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2016 | Book

Indian Water Policy at the Crossroads: Resources, Technology and Reforms

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About this book

This book reviews and analyzes emerging challenges in water policy, governance and institutions in India. Recent times have seen the contours of water policy shaped by new discourses and narratives; there has been a pluralization of the state and a changing balance of power among the actors who influence the formulation of water policy. Discourses on gender mainstreaming and Integrated Water Resource Management (IWRM) are influential, though they have often remained rhetorical and difficult to put into practice. Debate over property rights reform and inter-linking of rivers has been polarized. At the same time, there has been a rising disenchantment with policy initiatives in participatory irrigation management, cleaning up of water bodies and pollution control. Fast depletion of groundwater resources and the importance of adopting new irrigation methods are getting increased focus in the recent policy dialogue.

The contributors review current debate on these and other subjects shaping the governance of water resources, and take stock of new policy developments. The book examines the experience of policy implementation, and shows where important weaknesses still lie. The authors present a roadmap for the future, and discuss the potential of alternative approaches for tackling emerging challenges. A case is made for greater emphasis on a discursive analysis of water policy, to examine underlying policy processes.

The contributors observe that

the ongoing democratization of water governance, coupled with the multiplication of stresses on water, will create a more visible demand for platforms for negotiation, conflict resolution and dialogue across different categories of users and uses. Finally, the authors propose that future research should challenge implicit biases in water resources planning and address imbalances in the allocation of water from the perspectives of both equity and sustainability.

