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This is set of infographics based on the report content (NATIONAL WATER RESOURCES FRAMEWORK STUDY ) for widespread sharing and dissemination. This report was researched and prepared by CEEW, Delhi
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NATIONAL WATER RESOURCES FRAMEWORK STUDY
Core Team Senior Policy Adviser & Project Coordinator: Arunabha Ghosh Senior International Water Resources & Irrigation Specialist: Martin Anthony Burton Senior National Water Resources & Irrigation Specialist: Rahul Sen Senior International Water Supply & Regulation Specialist: Simon Gordon-Walker Senior National Water Supply & Regulation Specialist: Anand K. Jalakam Copyright © 2011 Council on Energy, Environment and Water All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted, in any form or by any means, electronic, mechanical, photocopying, recording or otherwise, without prior permission. A report on a national water resources framework study for the Planning Commission, Government of India. This document is a summary presentation of a report prepared by the Council on Energy, Environment and Water with a research team comprising independent experts. The report was commissioned on the request of the Planning Commission of India to the 2030 Water Resources Group, via the International Finance Corporation. The views expressed in this report are those of the authors and do not necessarily reflect the views and policies of the Council on Energy, Environment and Water or of the 2030 Water Resources Group. The Council on Energy, Environment and Water (CEEW) is an independent, not-for-profit, policy research institution. CEEW works to promote dialogue and common understanding on energy, environment and water issues in India, its region and the wider world, through high quality research, partnerships with public and private institutions, and engagement with and outreach to the wider public. For more information, visit http://www.ceew.in.
India’s Usable Supply of Water
1
1.
India’s Usable Supply of Water Vs
Projected Demand (2030)
2
Sectoral shift in water demand (in BCM)
2.
Business-as-Usual Demand Projections
3
Two premises underlie the need for a sustainable water future
1.
2.
India’s usable supply of water by 2030 could fall short of projected demand by 50%
Sectoral shift in water demand will add to the stress on available water resources
4
Government asked Team investigated + Insights
Recommendations + NWR Framework
Overview
5
+ Government asked Team investigated +
53 Questions •What works •Experiences
Insights Recommendations
•Diagnosis •Data •Interconnections
•Policy & Regulation •Management •Service Delivery •Complementary Interventions
6
NWR Framework Study
Roadmaps for Reforms
Overview
NWRF Study
7
Planners & Policymakers
NWRF Study can use to manage
Sustainably & Equitably
Water Resources
State National International
a comprehensive
study
across
IRRIGATION URBAN & INDUSTRIAL WRM INSTITUTIONAL
Planners & Policymakers
NWRF Study can use to manage
Sustainably & Equitably
Water Resources
8
NWRF Study
NWRFS Focus Areas
9
NWRFS Focus Areas
Silos?
10
Sectoral Use & Demand
NWRFS Focus Areas
11
Law, Regulation & Management
Law, Regulation, & Management
Improving farmer participation and service delivery
What should be functions of regulators?
Effective Public Private Partnerships
Addressing intersectoral demand
Energy -Water Nexus
Implementing Effective regulation
Water Utility Performance
NWRFS Focus Areas
12
Sectoral Use & Demand
Mexico
USA Chile Argentina
United Kingdom
Egypt
Turkey Italy
Poland
Germany
France
Spain
Kyrgyzstan Austria China
Australia
Case Studies: International
13
Gujarat
Maharashtra
Karnataka
Tamil Nadu
Andhra Pradesh
Orissa
Chattisgarh
West Bengal
Uttar Pradesh
Case Studies: India
14
3. Answers
relevant to policymakers
2. Case Studies
Study Outcomes
4. Recommendations
for 12th FYP
15
5. Roadmaps for
long term reforms
1. Evidentiary
basis for proposing
reforms
NWRFS Focus Areas Discussion
16
Irrigation
1. Re-engaging with Participatory Irrigation Management (PIM)
2. Reforming Management in the Irrigation and Drainage (I&D) Sector
3. Performance Management
in the I&D Sector
17
18
History: Participatory Irrigation Management in India
“At the heart of the reform agenda is irrigation management transfer to farmers. As found in countries such as Mexico, Turkey, Chile, and Australia, etc. farmers can better manage and maintain systems than government, and have the direct incentive to do so.....”
- Report on the Irrigation Sector (World Bank, 1998)
19
WUAs in India
No. of Water User Associations (WUAs) per 1000 Ha
• Implementing O&M
• Crop planning, crop water budgeting & raising irrigation water demand
• Implementing water distribution • Support in estimating and collecting water
charges
Functions
20
Key Issues
• ID currently focused on construction rather than MOM (management, operation and maintenance)
• ID staffed with civil engineers rather than water management engineers.
• Lack of understanding/ interest in water users and irrigated agriculture.
