Reasons for the Gap between Irrigation Potential Created and Utilised: A Case Study of West Bengal and Seven North-Eastern States

Reasons for the Gap between Irrigation Potential Created and Utilised: A Case Study of West Bengal and Seven North-Eastern States

 Authors:
1. Bhaskar Chakrabarti, Associate Professor, Public Policy and Management Group, Indian Institute of Management (IIM) Calcutta, Joka, Diamond Harbour Road, Kolkata 700 104.
2. Raghabendra Chattopadhyay, Professor, Public Policy and Management Group, IIM Calcutta
3. Suman Nath, Assistant Professor of Anthropology, Haldia Government College, Purba Medinipur,West Bengal 721657and
4. Annapurna Shaw, Professor, Public Policy and Management Group, IIM Calcutta

Abstract
India’s thrust in improving food production is challenged by the increasing gap between Irrigation Potential Created (IPC) and Irrigation Potential Utilised (IPU). The available literature focuses on utilisation of irrigation water, but there is a scarcity of study of the reasons that give rise to the IPC-IPU gap. Through an analysis of issues faced by implementers and end-users for a total of 33 major, medium and minor irrigation schemes, this paper explores the reasons behind the gap. The paper argues that the reasons lie in problems of miscalculation, poor maintenance of irrigation systems, problems of water tax collection and power interruption, as well as socio-political and institutional factors. The paper suggests that the definition of IPC and IPU based on area irrigated needs to be revised, with periodical reassessment of the IPC, and creation of proper distribution system to avoid water loss. Effective coordination among departments, with a focus on maintenance and operation, especially through water user associations need to be done.

Keywords
Irrigation Potential Created, Irrigation Potential Utilised, Gap between IPC and IPU

Introduction
Post-independent India has made constant attempts to increase food production with a major thrust on expansion of irrigation (GOI, MoWR 1999). In the late 1990s, India decided to increase food grain production by over 50% for the next two decades (Kumar 1998). Effective and extensive irrigation will play an important role to fulfil this requirement. In response to this daunting task, development of major irrigation-related schemes received high priority from the first five-year plan (GOI, MoWR 1999). More focus on technical and infrastructural development, less focus on management issues (Maloney and Raju 1994) and a gap between Irrigation Potential Created (IPC) and Irrigation Potential Utilised (IPU) are visible in the country today. IPC is defined as the area (taking into account multiple cropping) which can be provided irrigation through the facilities which have already been created. In the case of surface water projects, irrigation potential is said to be created when the system is capable of supplying water at the outlet through main canal / branch canal / distributaries / minors. IPU is defined as the total gross area actually irrigated during the year under consideration (GoI, MoWR 2008). With the development of irrigation projects, the cumulative value of the IPC is increasing. However, the created irrigation potential is not utilised fully. The gap between the irrigation potential created and irrigation potential utilised is increasing

Ideally, there should be none, or a minimal gap between IPC and IPU. To reduce the increasing gap, the Government of India (GoI) started the Command Area Development programme (CAD) during the Fifth Plan (1974-79). The Ninth Plan (1997-2002) recommended Irrigation Management Transfer (GOI, MoWR 1999), positive impact of which is now established (Naik et al. 2002; Asian Development Bank 2008).

This paper is an outcome of a study of the issues that give rise to the gap between IPC and IPU in the particular context of West Bengal and seven North-eastern states in India. Gaining insights from the existing literature on the problems of the irrigation system and through the collection of primary data in these states, the authors analyse the nature of issues that create the existing gap.

Conclusion
The study shows local and multiple issues that create the gap between IPC and IPU. A policy that incorporates local variation is needed for an effective utilisation of the potentials already available. Apart from correcting measurement errors and fixing definitional issues, a serious attempt to renovate the existing schemes up to the last outlet with proper distribution system is needed. The authors feel that measurement of IPC and IPU should be based on volume, and not on the basis of area. Regular update of IPC and IPU should be practised. Before initiating a new scheme, effective interactions between different stakeholders and concerned departments are necessary. The local governments should be involved in planning and decision-making as they can provide knowledge inputs in the absence of Water User Associations. A proper needs-assessment and feasibility estimation should be practised. Decentralisation and encouragement of users’ participation to the management is needed. This can ensure regular collection of water tax, proper operation and maintenance, proper distribution of irrigation water, judicious and rational use of the water, reduction of illegal water usage, better conflict resolution, minimisation of water politics, improvement of the co-operation, and better interaction between the stakeholders.

Full Paper published in 
Review of Development & Change, 
Vol. XVIII No.2, July-December 2013, pp.115-130