Table of Contents

Frontmatter
Chapter 1. Introduction: Towards a Discursive Analysis of Indian Water Policy
Abstract
This chapter presents an overview of the chief contributions of the chapters presented in this book. Over the years, Indian water policy has evolved to take cognisance of new and emerging pressures on water resources. Both local and global actors have had a role to play in this. International discourses of integrated water resource management, gender, neo-liberalism and decentralization have had a bearing on how water resource policies have been framed and water issues problematized. While emerging research has been able to throw some light on the nature of policy processes, the paper makes a more deliberate case for a discursive analysis of public policy to pave the way to understanding the nature and direction of water reforms in the country.
Vishal Narain
Chapter 2. The Precept and Practice of Integrated Water Resources Management (IWRM) in India
Abstract
Integrated Water Resources Management (IWRM) has been advanced as a response to growing problems of water scarcity in the developing world. While the precept of the IWRM process is unexceptionable, its practice has meant a package of interventions. The trouble with the ‘IWRM package’, and indeed the global water governance debate as a whole, is its intent to transform, all at once, a predominantly informal water economy into a predominantly formal one—something that would normally be the result of a long process of economic growth and the transformation that comes in its wake. In the IWRM discourse, formalizing informal water economies is improving water governance. But evidence across the world suggests that there is no shortcut for a poor society to morph its informal water economy into a formal one; the process by which this happens is organically tied to wider processes of economic growth. When countries try to force the pace of formalization, as they will no doubt do, interventions come unstuck. Interventions are more likely to work if they aim to improve the working of a water economy while it is informal.
Tushaar Shah, Barbara van Koppen
Chapter 3. Groundwater Depletion in India: Potential of Alternative Approaches and Policy Instruments
Abstract
Since the advent of green revolution in late 1960s, groundwater played an important role in the agricultural and economic development of India. However, large expansion in well irrigation due to policies of promoting private tube well construction, rural electrification programme and subsidies on electricity and diesel for agricultural use resulted in groundwater over-abstraction largely in north-western, western and peninsular India. As most of the measures to regulate groundwater overuse in India have met with little success, this chapter examines the viability of alternative institutional and economic instruments for sustainable groundwater irrigation. Analysis suggests that the enforcement of private and tradable property rights in groundwater can bring about a significant increase in farm outputs, with a reduction in the aggregate demand for water in agriculture. It will also bring about more equitable access to, and control over, the water available from groundwater for food production and thus ensure household-level food security. This has to be complemented by the pro-rata pricing of electricity in the farming sector, with improved quality and reliability of the supplied power.
Nitin Bassi
Chapter 4. Drinking Water Supply in India: Context and Prospects
Abstract
India has made significant progress in developing its water resources and the supporting drinking water infrastructure. In fact, it has met the water target for its MDG commitment and in doing so has contributed significantly to the global achievement of this target. However, rapid development, increasing population and variable resource distribution has led to the current demand for water outweighing supply.
Large budgetary outlays since independence and a high political focus on drinking water have resulted in the country supplying water through improved sources to 92 % of its citizens. Improved sources, as per Joint Monitoring Program definitions, do not reflect the safety of the water supplied. Also improved sources do not result necessarily in improved health and nutrition outcomes due to other factors; the principal being poor sanitation and hygiene. This chapter will, therefore, deal with water along with sanitation and hygiene.
Like any other basic service, to be delivered efficiently the institutions responsible for them play a crucial role. Clear delegation of responsibilities is essential for this. This is not the case in India today with numerous institutions with duplicate roles and also significant gaps. In addition, inadequate institutional performance, lack of appetite for reforms and ineffective implementation of existing provisions have affected the performance levels for water supply, in both the rural and urban contexts. Besides the institutional challenges, other factors affecting water supply in India include political will, environmental sustainability (including climate change), social dynamics, technological appropriateness and economics.
In spite of a sizeable water resource base and vast land resource, India continues to struggle to meet its drinking water requirements. This paper examines the landscape challenges and opportunities for improved drinking water supply in India. Positive developments can be seen in the recommendations for the 12th Five Year plan but will require systematic implementation of reforms and a strong political will.
Aidan A. Cronin, Anjal Prakash, Praveena Sridhar, Sue Coates
Chapter 5. Gender and Water in India: A Review
Abstract
This chapter provides an overview of key issues in the area of gender and water. It gives an overview of different debates around women and environment and shows how these have shaped the discourse and practice around gender and water. The chapter then goes on to discuss the reforms in the water sector at the global level and how this has impacted the discussions around gender and water. A comprehensive review of literature is done in the context of India which covers the various writings and actions in the area of gender and water. The review specifically looks at gender and equity issues in the areas of rivers, dams and displacement, water for production and domestic water.
The chapter argues for going beyond the politics of representation and developing new agendas and creative forms of engagement with people’s movements- more specifically women’s movements, farmers movements and unions working on the question of growing informalisation of the economy, greater accumulation of capital, increasing injustices and disparities in everyday living- to see the linkages between land, water, rivers, natural resources and livelihoods.
Seema Kulkarni
Chapter 6. Independent Regulatory Agencies in Water Sector in India: Debate and Discourse
Abstract
The rise of the ‘regulatory state’ in developing countries has remained an understudied phenomenon. It is characterized by arm’s length regulation, achieved by creation of Independent Regulatory Agency (IRA). The diffusion and transplantation of IRA models, from developed country context into a developing country context, is a critical juncture for analyzing the emergence of regulatory state in developing country. This paper reviews the debate generated in India when such transplantation began in a politically sensitive and ecologically complex sector like water. This is done by placing the local debate in the wider international discourse on IRA.
