India: Chhattisgarh Irrigation Development Project

Transcription

1 Completion Report Project Number: Loan Number: 2159 August 2015 India: Chhattisgarh Irrigation Development Project This document is being disclosed to the public in accordance with ADB s Public Communications Policy 2011.

2 CURRENCY EQUIVALENTS Currency unit Rupee(s) (Re/Rs) At Appraisal At Project Completion (4 February 2005) (29 November 2014) Rs 1.00 = $ $ $1.00 = Rs43.29 Rs ABBREVIATIONS ADB Asian Development Bank CIDP Chhattisgarh Irrigation Development Project DOA Department of Agriculture (of Chhattisgarh State Government) EIRR economic internal rate of return ha hectare IIP intensive intervention program NGO nongovernment organization O&M operation and maintenance PIM participatory irrigation management PIMU Participatory Irrigation Management Unit (in Water Resources Department of Chhattisgarh State Government) PMU project management unit PPTA project preparatory technical assistance R&U rehabilitation and upgrading SDU social development unit (in Water Resources Department of Chhattisgarh State Government) TA technical assistance WRD Water Resources Department WUA water users association NOTES In this report, $ refers to US dollars.

3 Vice-President W. Zhang, Operations 1 Director General H. Kim, South Asia Department (SARD) Director T. Kho, India Resident Mission, SARD Team leaders Team members L. Sondjaja, Deputy Country Director, SARD R. Naduvinamani, Project Analyst, SARD B. Reddy Bathula, Principal Portfolio Management Specialist, SARD A. Cauchois, Senior Water Resources Specialist, SARD P. Khan, Associate Social Development Officer (Gender), SARD In preparing any country program or strategy, financing any project, or by making any designation of or reference to a particular territory or geographic area in this document, the Asian Development Bank does not intend to make any judgments as to the legal or other status of any territory or area.

4 BASIC DATA CONTENTS Page I. PROJECT DESCRIPTION 1 II. EVALUATION OF DESIGN AND IMPLEMENTATION 2 A. Relevance of Design and Formulation 2 B. Project Outputs 2 C. Project Costs 8 D. Disbursements 8 E. Project Schedule 8 F. Implementation Arrangements 9 G. Conditions and Covenants 9 H. Related Technical Assistance 10 I. Consultant Recruitment and Procurement 10 J. Performance of Consultants, Contractors, and Suppliers 11 K. Performance of the Borrower and the Executing Agency 12 L. Performance of the Asian Development Bank 12 III. EVALUATION OF PERFORMANCE 12 A. Relevance 12 B. Effectiveness in Achieving Outcome 13 C. Efficiency in Achieving Outcome and Outputs 13 D. Preliminary Assessment of Sustainability 13 E. Impact 13 IV. OVERALL ASSESSMENT AND RECOMMENDATIONS 14 A. Overall Assessment 14 B. Lessons 15 C. Recommendations 15 APPENDIXES 1. Project Framework Implementation of Gender Mainstreaming Activities and Results Irrigation Scheme Rehabilitation Intensive Intervention Program: Key Features Project Costs Disbursements under Loan 2159-IND and TA 4573-IND Status of Compliance with Loan Covenants Consulting Services: Proposed and Actual Contracts Awarded under Loan 2159-IND Economic Analysis Environmental Impacts 82 i

5 i BASIC DATA A. Loan Identification 1. Country 2. Loan number 3. Project title 4. Borrower 5. Executing agency 6. Amount of loan 7. Project completion report number B. Loan Data 1. Appraisal (pre-appraisal mission) Date started Date completed 2. Loan negotiations Date started Date completed 3. Date of Board approval 4. Date of loan agreement 5. Date of loan effectiveness In loan agreement Actual Number of extensions 6. Closing date In loan agreement Actual Number of extensions 7. Terms of loan Interest rate Commitment fee Maturity (number of years) Grace period (number of years) 8. Terms of relending (if any) India 2159 Chhattisgarh Irrigation Development Project Government of India Water Resources Department Chhattisgarh State Government $46,108,000 PCR: IND September September December December March March June June March March prevailing London interbank offer rate plus 0.60% 0.75% on undisbursed balances 25 7 None 9. Disbursements a. Dates Initial Disbursement Final Disbursement Time Interval 27 April August years, 4 months Effective Date Original Closing Date Time Interval 30 June March years, 9 months

