries, Revenue, SC/ST Department, Women and Child welfare 3 Deployment of, and orienting Support Organizations DPU SPU 4 Launch IEC Campaign SO DPU(Communication unit) SPU (Communication unit) SPU 5 Preliminary Hydrological and Engineering Assessments MI – WR Department DPU (Technical Unit) SPU (Technical Unit) GoO 6 Environmental Assessments MI – WR Department DPU (Technical Unit) SPU (Technical Unit) GoO 7 Preliminary Estimation of Land Requirements – Encroachment and/ LAO, PP RI / Tehsildar DPU GoO Acquisitions 8 Preliminary Estimation of Tribal population in tank commands PP/GP/SO DPU 9 Preliminary Cost and Community Contribution computations DPU GoO 10 Technical Feasibility Done MI – WR Department DPU (Technical Unit) SPU (Technical Unit) GoO 11 DECISION: GO / NO GO MI – WR Department DPU (Technical Unit) SPU (Technical Unit) GoO 12 Community Endorses Participation (Gram Sabha/Pallisabha) in case of PP/GP SO DPU (IB unit) SPU Scheduled areas 13 Tank Selection Completion MI – WR Department DPU (Technical Unit) SPU (Technical Unit) GoO 14 Schemes Approved (Gram Panchayat in case of Scheduled Areas) MI – WR Department DPU (Technical Unit) SPU (Technical Unit) GoO

Planning Phase 15 Community Mobilized and PP formed/ renewed SO DPU (IB unit) SPU (IB unit) SPU 16 Socio-Economic Survey SPU GoO 17 Engineering Surveys MI – WR Department DPU (Technical Unit) SPU (Technical Unit) GoO 18 Identification of Encroachers and Assessment of lands to be acquired PP and LAO SO and DPU SPU GoO 19 Resettlement Action Plan Prepared LAO,RI/Tehsildar, SPU GoO - Entitlements Matrix DPU - Implementation Plan Agreed 20 Tribal Development Plan (TDP) Prepared PP SO DPU 21 Engineering Designing and Cost Estimates MI – WR Department DPU (Technical Unit) SPU (Technical Unit) GoO 22 Community Capacity Building Plans PP & SO DPU (IB unit) SPU (IB unit) SPU 23 Livelihood Assistance Plan PP & SO DPU (Livelihood unit) SPU (Livelihood unit) SPU 24 Environment Management Plan MI – WR Department DPU (Technical Unit) SPU (Technical Unit) SPU 25 Gender Action Plan PP & SO DPU (IB Unit) SPU (IB unit) SPU 26 Community Cost Contribution plan prepared and started - 5% upfront PP & SO DPU SPU ______Verve Consulting 37 Orissa Community Tank Management Project Social Assessment

Sl Activity Responsibility Review/ No Primary Secondary Assoc. Approval cash contribution (out of the 10% contribution by the community) 27 Micro Plan Prepared PP SO DPU SPU 28 AGREE-TO-DO: PLEDGED PP GoO 29 Micro-plan aggregated into TIMP - MOU Signed PP DPU and SO SPU

Implementation Phase 30 Implementation of capacity building plan of PP SO DPU (IB unit) SPU (IB unit) SPU - Training on leadership, accounts, water management, livelihood issues, etc. - Exposure visit 31 Service providers (Contractors) mobilized – contracts finalized MI – WR Department DPU (Technical Unit) SPU (Technical Unit) GoO 32 Community contribution received (O&M fund created) – The balance PP DPU SPU 5% community contribution mobilized in labour/cash 33 Implementation of RAP LAO, RI/Tehsildar, SPU GoO - Public notification DPU Collector - Consultation (Gram Sabha/Palli Sabha approval in case of scheduled Financial area) Adviser, - Approval of list of PAFs and notification WRD - Firming up of RAP, Livelihood Assistance Plan - Release of funds - Acquisition process started and possession - Compensation awarded 34 Implementation of Gender Action Plan (GAP) 35 Implementation of Environmental Management Plan started MI – WR Department DPU (Technical Unit) SPU (Technical Unit) SPU - Tank safety - Integrated Pest Management (IPM) / Integrated Pest & Nutrient Mgt. (IPNM) - Water management (water allocation, distribution and drainage) 36 Civil (tank renovation) work started MI – WR Department DPU (Technical Unit) SPU (Technical Unit) SPU 37 PP engaged in tank renovation work PP & SO DPU SPU 38 Livelihood assistance initiatives started (for PAFs and others) PP & SO DPU (Livelihood unit) SPU (Livelihood unit) SPU - Training, demonstration, credit linkage, dovetailing of resources under govt. programs, credit linkage, etc. - Market linkage, exhibitions/buyer-seller meets 39 Tank civil work completion certificate issued PP DPU SPU 40 Social Auditing undertaken PP SO and DPU (IB Unit) SPU (IB Unit) SPU 41 O&M plan prepared PP SO DPU SPU Consolidation Phase 42 PPs trained on O&M and started contributing in O&M SO & DPU MI – WR Department SPU 43 Network of PPs formed PP & SO DPU SPU ______Verve Consulting 38 Orissa Community Tank Management Project Social Assessment

