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The Politics of Policy : Participatory Irrigation

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The Politics of Policy : Participatory Irrigation THE POLITICS OF POLICY Participatory Irrigation Management in Andhra Pradesh BALA RAJU NIKKII Propositions 1. Participatory Irrigation Management in Andhra Pradesh is designed to transfer irrigation management functions including the financing of irrigation works from irrigation agency to the users. Its proponents stress that this aspect has to be made very clear when the process of transfer is introduced. This is precisely what is not being informed to users under the Andhra Pradesh irrigation reforms. (This Thesis) 2. The critical thing to understand is not where the seed comes from, but what makes the soil fertile. (John Kingdon, 2002, Agendas, Alternatives, and Public Policies. John "Wiley). The critical thing to understand is not only where a policy comes from, but also what makes this policy translate on the ground in what ways and in which directions. {This Thesis) 3. There can be no one definition of policy analysis (Aaron Wildavsky, 1979:15, Speaking Truth to Power The Art and Craft of Policy Analysis, Little Brown) 4. Policy analysis is where the daily concerns of ordinary people interface with the most fundamental questions about the nature of reality and knowledge. (Goktug Morcol, 2002. A New Mind for Policy Analysis, Greenwood Publishing Housej 5. Participatory Irrigation Management (PIM) cannot become a reality nor can it become self-sustaining without restructuring of the state irrigation departments, and the bureaucracy is unlikely to initiate such change. (K.JLSingh,2000. Participatory Irrigation Management: Paradigm for the 21st Century, Rawat Publications). Reform should be neither too fast nor too slow. In some cases, reforms have been more successful on paper than on the ground. Hasty handover and speedy reforms, as in Andhra Pradesh, tend to deny new institutions the time they need to mature and become sustainable. (Asian Development Bank, Final Synthesis Report 2005: 31-32). Leadership is one of the most observed and least understood phenomena on earth. (James Macgregor Burns, leadership, 1978, Harper and Row Publishers) Propositions attached to the thesis: The Politics of Policy: Participatory Irrigation Management in Andhra Pradesh Bala Raju Nikku Wageningen University Monday 18 December 2006 THE POLITICS OF POLICY Participatory Irrigation Management in Andhra Pradesh BALA RAJU NIKKU Promotor: Pro£ Dr. Linden F. Vincent, Hoogleraar in de Irrigatie en Waterboukunde, Wageningen Universiteit Co-promotoren: Dr. Peter P. Mollinga, Associate Professor, ZEF, University of Bonn, Germany Dr. Dik Roth, Universitair Docent, Leerstoelgroep Recht en Bestuur, Wageningen Universiteit Promotiecomrnissie: Prof. Dr. L.E. Visser, Wageningen Universiteit Prof. Dr. R. Parthasarathy, Gujarat Institute of Development Research, India. Dr. J. Oorthuizen, Learning For Change, Wageningen. Dr. I. van der Molen, Universiteit Twente. Dit onderzoek is uitgevoerd binnen de onderzoeksschool CERES THE POLITICS OF POLICY Participatory Irrigation Management in Andhra Pradesh BALA RAJU NIKKU Proefschrift Ter verlmjging van de graad van doctor op gezag van de rector magnificus van Wageningen Universiteit Prof. Dr. MJ. Kropff in het openbaar te verdedigen op maandag 18 december 2006 des namiddags te 13:30 uur in de Aula THE POLITICS OF POLICY: Participatory Irrigation Management in Andhra Pradesh. Wageningen University. Promoter: Professor L.F. Vincent,-Wageningen: Bala Raju Nikku 2006. p. 284. ISBN 90-8504-543-6 Copyright© 2006, by Bala Raju Nikku, Kathmandu, Nepal This thesis will also be published by Orient Longman, Hyderabad, India in the Wageningen University Water Resource Series. Dedicated to My late Grandfather My Parents: Ramulamma and Harisatyanaryana Nikku My mother in law Pramila Udas And to my Teachers Contents List of figures m List of tables viii List of maps x List of boxes xi Glossary xü Abbreviations xiv Preface xvi 1 Introduction 1 2 Understanding Policy Processes 16 A Conceptual Framework 3 Legislation and Policy 48 The Emergence of Participatory Irrigation Management 4 Madfaira Branch Canal 82 The Social Organisation of an Irrigation System 5 Maintenance and Rehabilitation 106 An Anna of Policy Contestation 6 The Myth of Irrigation Expansion 146 7 Joint Azmoish 174 An Arena of Irrigation Revenue Generation 8 Bureaucracy and Irrigation Reform 211 Public Duties and Social Settings 9 Conclusions 238 Epilogue 247 References 256 English Summary 281 Curriculum Vitae 284 m Figures 2.1 Analytical Framework 39 3.1 Organisational Structure of the Irrigation Department 63 3.2 The Channels of Communication 72 4.1 WUA Structure 87 5.1 Une Diagram of Punyapuram Major 124 vii Tables 3.1 Flan investments, irrigation potential created and 61 irrigation