6 ii b. Amount inclusive of taxes ($) Cat. No. Category Original Allocation a Amount Disbursed b 1 Civil Works a Irrigation rehabilitation 32,563,000 23,435,199 b Training centers 438,000 1,182,462 Subtotal 33,001,000 24,617,661 2 Vehicles and Equipment a Vehicles and motorcycles 629,000 95,079 b Equipment and furniture 1,870,000 1,136,386 Subtotal 2,499,000 1,231,465 3 Consulting services 3,063,000 3,209,243 4 WUA support and facilities 890,000 2,533,432 5 Training, workshops, and study tours 1,327,000 14,163 6 Surveys, studies, and awareness campaign 1,271,000 83,383 7 Diversified cropping program 1,164, Supervision and implementation a Infrastructure maintenance 803,000 0 b Overheads and operational cost 1,438, ,580 Subtotal 9,956,000 6,594,801 9 Unallocated 652,000 Total 46,108,000 32,443,927 WUA = water users association. Based on the loan agreement, dated 20 March b An amount of $13,664,073 remained undisbursed and was cancelled upon loan closing. 10. Local costs (financed) - Amount inclusive of taxes ($) Cat. No. Category Contracts Amount Disbursed 1 Civil Works a Irrigation rehabilitation 20,073,037 18,363,401 b Training centers 972, ,740 Subtotal 21,045,816 19,182,141 2 Vehicles and Equipment a Vehicles and motorcycles 95,079 95,079 b Equipment and furniture 1,105,992 1,023,475 Subtotal 1,201,071 1,118,554 3 Consulting services 1,969,405 1,835,892 4 WUA support and facilities 3,840,013 2,437,140 5 Training, workshops, and study tours Surveys, studies, and awareness campaign 81,967 71,644 7 Diversified cropping program Supervision and implementation a Infrastructure maintenance 0 0 b Overheads and operational cost 846, ,540 Subtotal 6,737,492 5,096,216 9 Unallocated 0 0 Total 28,984,379 25,396,911 Percentage of local cost financing utilization WUA = water users association. Source: ADB s Loan Financial Information System

7 iii C. Project Data 1. Project cost ($ 000) Cost Appraisal Estimate Actual Foreign exchange cost 15,938 1,701 Local currency cost 50,670 41,292 Total 66,608 42, Financing plan ($ 000) Cost Appraisal Estimate Actual Implementation costs Borrower financed 19,900 10,515 ADB financed 46,108 32,444 Beneficiary financed Total 66,608 42,993 Interest during implementation Borrower financed 6, ADB financed Beneficiary financed Total 6, Commitment charges Borrower financed 777 1,113 ADB financed Beneficiary financed Total 777 1,113 ADB = Asian Development Bank. 3. Cost breakdown by project component ($ 000) Component Appraisal Estimate Actual a 1. WRD Strengthening and Project Management 4,200 4, Participatory Irrigation Management 3,900 3, Rehabilitation and Upgrading Irrigation 45,800 30, Agricultural Support 1,700 2,876 Contingencies 3,302 Interest during implementation 6, Commitment charge 777 1,113 Total 66,608 42,993 WRD = Water Resources Department. Note: Figures may not sum due to rounding. a Actual costs are total costs including contingencies.

8 iv 4. Project schedule Item Appraisal Estimate Actual Date of contract with consulting firm August November 2006 Completion of engineering designs Q to Q Q to Q Civil works contract First procurement 19 November 2007 Completion of work May 2012 Equipment and supplies First procurement 20 September 2006 Last procurement 6 October 2012 Completion of equipment installation March 2013 Q = quarter. 5. Project performance report ratings Implementation Period From 2005 to 2010 From January 2011 to December 2011 From January 2012 to March 2013 Development Objectives Ratings Implementation Progress Satisfactory Potential problem Satisfactory