Sl Activity Responsibility Review/ No Primary Secondary Assoc. Approval 44 Vision building and future course of action of PP, MI and other PP, SO and MI DPU SPU departments finalized department 45 MOU signed with MI and PP on tank O&M PP and MI dept. DPU SPU 46 Sub-project Evaluation (General project evaluation and specific SPU DPU World Bank GoO evaluation of impact of rehabilitation on PAFs) - Income level of PAFs restoration - Livelihoods for PAFs: Establishment and Improvement - Income level of other tank users enhancement - Livelihoods of other tank users establishment - Gender Impact Assessments 47 Submission of Sub-project completion report SPU GoO * Abridged Version. Detailed one is available in Project Implementation Plan (PIP) Abbreviations: PP-Pani Panchayat; SO-Support Organisation; GP-Gram Panchayat; SPU-State Project Unit; DPU-District Project Unit; LAO-Land Acquisition Officer; RI-Revenue Inspector; MI-Minor Irrigation, WR-Water Resource, IB Unit: Institutional Building Unit

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X. Major risks and assumptions in the project

51. The social risks that the project may come across are:

ƒ The project may not get support from those tank bed encroachers (especially landless and marginal farmers) if proper measures are not initiated towards payment of compensation and rehabilitation of their households ƒ The project implementation process may be delayed if the land acquisition process is not completed on time ƒ The project may face conflict between farmers’ and fishers’ group if policy level issues are not addressed for institutionalization of all water users in one platform ƒ The project may face strong opposition from tail end farmers if their interests are not fulfilled ƒ The project may face serious objection from the farmers if the tank renovation work is given to the individual contractors and not to the PP/farmers ƒ The project may find difficulties to mobilize farmers if the tank renovation work is handed over to individual contractors ƒ The project may face opposition from vested interest groups if the project tries to re-unite and reconstitute the Governing Body and Executive Body of Pani Panchayat ƒ The project may not achieve its objectives within the stipulated time period if more time is consumed in redefining systems and addressing policy level issues for effective convergence of various government departments.

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Annexure

Study on Review of “Orissa Pani Panchayat Act, 2002 and Assessment of the Institutional Capacity of Selected 20 Pani Panchayats”

Brief Note on Emerging Issues / Challenges to PIM in Orissa and Specific Recommendations

The PIM in Orissa is enriched by several field experiences derived from projects like European Commission aided projects and Water Resources Consolidation Project from 1990s. These experiments at the grass-root helped to formulate the policies at the state level and define a “long-term direction” to PIM in Orissa. The PP Act which was formulated in 2002, with subsequent rule and notifications, are the “instruments” for up-scaling PIM in entire state. Though the up-scaling process of PIM is in “nascent stage” in Orissa, the ground experiences generated so far provide clear long-term directions.

Following are the emerging issues / challenges that the Orissa has to address for advancing the PIM in the State:

1. Full cost recovery of O & M for irrigation Though the full cost recovery has been on the top of agenda for all the States promoting the PIM, the actual rates recovered are reported to be far lower than the actual costs of O & M. In 1991, the Vaidyanathan Committee of the Planning Commission on pricing of irrigation water mentioned that on an average the revenue collection was Rs.50 per ha as against the O & M requirement of Rs.250 per ha. The report highlighted the need for rationalization of water rates so as to meet the expenditure on O & M of the system. During later years, many states revised water rates but the revised rates were still lower than the actual costs of O & M, continuing the subsidies from governments in the form of grants, incentives etc.