• Very poor standard of training and HRD in ID.
Recommendations • Gain acceptance at all levels in ID/WRD for PIM
• Establish WUA Support Units at field level
• Provide continuous training and support for
WUAs
• Change WUA laws to allow for WUA charter, fee setting and collection, etc
• Change water tax to a service fee collected by WUAs
• Maintain support to WUAs over 10-15 year transition period until fully institutionalized
Short term (12th FYP)
Long Term (10 – 20 Yrs)
Re-engaging with PIM
21
Lessons for WUAs
Andhra Pradesh
1984 Andhra Pradesh Pipe Committees formed under AP Irrigation and Command Area Development Act. These Committees prove unsustainable once the CAD programme had withdrawn from the scheme.
1997 AP Government took a policy decision to promote and support PIM and enacted the AP Farmer‘s Management of Irrigation Systems (APFMIS) Act.
1. Have proper legal status
2. Have a proper legal entitlement to water
3. Make WUAs accountable (to the ID) for the water used and area irrigated
4. Investment of time and resources is required in the short term to build WUA capacity
5. To succeed, water users (through WUAs) need to be given more responsibility with associated rights (such as being able to set, collect and utilise
service fees independent of the ID) 22
AP - PIM
• Meso-level management model
• Participatory Self Assessment (PSA) by WUAs
• Participatory Action Planning (PAP) to review performance, annual planning and implementation
• Maintenance through 100% tax re-plough + additional budgetary support
• Project level water scheduling plan
• Kharif planning by farmer organisation and engineers to save about water (20TMC in 2010)
• Synchronising crop sowing to reduce water release
AP PIM PROCESS
23
AP - PIM
Administration Water Management Sustainability
General Body Meeting Water Use Efficiency O&M Works
Managing Committee Meeting
Tail end Issues Area Under Second Crop
Maintenance of Records Water Release Schedule Tax Collection
Resolving Conflicts Warabandi Implementation Joint Azmoish
Transparency Innovations in Water Management
Additional Resource Mobilisation
Participatory Self-Assessment (PSA) Indicators
Strategy for sustainability | FTCs at circle level | Professional Training Coordinators | Exposure visits
Capacity Building
Management Development Programme | Technical programme including PIM | Exposure visits to farmer
managed system
WUOs
Irrigation Engineers
24
Farmer Field Schools
AP - Enhancing irrigated agriculture productivity
Increase in productivity - 15 to 20 %
Cost reduction - Rs.1500/- to 2500/- on inputs - KC Canal / Krishna Delta
Crop diversification to maize in Rabi - Higher C/B ratio & duty
Zero tillage in maize - Cost reduction Rs.2000/- per acre - Krishna Delta System / SRSP
Rotational irrigation in paddy - Higher productivity & duty
25
AP - Financial Sustainability
26
Reforming Management in I&D
Budget allocation to I&D (%) has decreased overtime
28
Ultimate Irrigation Potential vs. Potential Created vs. Potential Utilised
Little Irrigation Potential Remains (data for selected states, 2001)
29
Source: Planning Commission; Central Water Commission, Ministry of Water Resources, Government of India; NWRF Study Working Paper 3, Table 7 , Page 154
Significant growth in ground water pumping
1951 – 2009 Agricultural electric pump sets increased from 26,000 to 16.2 million Agricultural diesel pump sets from 83,000 to 9.2 million
26 160 1,618
3,568
9,696 8,446
16,184
83 230
1,546
3,101
4,659 7,237
9,200
0
5000
10000
15000
20000
25000
30000
1951 1961 1972 1982 1991 2003 2009
No.
of
pum
ps (i
n Th
ousa
nds)
Diesel Pumps
Electric Pumps
30
Years
Managing Groundwater for Irrigation
Vicious circle of energy-ground water circle
Power Utilities • Financial losses due to low
agricultural flat tariff
• Poor voltage and frequency power supply
• Huge T&D losses due to power theft & unauthorised pump sets
On farm • Water overuse to hedge against
poor voltage and infrequent power supply
Managing Groundwater for Irrigation
31
10% of Total cost of supply
Rs 240 Billion / yr
25% of India’s fiscal deficit
Managing Groundwater for Irrigation
32
Agricultural Power Consumption Subsidy
Technical Options
Agri Feeder Separation
Agri Feeder HVDS Conversion
BEE certified high efficiency pumps
Continuous and quality power supply
Regulate power supply to agriculture
MP and Gujarat : 20-40% power saving
Jyotirgram Scheme, Gujarat
Gaothan Scheme, Maharashtra
Restricts power theft
Reduces T&D losses
Potentially save 30% power
HVDS conversion in AP
Pilots in AP
Cases
Effect O
ption
Managing Groundwater for Irrigation
33
• Separation of Feeders and conversion to HVDS
• Rational flat tariff strategy
• Replacement of pumps. Improving pumping system efficiency & management
• Participatory Groundwater Management (PGM)
• Agriculture Extension and Marketing Services (AES)
• Improving Water Application Efficiency – micro irrigation & agronomic practices
Comprehensive Agriculture-Demand Side Management
Managing Groundwater for Irrigation Strategy
34
Ag-DSM Comprehensive Model - Process
Legend
Managing Groundwater for Irrigation
35
Widening performance gaps in irrigation
36
Irrigation Issues
Large
no. of small landholdings
Low crop yields water use productivity
Inadequate water distribution organisation planning for conjunctive use of SW & GW uptake of modern technologies
• Form effective WUAs with O&M staff
• Allow, plan and manage for conjunctive use
• Increase availability and uptake of modern technologies and improvements (drip irrigation, land levelling, SRI, etc.)