9 v D. Data on Asian Development Bank Missions Name of Mission Date No. of Persons No. of Person-Days Specialization of Members PPTA fact-finding Jul a, i PPTA review Jan a PPTA review 5 12 May a Special project administration 6 13 Jun a, c, j TA 4573 inception 28 Nov 8 Dec a TA review Jan a Loan consultation Sep a, c a, b, c, d Loan inception Nov Loan consultation 5 13 Feb a, c Loan and TA review Aug a, c Loan and TA review 3 12 Dec a, e Loan and TA review 29 May 3 Jun a, b Loan and TA special administration Sep a, c Special loan administration Feb g, k, c, h Loan and TA administration 9 15 Jul a, d Loan midterm review 27 Jan 8 Feb a, b, j Loan and TA special administration Jun a, f Loan and TA special project administration Aug a, f Loan and TA review 27 Jan 4 Feb a, c Loan and TA special project administration 2 4 Jun a, c Loan and TA review Oct c, e Loan and TA review Mar c, e Loan and TA special project administration 6 9 Aug c, e Project completion review Nov c, j PPTA = project preparatory technical assistance, TA = technical assistance. a = water resources/senior water resources specialist, b = assistant project analyst, c = national officer, d = director, south asia agriculture natural resources and social services division, e = associate project analyst, f = PAU head, g = deputy director general, SARD, h = officials of department of economic affairs, government of India, i = senior social development specialist, j = staff consultant, k=senior transport specialist.

10 I. PROJECT DESCRIPTION 1. Chhattisgarh, a new state created in 2000 by separation from Madhya Pradesh, was one of India s most underdeveloped and food-insecure states at the time of project preparation in Poverty was widespread and concentrated in rural areas, where 80% of the state s population lived. According to the Report and Recommendation of the President for the Chhattisgarh Irrigation Development Project (CIDP), an estimated 43% of people lived below the poverty line. 1 The incidence of poverty was greater, at 57%, among scheduled tribes and castes which accounted for 45% of the state s population. Rural poverty resulted largely from the generally low level of productivity in agriculture, which was the major source of income for small farmers and agricultural laborers. Average per capita income was $274 but its distribution highly skewed such that 60% of farm households were earning less than $150 per year. 2. Agriculture accounted for 33% of the state s gross domestic product and 86% of employment during It was dominated by rice production, which accounted for around three-quarters (4.0 million) of the total cultivated area of 4.8 million hectares (ha). Only 23% of rice was grown under irrigation. As a whole, irrigation covered 1.3 million ha, of which major (greater than 10,000 ha), medium (2,000 to 10,000 ha), and small (less than 2,000 ha) systems accounted for 43%, 20%, and 37%, respectively. Irrigation efficiency was low and utilization well below potential. The areas actually irrigated ranged from below 50% on minor schemes to 75% for major schemes and a third of minor schemes had less than 30% utilization. Average cropping intensity including both irrigated and rainfed areas was 120% and average yield of irrigated paddy was 2.5 tons per ha. This compares unfavorably with, for instance, Punjab, where cropping intensity was 180% and paddy yield 4.0 tons per ha. The low level of productivity in irrigated agriculture resulted from low irrigation efficiency. Although investment into irrigation was a key strategy of the Chhattisgarh State Government at the time to address food security and poverty issues, improving the efficiency of irrigation infrastructure was constrained by institutional issues. The Water Resources Department (WRD) had a staff of more than 3,500 (many of whom had transferred from the former Madhya Pradesh government), but skill levels were in need of improvement. It also lacked sufficient funds for effective inspection and maintenance. Water management procedures were outdated or nonexistent. There was little farmer participation in scheme management and operation and maintenance (O&M) as water users associations (WUAs) lacked funding or requisite skills. WRD typically collected only 20% 25% of irrigation service fees and around 80% of its O&M budget was spent on establishment costs. 3. The project was designed to improve irrigation delivery, enhance agricultural practices, and strengthen water resources management to increase agriculture productivity and incomes. The project impact (goal at appraisal) was to improve rural livelihoods and reduce poverty. The outcome (purpose at appraisal) was to (i) attain more effective management, development, and O&M of irrigation systems by WRD and WUAs for improved irrigation service delivery; and (ii) improve agricultural practices for increased yields and expand the area of dry season and more diversified cropping. The project comprised four outputs (components at appraisal): (i) strengthening WRD, consisting of institutional reforms and capacity development; (ii) strengthening the institutional framework and capacity development for WUAs while supporting participatory irrigation management (PIM); (iii) rehabilitating and upgrading irrigation systems; and (iv) encouraging and enabling farmers to improve their farming systems. 1 ADB Report and Recommendation of the President to the Board of Directors: Proposed Loan and Technical Assistance Grant to India for the Chhattisgarh Irrigation Development Project. Manila.