Few states such as Andhra Pradesh, Maharashtra and Karnataka tried institutional financing of irrigation projects by formulating Irrigation Corporations, as an alternative way of raising finances to the irrigation projects. But, their performance has not been satisfactory. The reason being they could not recover full cost of O & M due to political interferences and inefficient management systems. In EC aided projects in Orissa, though the O & M cost recovery is assigned to the PPs, the rates fixed by the PPs are lower than the prescribed rates by Government in majority of the cases. In other words, they are not yet “tuned” to recovery of actual cost of O & M.

2. Sustaining the PIM movement Growing gap between the irrigation potential created and actual utilization is a persistent and growing problem faced by all the States in India (perhaps in other countries also) and also across major, medium and minor projects. Lack of sufficient investments for the up-keep of the distribution systems has been quoted as the single most reason for this situation. It is a fact, that the States are not able to mobilize resources for this purpose, while few alternative routes (such as, irrigation corporations floating public bonds) were explored for financing new projects. Promotion of PIM is perceived as the panacea to this issue by all the States. To sustain the PIM movement, the isolated learnings in experimental projects need to be scaled-up without loosing the “qualitative ingredients” of them.

At the micro level, this issue is strongly connected with the sustainability of the irrigation management by people. One of the strong driving factors for PPs is the financial soundness. The

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ability of PP in raising resources locally, in terms of water rates, is directly related to the availability of water to all the users, including those in tail end.

Poor distribution system, with some people deprived of water and some people enjoying the benefits, results in poor water rate collections and hence the poor chances of sustainability of the PP institution. There are several instances where farmers not being happy with the one-sided water charge demand assessment done by Revenue Department. Realistic assessment of the irrigated area for water charge collection will resolve many a disputes and will have major contribution to the performance to the PPs. Unless, these “root causes” are not addressed, entire irrigation reforms are bound to fail.

3. Transforming the PP into an “inclusive social institution” Women, by tradition, do not own land in their names in Indian society. Equal rights on properties are yet to be implemented, though the legislations exist. Though women contribute to the agriculture in a significant way, the decision making space in irrigation sector is completely dominated by men. The farmers’ organizations, with men belonging to dominant caste / occupational group at the helm of affairs, are increasingly becoming political, conflict inflicting and promoting groupism. In this process, minority occupational groups (fishermen, washer men etc.) depending on tanks are marginalized.

The PPs in Orissa are no exception. The existing legislations strengthened this skewed social configuration, more by chance than by choice. In order to transform the PPs into an inclusive social institution, this issue needs to be addressed “on first priority”. The participation of women and other occupational groups depending on the tanks not only makes these institutions more inclusive but also contributes to the social harmony.

4. Service Delivery Mechanisms for Effective Capacity Building of PPs Transfer of knowledge and making the PP capable of managing the affair of irrigation systems is the “weakest link” in the PIM scenario not only in Orissa but also elsewhere.

The necessary “support structures and systems” were given least emphasis in earlier pilot experiments. Adhoc support mechanisms, such as engaging an NGO for community mobilization etc., were done but a long-term thinking on building a “permanent support system and delivery mechanism” within the line departments was not conceived. The existing skills / expertise available with various institutions / individual remained in isolation without much interaction and collective efforts. By and large, the necessary expertise is available within the state but the “delivery of knowledge” is not happening at an optimum level. This “delivery mechanism” needs to be improved, not only in specific projects but as a permanent measure across the state.

5. Shift from “Irrigation Management” to “Livelihoods Enhancement” Irrigation system management and related physical interventions need to be seen as “means” of achieving the desired “end”, i.e., the “livelihoods enhancement”.

The current thinking of “success” of a PP is related to its performance of its functions detailed in the PP Act and absence of any conflicts within the PP and EC. There is no reliable data available on the contribution of PIM on “livelihoods enhancement” and very few studies focused on this. The reporting on performance of PIM is limited to number of PPs formed and registered and at best about the rate of water charge collection in the PPs.