• Allocate annual and seasonal volumetric water entitlements
• Need better understanding within ID of on-farm water management to match supply and demand
On farm Service delivery Operation ( Main System) Maintenance (Main System) Finance HR development Education and Training Management, Policy & Processes
37
Solutions Issues
Top-down approach by ID
Lack of service delivery agreements
between ID and WUAs
•Create service delivery culture in the ID •Have service delivery agreements between ID
and WUAs •Link service fees paid to service delivered on
individual schemes •Partnership of WUAs and ID for enhanced
agricultural production and productivity of water on individual schemes
Current payment and service delivery arrangements
Ideal service delivery relationships
Solutions Issues
On farm
Service delivery Operation ( Main System) Maintenance (Main System) Finance HR development Education and Training Management, Policy & Processes
38
Irrigation Issues
39
Irrigation Issues
Lost Productive Potential Due to Poor O&M
On farm Service delivery
Operation ( Main System)
Maintenance (Main System) Finance HR development Education and Training Management, Policy & Processes
Operation ( Main System) Inadequate • assessment of individual scheme performance. • use of modern technology for water
management. • discharge measurement in irrigation systems. • on-farm knowledge amongst ID staff of crop and
irrigation water management. • conjunctive use of SW & GW
Maintenance (Main System) Lack of • funds for maintenance • transparency and accountability No Links • between maintenance needs and water
charges • between water charges collected and
maintenance work carried out on individual systems
• Look at system for covering costs of recharging GW from SW
• Modernise system operation (use RS, GIS, MIS, etc.) • Introduce performance management for individual
schemes • Introduce water audits, assess costs of poor O&M • Significantly improve ability to measure, record and
utilise discharge data • Allow, plan and manage for conjunctive use
• Use (participative) AMP to identify maintenance, operation and management costs
• Link maintenance expenditure on a system to service fees collected
• Quantify costs of failing to properly maintain I&D systems
On farm Service delivery
Operation ( Main System)
Maintenance (Main System) Finance HR development Education and Training Management, Policy & Processes
40
Irrigation Issues
Solutions Issues
Asset Surveys Performance Surveys Liaise with Water Users on Level of Service Provision
Create Asset Database Identify Current Standards and Levels of Service
Specify and agree Standards and Level of Service targets
Formulate Asset Management Plan
Implement Asset Management Plan
Assess Water User’s Ability to Pay
Monitor Level of Service Requirement and Provision
Maintain Asset Database
Monitor Implementation of Asset Management Plan
On farm Service delivery
Operation ( Main System)
Maintenance (Main System) Finance HR development Education and Training Management, Policy & Processes
41
Irrigation Issues
Need for comprehensive asset management plan
Fund Allocation top-down inadequate for system MOM
Out-dated approach to assessment and collection of water charges (labour intensive)
No link water charge and service provided
• Convert the water tax to a service fee
• Use AMP to make assessments of MOM costs and fees required at (i) on-farm level, (ii) main system level
• Reduce water tax/service fee transaction costs by allowing WUAs to collect the fee
• Look to increase the contribution of water users to system MOM by allowing WUAs to set, collect and utilise service fee, retaining on-farm portion and passing main system portion to ID
On farm Service delivery Operation ( Main System) Maintenance (Main System)
Finance HR development Education and Training Management, Policy & Processes
42
Solutions Issues Irrigation Issues
HR management is relatively weak:
• lack of timely promotion of the more capable
staff
• inadequate training in system operation and maintenance
Improve HR management by modernising:
• promotion system to encourage more able staff
• recruit professionally trained HR personnel
• training provided (remote sensing, GIS, MIS, computer scheduling, etc.)