11 2 II. EVALUATION OF DESIGN AND IMPLEMENTATION A. Relevance of Design and Formulation 4. At the time of project design, the Asian Development Bank (ADB) country strategy and program was the first to include operations in agriculture and rural development as the most important feature to mainstream poverty reduction. 2 The strategy also sought to focus on key states that had poverty higher than average, that were new or important for regional cooperation, and that had strong commitment to reform. Chhattisgarh satisfied each of these criteria. The project design was also consistent with ADB s Water Policy of improving governance, building capacity in water sector institutions, water conservation, and improving irrigation system efficiency. Similarly, the Indian government s Tenth Five-Year Plan focused on promoting equitable growth through sustainable agriculture and rural development. 3 At state level, Chhattisgarh s own development plans sought to increase the primary sector s contribution to the state s economy by 50% over the following 10 years. The objective and approach adopted in formulating the CIDP were firmly in line with the objectives and strategies of both state and national governments and ADB. 5. The project was designed with project preparatory technical assistance (PPTA). 4 The PPTA terms of reference focused on technical studies (including problem diagnosis) and institutional analysis to prepare a sector investment project for improving irrigation and agricultural production in Chhattisgarh. The performance of the PPTA consultants was rated satisfactory by ADB. During appraisal in September 2004, it was decided that because a cohesive sector framework and the required institutional capacity were not yet in place, the project should be processed as a project loan with a sector-type approach for irrigation scheme rehabilitation and upgrading (R&U) only. Moreover, it was decided that the project would include significant capacity development and institutional strengthening. B. Project Outputs 6. Outputs discussed are those defined in the project framework of the report and recommendation of the President. That framework and achievements against targets at project completion are in Appendix Institutional Strengthening and Capacity Development for the Water Resources Department 7. In addition to general strengthening of WRD, the project proposed to establish four new operational units within WRD: (i) a central PIM unit (PIMU) and regional PIMUs to mobilize and train WUAs, (ii) a design unit (and survey team) for design activities and scheme rehabilitation under the project, (iii) a social development unit (SDU) with responsibility for social and environmental issues as well as economic analysis of schemes to be rehabilitated under the project, and (iv) a dam safety unit. It was also proposed to establish four training centers collocated with regional PIMUs for building capacity of WRD, WUA, and farmers. 2 ADB Country Strategy and Program: India, Manila 3 Planning Commission, Government of India Tenth Five-Year Plan, New Delhi. 4 ADB Technical Assistance (Financed by the Government of the United Kingdom) to India for Preparing the Chhattisgarh Irrigation Development Sector Project. Manila (approved on 13 November 2003 for $900,000 and completed in September 2004).