potential utilised in AP 3.2 Irrigation Potential Created under Different Plan 64 Period in Andhra Pradesh 4.1 Abstract of WUAs formed in the State (1997) 86 4.2 WUA Jurisdiction and Command Villages under 88 Madhira irrigation sub-division 4.3 Formation of WUA per District under NS Left Canal 89 4.4 Leadership and Caste Representation in WUA 174 94 (2002) 5.1 Pattern of state budget expenditure on different 110 sectors 5.2 Profile of AP plan expenditure and Irrigation 111 Potential Created 5.3 Funds allocation to WUAs for MR works (Rs/ha) 119 5.4 Pattern of funds utilisation by WUAs in MBC 120 5.5 Irrigation structures and budget allocation (in Rs) 123 5.6 Competent Authority and financial powers 130 5.7 Analysis of Irrigation works under pre and post EMT 137- scenario 138 6.1 Irrigation command area development by source 154 (million ha) 6.2 Command development under N.S Left Canal 155 (•OOOha) 6.3 Circle Level Data (1996- 2000) in ha 156 6.4 Rainfall Pattern in NSP left canal command (in nm) 156 6.5 Pattern of Command development in TekulapaHy 157 Circle (in ha) 6.6 Command area development 1998-99 and 1999-2000 160 (ha) per WUA in Madhira irrigation sub-division 6.7a Command development in Madhira sub-division 161 1997-98 (in ha) by major canal 6.7b Command development in Madhira sub-division 161 1998-99(ha) by major canal via 7.1 Changes in the water charges in A.P (1989-1996) 187 7.2 Cess collection across irrigation systems(1997) 189 7.3 WUA183, Madhira Mandal, Khammam District 191 7.4 Cess Collection in Kalluru and Madhira Irrigation 193 Sub-division (2001-2002) 7.5 WUA Jurisdiction in Madhira Irrigation subdivision 197 8.1 Policy prescription and actual practice 216 ix Maps 1.1 Location of Nagarjunasagar Dam on River Krishna 4 1.2 Location of Madhira Branch Canal and major canals 7 onMBC Boxes 3.1 Pipe committees under SRSP, Andhra Pradesh 58 4.1 Rangam Banjata V illage 90 4.2 Kesavapuram Village 95 4.3 Cropping pattern in WUA171 96-97 4.4 Utukuru Major Canal 100 5.1 Punyapuram Major 122 6.1 Water distribution at night 164-165 xi Glossary irrigated or irrigable area Ayacutdars strike Canalgasti Cess Crore ten milBon rupees Dbama sit-down strike tier of the Gram Pancbqyat introduction of modern technological inputs Green Revolution and high yielding varieties of paddy and rice in agriculture in the late 1960s Khanf first season of the agricultural year, starts May/ June when the monsoon rains begin Lakh One tenth of a million or one hundred thousand Lok Sabha Lower House of Parliament (Central village based land revenue system in Punjab Mandai restructured middle-tier of the Pancbqyat Raj system in Andhra Pradesh Mandai Prey a Parishad middle tier of the Pancbqyat Raj system Panchqyati Raj system of rural localgovernment with three ascending tiers, vi%, Gram Pancbqyat, Mandal and Zilla Parishad Pani Panchyat Water Users Association Prqjala Vaddeku Paalana taking administration to the door steps of the Rastaroko road blockade — a form of protest Rain second season of the agricultural year; starts August!September towards the end of rainy season Ryot cultivator/farmer Ryotwari system land revenue system based on full survey and assessment of cultivable land Sangbam Association Sarpancb chairman of the Gram Pancbqyat— the lower tier of the Pancbqyat Raj system Vana Samraksban Samiti forest protection committee Warabandi proportional distribution of water over outlets by mcuntmningfull supply levels in distributary canals by systematic on and off rotation of these canals Zamindar landlord Zilla Prqja Parisbad elected district council xiii Abbreviations AD Agriculture Department AIBP Accelerated Irrigation Benefit Programe AP Andhra Pradesh APERP (EC) Andhra Pradesh Economic Restructuring Project (Irrigation Component) APERP Andhra Pradesh Economic Restructuring Project APFMIS Act Andhra Pradesh Farmer Management of Irrigation System Act GADA Command Area Development Authority CADProgram Command area development program CNA National Water Commission (Mexico) CMEY Chief Minister Employment (schemes) for Youth DC Distributary Committee DEE Deputy Executive Engineer DWCRA- Development of Women and Children in Rural Areas DWCUA Development of Women and Children in Urban Areas EE Executive Engineer FO Farmer Organisation GoAP Government of Andhra Pradesh I&CADD Irrigation and Command Area Development Department IMT Irrigation Management Transfer INCORA Institute of Agrarian Reform (Colombia) IndiaNPEM Indian Network on Participatory Irrigation Management IP Irrigated potential IRDAS Institute of Resource Development and Social Management ISF Irrigation service fee IUC Irrigation Utilisation Committee JBIC Japan Bank for International Cooperation MBC Madhira Branch Canal MC Managing Committee mha million hectare MLA Member of Legislative Assembly xw MR Minimum Réhabilitation NGO Non-Govemm
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