On farm Service delivery
Operation ( Main System) Maintenance (Main System) Finance
HR development Education and Training Management, Policy & Processes
43
Solutions Issues Irrigation Issues
Current implementation of WALMIs poor:
• inadequate number of experienced and skilled
trainers
• inappropriate/non-experienced staff transferred to WALMIs
• lack of adequate funds
• relatively few trained irrigation/water management professionals within the ID
Improve the quality of WALMIs:
• greater support from senior ID management (including more funds)
• dramatically change staff appointment system
• upgrade trainers’ knowledge and skills
• Support ID staff in attending postgraduate courses
• Create associated positions to allow staff to apply new knowledge
Solutions Issues
On farm Service delivery
Operation ( Main System) Maintenance (Main System) Finance HR development
Education and Training Management, Policy & Processes
44
Irrigation Issues
On farm Service delivery
Operation ( Main System) Maintenance (Main System) Finance HR development Education and Training
Management, Policy & Processes
• Focused on construction rather than management
• Few professionals other than civil engineers
• Top-down attitude to water users
• Lack of focus on overall scheme performance and outputs
• Staff are often transferred after 3 years, insufficient time for working knowledge
Change
• culture of ID from construction to MOM focus
• charter of ID to allow employment of a wider range of professionals
• attitude of ID personnel from seeing farmers as “beneficiaries” to seeing them as customers
Develop
• an ethos of service delivery
• culture of performance based management (adopt benchmarking, as in Maharashtra)
Encourage • early promotion of younger and
more able staff
Solutions Issues
Step Changes in Management Effort
45
Irrigation Issues
Complementary Interventions
Reengaging with PIM: • From construction focus to a MOM focus • Focus on service delivery and performance management • Change of attitude by ID staff to water users and PIM concept • Farmer field schools to enhance irrigated agriculture productivity
Reforming I&D and Performance Management in I&D:
• Change of culture within ID and farming community to paying by volume delivered. • Development of a service delivery and performance management culture with the ID • Acceptance by state politicians and senior ID managers of the role for management initiatives to increase agricultural production and water use productivity
46
Water Resource Management (WRM)
1. Managing Ground Water for Multiple Uses
2. Water Resources Management
3. Role of the Water Regulator in WRM
4. Perspectives on Legal Frameworks for WRM
47
Ground water stress and overdraft
48
All figures in BCM
Domestic & Industrial Demand Projection Across States
GW stress across sectors will increase
49
All figures in BCM
Legal Frameworks • Ground water Rights • Public Trust Doctrine • GW Regulation • CGWA
Ground Water for Multiple Users Water Resources Management Role of Water Regulators
WRM
• Under Indian common law there is no property in ground water until it has been the object of an ‘appropriation’ - by being pumped from a bore hole
• Transfer of Property Act IV, 1882 and the Land Acquisition Act, 1894 - Right to ground
water use is tied to land ownership
• Indian Easement Act, 1882, establishes limited links between ground water ownership and
land ownership
“The right of every owner of land to collect and dispose within his own limits of all water under the land which does not pass in a defined channel and all water on its surface which does not pass in a defined channel.”
Ground Water Rights
50
Legal Frameworks • Ground water Rights • Public Trust Doctrine • GW Regulation • CGWA
Ground Water for Multiple Users Water Resources Management Role of Water Regulators
Supreme Court in M.C. Mehta v. Kamal Nath guides the legal framework governing water resources
“Our Indian legal system, which is based on English common law, includes the public trust doctrine as part of its jurisprudence. The State is the trustee of all natural resources, which are by nature meant for public use and enjoyment. Public at large is the beneficiary of the seashore, running waters, airs, forests and ecologically fragile lands. The State as a trustee is under a legal duty to protect the natural resources. These resources meant for public use cannot be converted into private ownership. … Thus, the Public Trust doctrine is a part of the law of the land”
The applicability of PTD to groundwater, however, remains unclear due to the two contrary orders pronounced by the Kerala High Court. Perumattty Gram Panchayat vs. State of Kerala (2003) Hindustan Coca Cola Beverages (P) Ltd vs. Perumatty Gram Panchayat (2005
Public Trust Doctrine for Natural Resources
51
WRM
Legal Frameworks • GW Rights • Public Trust Doctrine • GW Regulation • CGWA
Ground Water for Multiple Users Water Resources Management Role of Water Regulators
• State governments have power to restrict construction of groundwater abstraction
• Authority can declare any area to be a ‘notified area’ if control, regulation, extraction and use of GW is deemed necessary
• Anyone (except small and marginal farmers) wishing to sink a well for any purpose within the
notified area must obtain a permit from the authority
• GW users in the State need a Certificate of Registration recognising its existing use and authorising the continued use of GW
• Authority could take steps to ensure that exploitation of GW resources does not exceed the natural replenishment to the aquifers
• Maharashtra, Gujarat, Karnataka, Tamil Nadu, Andhra Pradesh, West Bengal enacted ground water (regulation) legislation
Ground Water Regulation
52
WRM
Legal Frameworks • GW Rights • Public Trust Doctrine • GW Regulation • CGWA
Ground Water for Multiple Users Water Resources Management Role of Water Regulators
• Central Ground Water Authority constituted under sub-section (3) of the Environment (Protection) Act, 1986
• Areas of activity
• Notification of areas for regulation of GW development
• Regulation of GW abstraction by industries
• Registration of drilling agencies for assessment of pace of development of GW and regulation of well drilling activities
• Representation in the National Coastal Zone Management Authority and other Expert Committees of Ministry of Environment & Forests
• Undertaking country-wide mass awareness programmes and training in rain water harvesting for ground recharge
“The problem is not in enactment but in enforcement.”