The review shows how different mechanisms of institutional isomorphism – coercive isomorphism, mimetic isomorphism, and policy learning – can be used to explain the structure and substance of regulation being adopted in India. Reforms through isomorphism raise concerns on the appropriate rationale for IRA in water sector. Review of the related laws suggests that the conventional credible commitment rationale is inadequate to explain the emergence of these IRAs. Political uncertainty, the root-cause of credible commitment rationale, needs to be explored as an appropriate rationale for IRA for ensuring development and implementation of long-term, integrated and consistent policy framework on water resources. But this requires proper sequencing of reforms in which the evolution of normative framework precedes creation of new institutions like IRA. The paper further reviews the normative aspects, such as equity and efficiency, to show how reconciling of seemingly contrasting principles is a huge challenge in developing an effective regulatory model. Finally the paper presents the idea of ‘decentered regulation’ and ‘sunshine commission’ as the two alternative propositions relevant for the developing country context.
Sachin Warghade
Chapter 7. River Linking Project: A Solution or Problem to India’s Water Woes?
Abstract
The public discourse on the National River Linking Project (NRLP) has been hopelessly lopsided—with the protagonists of the project unable to take on the antagonists on either their rhetoric or their analytics. This paper contributes to the discourse by presenting a balanced analytical point of view from a series of studies conducted by the International Water Management Institute and its partners. The studies have analyzed the drivers and assumptions used to justify the NRLP and have assessed hydrological, financial and social implications of the NRLP water transfers. These studies find that the underlying assumptions have either changed over time or have flaws and alternative options are not given the consideration these need and deserve. Given these and many other factors, the hydrological, financial and social benefits and cost, if implemented in its present form, are mixed. However, the paper also argues that the idea of NRLP may have come a decade or two soon; and that a slew of upcoming contingencies shall not only change the tenor of the debate around inter-basin water transfers but even make a compelling case for them, even if in a different form than the present proposal.
Tushaar Shah, Upali A. Amarasinghe
Chapter 8. Water Pollution: Extent, Impact, and Abatement
Abstract
Water pollution is an emerging challenge in developing countries like India, which try to achieve rapid economic development without adequate/effective environmental management facilities. In recent years, the pollution load discharged by different sectors (domestic, industrial and agriculture) has increased, some times beyond the carrying/assimilative capacity of the environment. Fresh water sources (rivers, lakes and aquifers) are one of the major victims of pollution, whose impact on health and livelihood of millions of poor people is critical, besides the physical deterioration of the aquatic ecosystem. Hence, pollution hampers development in a significant manner. Though various pollution management measures have been attempted over a period of time, significant progress has not been achieved. In this regard, a more realistic and integrated approach (with emphasis on appropriate water pollution policies, strict enforcement, multi-stakeholders’ initiatives and cooperation, affordable technology development and application of economic instruments) needs to be implemented.
Prakash Nelliyat
Chapter 9. Regulatory Instruments and Demand Management of Water: Potential and Prospects
Abstract
This paper is an attempt to review the role of various regulatory instruments in managing water demand with specific objectives of listing out types of regulatory instruments; role of these instruments in managing water demand and attaining equity; assess existing social regulation models and draw lessons for policy. Basic regulatory instruments that are being or could be adopted in water management are broadly grouped under: (i) direct and indirect regulation, (ii) economic regulation, and (iii) social regulation.
The review of the role of regulatory instruments in managing water demand across the countries suggests that the commonly used instruments like pricing, supply regulation, direct and indirect policy regulation, etc., have not been effective. This is more so in India due to complex socioeconomic and resource systems and policy environment. Often policies are neither comprehensive nor they work in tandem. It is argued that unless policy, economic and institutional regulations complement each other, the scope for achieving sustainable and efficient water management is a far cry.
None of the regulatory instruments have equity in-built in to them. Whatever equity impacts evident seems to be rather incidental. On the other hand, social regulation appears to be more effective in achieving sustainability and equity though it requires lot of efforts working through complex rural dynamics at various levels. The reason is that appropriate policies to support or encourage such initiatives are not in place. Social regulation initiatives may remain as models rather than being adapted at a wider scale in the absence of complementary policy/legislative/legal support. Creating demand for these initiatives is as important as demand management of water. The regulatory instruments for demand management would not be effective as long as policy environment continues to be supply sided.
V. Ratna Reddy
Chapter 10. Water Rights and Entitlements in India
Abstract
With increasing water scarcity in India, the need for establishing institutional mechanisms such as the water rights and entitlements (WR&E) system is widely recognized. But, there are many questions continue to persist as to the form and feasibility as well as the challenges and opportunities involved in establishing such a system in Indian context. This chapter tries to answer some of these questions by (a) discussing the legal, policy, and organizational aspects of WR&E system relevant for India; (b) tracing the evolution of informal and formal WR&E systems at various scales; (c) assessing the opportunity costs of missing or unclear WR&E system in terms of foregone benefits; (d) indicating the technical and institutional potentials as well as the political economy constraints for promoting the WR&E framework; (e) exploring how the WR&E framework can be introduced in areas with rudimentary water rights; and (f) Concluding with the identification of short and medium term options as well as paths and implementation strategies for promoting the WR&E framework for India.
Rathinasamy Maria Saleth
Chapter 11. Water Saving Technology in India: Adoption and Impacts
Abstract
Water use efficiency under conventional flood method of irrigation, which is predominantly followed in Indian agriculture, is very low due to substantial conveyance and distribution losses. A number of demand management strategies and programmes have been introduced to increase the existing water use efficiency in Indian agriculture. One such method introduced relatively recently in Indian agriculture is drip method of irrigation. Drip method of irrigation is proved to be an efficient method in saving water and increasing water use efficiency as compared to the conventional surface method of irrigation, where water use efficiency is only about 35–40 %. Though drip irrigation method is in use over the last two decades or so, not many comprehensive studies have been carried out focusing on its adoption and impacts in India. In this study, therefore, an attempt is made to (a) study the nature and extent of adoption of drip method of irrigation, (b) find out the impact of drip method of irrigation on water saving, productivity and farm income, (c) estimate the economic viability of drip investment with and without subsidy, and (d) suggest policy interventions to increase the adoption of drip method of irrigation.
A. Narayanamoorthy
Metadata
Title
Indian Water Policy at the Crossroads: Resources, Technology and Reforms
Editors
Vishal Narain
Annasamy Narayanamoorthy
Copyright Year
2016
Electronic ISBN
978-3-319-25184-4
Print ISBN
978-3-319-25182-0
DOI
https://doi.org/10.1007/978-3-319-25184-4