Analysis of PIMs contribution to livelihoods enhancement in irrigation and other sectors, if any, need to be given due emphasis in M & E systems of the programme.

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Specific Recommendation for Policy Improvement:

(a) Recommendations requiring amendments to the PP Act and Rules

• The definition of “water user” may be broadened to include any individual or body corporate or a society using water for agriculture, other livelihood (such as fisheries, livestock rearing, washing cloths, brick-making etc.) and domestic purposes either from surface water or from groundwater both from the tank system directly and in the command area. • The definition of a “Chak” amended as area irrigated by one or more “outlets” and each PP to have at least 4 Chaks and not more than 12 Chaks. • All minor water bodies having command less than 40 ha may be taken up by forming PP as sub-committees of the Gram Panchayats. • Land-holders definition may be modified so as to include farmers cultivating govt. lands in the command area, but without voting rights. • PPs to be empowered to collect taxes from groundwater users in the command (both exclusive and conjunctive users), cultivators who occupied government lands and assigned land holders. rd • Composition of PP amended as “landholding and non-landholding water users”. 1/3 EC seats reserved for women. If not elected from Chaks, 1/3rd of EC members may be nominated from among the women. One member from every category of stakeholder group to be elected to the Executive Committee. Two positions to be reserved for SC / ST communities in Executive Committee. • Tenure of PP extended from 3 years to 6 years, with half of the EC members retiring every 3 years. • Recall motion against the President even within one year after election to make the President more accountable to the General Body. • OREGS guidelines may be modified empowering PP, instead of GPs, to anchor the projects related to “field channel renovation work” • PPs handed-over the right to auction / right to assign fishing and collect revenue in absence of a fishermen cooperative. • The preparation of roles and conduct of elections shifted to Revenue Department. • Long term goal is towards PPs pay bulk rates to the WR Dept while collect and retain the water charges with them. Immediately, relate the grants given to the PPs with the water charge collections. • Complete system rehabilitation including restoring the distribution system to optimum performance as a pre-condition for handing-over to PPs.

(b) Recommendations requiring issue of GOs / Notifications

• Increase the agreement period (between WR department and PP) from 2 to 3 years. • Include maintenance of feeder channels as one of the functions of the PP. • Allocate a fair share of revenue from auction of fishing rights to PPs, which is now going to fisheries department and small royalty to WR Dept. • Enhance the present limit of Rs.50,000 for PPs to carry out works on their own using the grants received by them to at least Rs.5,00,000. • Implements projects such as RRR, BKVY by transferring funds to PPs. • Link the grants given to the PPs with the water tax collected from the command area, while assuring a minimum grant of Rs.100 / ha as per present rules. • While taking up the system rehabilitation (before handing-over to PP), make the people’s contribution compulsory, either in the form of cash or kind.

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(c) Recommendations required to be taken up as a part of programmes

• On an experimental basis, introduce full cost recovery of O & M in a “demand-driven approach”. • Encourage Chak Committee to formulate projects under OREGS for renovation of field channels and Govt. may give priority to these projects while implementing OREGS. • Promote the use of complaints box system in PPs to take grievances from members on continuous basis. • Install a revolving fund at PP level for farm loans etc., instead of grants in the form of hardware, machinery etc. • Establish a permanent multi-faceted system / structure at the state level by involving “consortium of support institutions” including Government and Non-Government agencies. Also, develop a panel of resource agencies in each district (including NGOs) through a transparent and consultative process. • Introduce M & E systems at district and state level which continuously monitor, collect information, collate and report on the contribution to “enhancement in different tank based livelihoods”. • Encourage conjunctive use of groundwater in the command area, particularly in tail-end areas and provide incentives for efficient water use methods such as SRI and micro- irrigation. • Provide financial support for group irrigation wells in tail end areas. • Introduce capacity building modules on participatory hydrological monitoring and conjunctive use of surface and groundwater. • Form District and State level forums of PPs for lateral linkages, cross-learning and realizing the collective strengthens in calamities and processing and marketing of agricultural produces.

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