53
Ground Water Regulation - CGWA WRM
Managing Ground Water: Regional Problem?
Legal Frameworks Ground Water for Multiple Users • Supply side management • Demand side management
Water Resources Management Role of Water Regulators
54
WRM
State of Ground Water in India
Legal Frameworks Ground Water for Multiple Users • Supply side management • Demand side management
Water Resources Management Role of Water Regulators
• More enthusiasm towards augmenting supply of GW resources than containing demand is seen
• Harvesting rainfall & tanks, dug wells, streams and canals use for GW recharge is becoming increasingly common
Supply Side Management
• Watershed Development programme by GoI for GW recharge: • Rs 17035 crore spent on covering
45.4 Mn Ha. cumulatively
• Rs 36,000 crore for 36 Mn Ha. proposed in 11th FYP
No hard evidence of significant and sustained improvement in GW status at sub-basin level
55
WRM
18
28
0.07
Watershed development undertaken by various ministries (in million ha)
Ministry of Agriculture ( Department of Agriculture & Cooperation)
Ministry of Rural Development ( Department of Land resources)
Ministry of Environment & Forests
Source: WP5, Table 9, here you can find the FYP for Rs.17035 crore also
Legal Frameworks Ground Water for Multiple Users • Supply side
management • Demand side
management
Water Resources Management Role of Water Regulators
• APFAMGS Project: 650 villages, 62
hydrological units, 7 drought prone
districts
• Platform of Farmer Water Schools
Demand Side Management – Participatory Groundwater Management
• Participatory Hydrological Monitoring: farmers equipped to record & analyse GW level and
rainfall data
• Environmental Viability Assessment: Farmers equipped to assess GW recharge &
utilisation in given unit.
• Crop Water Budgeting: Crop selection according to water availability, Crop water budget session
at start of the Rabi season for alternative agriculture practices w.r.t GW availability
56
WRM
Increase in ground water
pumping 7%
Decrease in ground water
pumping 42%
Intermittent decrease in
ground water pumping
51%
Legal Frameworks Ground Water for Multiple Users Water Resources Management • Gaps • Phases in River Basin
Management • Governance of River
Basins • Water Resources
Administration
Role of Water Regulators
Gaps in Water Resource Management Accounting for • All uses: Agriculture, Domestic, Industry and Environment
• Rise in urban population: 40% by 2030 , 48-60% by 2050
Need for • Professional management of water resources
• Conjunctive use of surface and groundwater resources
• Long-term vision on WRM in India
• Engagement with stakeholders and end-users
River Basins • Many already ‘closed’
• Continuous focus on irrigation sector is no longer sustainable
57
WRM
Legal Frameworks Ground Water for Multiple Users Water Resources Management • Gaps
• Phases in River Basin Management
• Governance of River Basins
• Water Resources Administration
Role of Water Regulators
Phases in River Basin Development
58
WRM
Legal Frameworks Ground Water for Multiple Users Water Resources Management • Gaps • Phases in River Basin
Management • Governance of River
Basins • Water Resources
Administration
Role of Water Regulators
Water Resource Management
Time
Management decisions at different phases of development
Empower Manage demand Enforce Legislate Construct
WRM
Areas for action • Engagement with stakeholders • Re-education of water professionals,
politicians and planners • Knowledge management and dissemination • Improved efficiency and productivity of water • Water trading • Institutional reform in the water sector
Threats and opportunities: • Reducing reserve for development • Increased risk (from droughts) • Climate change • Management options constrained • Involvement of stakeholders • Need for dialogue • Need for information dissemination 59
WRM
Legal Frameworks Ground Water for Multiple Users Water Resources Management • Gaps • Phases in River Basin
Management • Governance of River
Basins • Water Resources
Administration
Role of Water Regulators
Integrated Planning of Water Resources
Benefits • Better utilisation of available water resources • Reduction in conflict • More intensive, and safe, use of wastewater • Improved water quality for both natural and human environment • Recovery of depleted groundwater resources • Inclusion of a wider range of stakeholders • Forum for resolution of crisis situations (natural or man-made)
Constraints • Requires genuine collaboration between agencies, organisations and individuals • Planning and decision-making can be more complex and time-consuming • Costs may be significant • Some stakeholders may need to relinquish power “to the common good” • Potential opposition to transparent and accountable decision-making
60
WRM
Legal Frameworks Ground Water for Multiple Users Water Resources Management • Gaps • Phases in River Basin
Management • Governance of River
Basins • Water Resources
Administration
Role of Water Regulators
Enabling conditions for WRM
Political attributes
Informational attributes
Legal authority
Representation of interests
Balanced power Process transparency
Informational availability
Adequate powers
Information accessibility A
ttrib
utes
C
ondi
tions
Resources
Financial Appropriate Institutions
Human
Institutional
Infrastructure
61
WRM
Legal Frameworks Ground Water for Multiple Users Water Resources Management • Gaps • Phases in River Basin
Management • Governance of River
Basins • Water Resources
Administration
Role of Water Regulators
Additional requirements for WRM
Institutional Data
• A Water Resources Act • To establish the proposed organisational
framework • To establish rights to water and conditions
of use • To cover both surface and groundwater • An apex coordination body • An executive body • Separation of water resources allocation
and water delivery • Consultative bodies to engage local
stakeholders in water resource planning, allocation and management
• Mapping of all water resources (surface and groundwater)
• River and stream flow measurements • Lake/reservoir water levels and volumes • Groundwater levels and quality in aquifers • Details of all water abstractions (type of
abstraction, use, location, quantities abstracted, etc.)
• Wastewater discharges into water bodies (volumes, location, type, quality, etc.)
• Flood levels, flows and areas inundated • Type and location of infrastructure (dams,
barrages, pump stations, wastewater treatment plants, etc.)
62
WRM
Legal Frameworks Ground Water for Multiple Users Water Resources Management • Gaps • River Basin
Management • Governance of River
Basins • Water Resource
Administration
Role of Water Regulators
Water Resource Administration Possible Organisational Structure for WRM
63
WRM
Alternative governance structures
Planning Water Management Committee
Tariff Group of Ministers fix
Regulation Regulatory Commission – Quality, service standards and publication of annual audit report
Andhra Pradesh Maharashtra Legal Frameworks Ground Water for Multiple Users Water Resources Management • Gaps • River Basin
Management • Governance of River
Basins • Water Resources
Administration
Role of Water Regulators
Planning Council under CM – Board under Chief Secretary
Tariff Regulatory Authority
Regulation Regulatory Authority assumes basic governance functions
64
WRM
Legal Frameworks Ground Water for Multiple Users Water Resources Management Role of Water Regulators • Regulatory functions
needed
Water Regulator
Regulatory functions needed • Set service fees (tariffs)- to sustain physical infrastructure over time
• Provide water users with rights or entitlements to water
• Plan and manage water resources in a rationale, transparent and accountable manner
Is a water regulator required?
Arguable Neither necessary nor desirable
Required Not necessary
No national irrigation/ bulk water supply market
To monitor tariff
To ensure service quality
Tariff could be set by service provider
Entitlements could be set by government
65
WRM
1. Developing a Water Conservation Strategy for Industry
2. Water Utility Management: Urban Water Supply Reform and Use of Public Private Partnerships
3. Governing the Entrepreneurial Sector
4. Regulation of Water Supply and Waste water
Urban and Industrial Water Use
66
Increasing Sector Demands
Business-as-Usual Scenario Prediction (figures in BCM)
Issues • Water conservation and efficiency across all sectors
• Increasing water and sanitation demands in the urban environment
• Support industrial and business growth
• Lack of governance expertise in delivering the infrastructure and management systems
67
PPP • Evolution in India • Motivation • Types and allocations • Models of Water Utility • India’s Experience • Case studies −India −International
• Lessons and Policy Considerations
Water Conservation Strategy (WCS) Governing the Entrepreneurial Sector Regulation
Urban & Industrial
Public Private Partnerships (PPP)
Evolution in India
Initial Market Development
International interest
Operator Sponsored
Poor results
Mid decade
Around 2000
Now
Way Ahead?
Mid to Late 90s
Efforts to prepare PPP projects
High NGO opposition
High profile projects run a ground
KUWASIP Success
Many ongoing initiatives
First Long term Lease signed
About 10 projects in progress
Source: Crisil 2011
68
PPP • Evolution in India • Motivation • Types and allocations • Models of Water Utility • India’s Experience • Case studies −India −International
• Lessons and Policy Considerations
Water Conservation Strategy (WCS) Governing the Entrepreneurial Sector Regulation
Urban & Industrial
Public Private Partnerships (PPP)
Motivation
• Economic reform - business opportunities - generate economic growth
• Develop capacity in management and technical skills
• Catalyse investment in essential infrastructure
• Improvement of governance of urban services
69
PPP • Evolution in India • Motivation • Types and allocations • Models of Water Utility • India’s Experience • Case studies −India −International
• Lessons and Policy Considerations
Water Conservation Strategy (WCS) Governing the Entrepreneurial Sector Regulation
Urban & Industrial
Public Private Partnership (PPP)
Types and Allocation
Options Ownerships O&M Capital Commercial
Risk Duration Increase in Risk
Service Contract Public Private Public Private 1-2 years
Management Contract Public Private Public Private 3-7 years
Lease Public Private Public Private 8-20 years
Concession Public Private Public Private 20-30 years
BOT/BOO Private & Public Private Private Private 20-30 years
Privatisation Private / Private
& Public Private Private Private Indefinite
70
PPP • Evolution in India • Motivation • Types and allocations • Models of Water Utility • India’s Experience • Case studies −India −International
• Lessons and Policy Considerations
Water Conservation Strategy (WCS) Governing the Entrepreneurial Sector Regulation
Urban & Industrial
Public Private Partnership (PPP)
Models of Water Utility
24 x 7
BULK WAREHOUSING RETAIL
WATER INTAKE, TREATMENT &
PUMPING
STORAGE & TRANSMISSION
DISTRIBUTION, BILLING &
COLLECTION
CUSTOMER
SEWERAGE COLLECTION
NETWORK
SEWAGE OFFTAKE, TRANSMISSION, TREATMENT &
DISCHARGE
RECYCLE
Pollution Control Board
Water source
71
PPP • Evolution in India • Motivation • Types and allocations • Models of Water Utility • India’s Experience • Case studies −India −International
• Lessons and Policy Considerations
Water Conservation Strategy (WCS) Governing the Entrepreneurial Sector Regulation
Urban & Industrial
Public Private Partnerships (PPP) India Experience • North Karnataka Cities, Nagpur, Alandur (Tamil Nadu) & Khandwa (MP): make PPP
potential solution for improving services
• Problems with not so well prepared or high risk PPP contracts: Mysore Delegated Management Contract and Aurangabad Water Supply Improvement Project
• Emerging social enterprise industry
What has possibly changed? • Demonstration of success stories • Focus shift from investment to management efficiency • Public finance and private management is increasingly accepted • Recognition of need for cost recovery • Increasing domestic entrepreneur interest • Selective outsourcing in utilities • Recognition of limitation of public sector service rules to manage essential round
the clock service delivery
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PPP • Evolution in India • Motivation • Types and allocations • Models of Water Utility • India’s Experience • Case studies −India −International
• Lessons and Policy Considerations
Water Conservation Strategy (WCS) Governing the Entrepreneurial Sector Regulation
Urban & Industrial
Case Studies - (PPP) Kanpur Water Account 2009-10
650/410 – Design/Average Production Capacity
All numbers in average million litres/day (MLD)
PRODUCTION AT RESERVOIR AT CUSTOMER
650/410 400 168
100 171/100
COLLECTION TREATED
200(GW)
Ganga
UNTREATED
+
280
SEWAGE
180
Experience in Karnataka (3 cities) Before After
Supply frequency 2 hrs in 3 - 10 days 24 hours
No. of connections 16399 24145
Non Revenue Water 45% 6% 73
Urban & Industrial
Case Studies - (PPP)
International PPP • Evolution in India • Motivation • Types and allocations • Models of Water Utility • India’s Experience • Case studies −India −International
• Lessons and Policy Considerations
Water Conservation Strategy (WCS) Governing the Entrepreneurial Sector Regulation
74
PPP • Evolution in India • Motivation • Types and allocations • Models of Water Utility • India’s Experience • Case studies −India −International
• Lessons and Policy Considerations
Water Conservation Strategy (WCS) Governing the Entrepreneurial Sector Regulation
Urban & Industrial
End goal is water utility management
Lessons
• “Political” commitment, leadership, agreement and stability are critical: at all levels
• PPP is not an objective in itself
• Each situation is different: no “standard” models
Policy Considerations • Arrangements are consistent with national objectives
• PPP targets: realistic, unambiguous & set in context of verified data
• Pro poor & community participation
• PPP partner company must have: financial strength and management integrity
• Clear process of tariff setting
• Political interference ‘free’ regulation
• Ensure good governance and accountability in public interest
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PPP Water Conservation Strategy (WCS) • Delivery of WCS • Case Studies − International
Governing the Entrepreneurial Sector Regulation
Urban & Industrial
Water Conservation Strategy (WCS)
Potential water saving (%) in industry sector • Partnerships with industry
• Information and target
setting by industry type
• Best Practice Guidance – knowhow for businesses and industries
• Grant programmes and incentives linked to abstraction regulation and pricing policy
Potential water saving (in percentage) from measures applied in the industry sector
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PPP Water Conservation Strategy (WCS) • Delivery of WCS • Case Studies − International
Governing the Entrepreneurial Sector Regulation
Urban & Industrial
Water Conservation Strategy (WCS)
International Examples
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PPP Water Conservation Strategy (WCS) Governing the Entrepreneurial Sector Regulation
Urban & Industrial
Governing the Entrepreneurial Sector
• Water supply sector should embrace opportunities and services that entrepreneurs bring to improving water and sanitation
• Acceptance of entrepreneurial contributions through regulation: recognise their investment, protect them from unfair competition
• Entrepreneurship should be regarded in wider context: maintenance, outsourcing of services, suppliers of equipment
• Encourage the working of water supply sector: private sector relationship through legislation and by establishing an appropriate system of regulation
Forging Working Relationships
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Regulation of industry water use
Regulation Objectives • Over-arching objective: “that investments are used effectively in a way that
maximises their benefits to all water users and to provide a framework that induces public and private sources to finance investment projects”
• Public sector control over utility service providers (public or private)
• Ensuring service providers have financial resources to operate and invest
Good regulation in water supply: as a balance
Regulate - but also - Protect & Allow prices quality access
operations and investments from arbitrary government decisions
businesses sufficient freedom to manage according to business judgement
79
PPP Water Conservation Strategy (WCS) Governing the Entrepreneurial Sector Regulation
Urban & Industrial
Options for regulation of industry water use
80
PPP Water Conservation Strategy (WCS) Governing the Entrepreneurial Sector Regulation
Urban & Industrial
1. Water Governance at the State Level
2. National Water Commission
Institutional Reforms
81
Possible Organisational Structure for WRM
Water Governance at the State Level • Possible organisational
structure for WRM • Possible State Water
Administration Structure
National Water Commission (NWC)
Institutional Reforms
82
Water Governance at the State Level
Possible State Water Administration Structure Water Governance at the State Level • Possible organisational
structure for WRM • Possible State Water
Administration Structure
National Water Commission (NWC)
83
Institutional Reforms
Water Governance at the State Level
Water Governance at the State Level National Water Commission (NWC) • Premise • Role of NWC • 12 FYP • Long term
Premise
National Water Commission (NWC)
• By some estimates usable supply of water will fall short of project demand in the next fifteen years
• There is expected to be a shift in the sectoral demand for water
• No alternative than to view the planning and management of water from a national perspective- if supply is fixed & demand rises
• Technical assessment of projects
– No mandate for assessing the state of water resources as a
– No obligation to continue assessments after clearances have been awarded
• Treating water as a national resource
• Availability of timely and usable information
• Capacity for management
– No countrywide institution that has the responsibility to assess the skills gap, identify the balance of human resources in different water subsectors
Rationale for an NWC: Gaps in current water management
84
Institutional Reforms
Water Governance at the State Level National Water Commission (NWC) • Premise • Role of NWC • 12 FYP • Long term
National Water Commission (NWC) Role of NWC
• Technical assessor to monitor progress during construction and timely completion of projects, and to continuously assess the management of projects after completion (support PC & MoEF)
• Guardian or watchdog of national water resources, states' rights and individual entitlements
• Aggregator and public communicator of data and information
• Facilitator and capacity developer
– Support states with advice on institutional design, capacity and skills development
– Offer technical advice and inputs
85
Institutional Reforms
Water Governance at the State Level National Water Commission (NWC) • Premise • Role of NWC • 12 FYP • Long term
Specific functions during the 12th FYP
• Empowered Working Group to start working on a National Water Strategy and submit proposals to the National Development Council
• Information collection and dissemination (up-to-date macro data to develop the broad elements, stimulate public debate)
• Capacity building activities, assessing skill gaps for water management through a service delivery mode
• Coordination and networking across sectors and levels of government
• Engagement with potential local and foreign investors
– full transparency concerning all contract details of individual projects
National Water Commission (NWC)
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Institutional Reforms
Water Governance at the State Level National Water Commission (NWC) • Premise • Role of NWC • 12 FYP • Long term
National Water Commission
• Guardian and overseer of the National Water Strategy once it has been approved and adopted by the National Development Council
• Technical advice to central and state water administrations
• Watchdog of the rights of all water stakeholders and particularly the state of the country’s water resources
• Continuous benchmarking of best institutional practices, efficiency standards, human resource and capacity requirements
• Continuing role in information dissemination, transparency, capacity building, and public education and advocacy
Long Term
87
Institutional Reforms
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