12 3 8. In partial compliance with the loan agreement (Schedule 6, para. 4), WRD established at central level the dam safety, PIM, and social development units in July 2006 but no design unit. The responsibility for scheme designs was assigned to project consultants (Package C, para. 29). 5 Both the PIMU in particular and the SDU were central to the introduction of PIM and establishment of WUAs in project-supported schemes and, over the longer term, throughout Chhattisgarh. From the outset, however, the central PIMU was not adequately staffed and staff either was not appropriately qualified or undertook activities not related to PIM. The tasks of the SDU were taken over by project consultants. In spite of repeated requests by ADB project review missions, WRD did not effectively address these concerns. At the time of the project completion review, neither the PIMU nor SDU were functioning effectively. The PIM strategy proposed by project consultants and effective staffing of the PIMU had not been approved by the state government. The final report of the consultants engaged under the associated technical assistance (TA 4573, see para. 28 herein) 6 suggested that a lack of commitment was the main constraint to effective implementation of PIM under the project. 7 However, individual field officers of WRD, sometimes in conjunction with Department of Agriculture (DOA) staff, are reportedly continuing to disseminate the PIM and improved agricultural practices messages. In addition, WUA federations are taking up with the state government such general concerns relating to PIM and WUA activities as input supply, output marketing, scheme O&M, and replication of PIM to other areas. 9. Project design included the establishment of four training centers: one central facility in Raipur, the state capital, and three regional centers in Ambikapur, Bilaspur, and Jagdalpur. Due to security issues in the south of Chhattisgarh, the Jagdalpur center was dropped from the project. The remaining three were constructed though not equipped to the extent envisaged by project design. All three centers were fully operational by the end of January Each center was headed by a regular WRD executive engineer rather than a training or capacity development specialist and staffing by WRD was limited. However, the centers were used by project consultants and nongovernment organizations (NGOs) to deliver training during project implementation. Following project closure, no further training was delivered. 10. Based on a needs assessment by project implementation consultants, a capacity development program for WRD was developed and, by project closure, 2,064 WRD staff had been trained in PIM, water management, ADB project procedures, and other subjects. The project design included a variety of workshops and study tours for the state government to be exposed to PIM, water management, etc. From 1 to 10 May 2007, an international study tour was organized to the International Centre of Excellence in Water Resources Management in Australia. A second tour to Spain was proposed and approved by ADB but did not take place. Eight WRD staff did, however, attend general water management workshops and in-field knowledge sharing in Gujarat and Andhra Pradesh organized by ADB and financed by the Multi- Donor Trust Fund 8 Water Financing Partnership Facility for a variety of participants including 5 Small field-level units were established and continue to operate. 6 ADB Water Users Association Empowerment for Improved Irrigation in Chhattisgarh Final Report. Consultants report. Manila (TA 4573-IND). 7 Toward better understanding the context, it can be said that, as designed, CIDP represented a relatively small part of WRD responsibilities and accounted for around 15% of the total area irrigated in Chhattisgarh. Whereas during preparation there had been significant support for the project at WRD Secretary level, personnel changes occurring shortly after project start-up undermined the commitment within WRD at senior management level. There was also a general lack of ownership at the field level. 8 Financing partners included the governments of Australia, Austria, Norway, Spain, and Switzerland. Administration was provided by ADB.

13 4 staff from projects in other states in India and from Bangladesh. In general, the state government was reluctant to finance staff training and study tours from loan proceeds. 2. Improved Institutional Framework and Capacity Development for Water Users Associations 11. In addition to proposed institutional changes within WRD, a key aspect of the institutional reforms for improved irrigation management supported under the project was support for preparing a new Participatory Irrigation Management Act. This was undertaken by consultants contracted under TA The state government approved the new PIM Act in March Key aspects of the PIM Act included delegation of scheme O&M to WUAs, allowing WUAs to retain a share of water charges collected from farmers to finance O&M, and empowerment of women. Under the system prevailing at project start-up, water charges were collected by the local government administration in collaboration with WRD. 9 The state government was then supposed to return to WUAs 25% of the water charges collected. In practice, the full amount due was rarely, if ever, returned. TA 4573 consultants proposed to increase a WUA s share of water charges to 85% and for that share to be retained by the WUA. The state government did not agree to the 85% share but did agree to increase it to 50%. The increase was approved by the state government and published in the official Gazette on 3 August However, the proposal for WUAs to retain their share of water charges at source was not adopted. 12. Revisions to the PIM Act were also proposed in respect of WUA capacity building to facilitate WUA elections. WUA elections scheduled for June 2005 under PIM Act provisions in force prior to project implementation were postponed to allow for the proposed amendments to the PIM Act. Elections were held in February They were the first WUA elections in India in which places on the WUA management committee were reserved for women and less well represented and socially excluded communities (Scheduled Tribes, Scheduled Castes, and Other Backward Classes ) in accordance with the PIM Act. Information covering elections at 1,320 WUAs indicate that women s representation among WUA presidents and WUA committee members was 1.8% and 34.1%, respectively (para. 15). The next elections were scheduled for February 2012 but they were postponed. 10 They were rescheduled for February The elections did not take place, however, and no new date has been proposed. As such, WUA management committees, which under the PIM Act have a tenure of 5 years plus a possible extension of 3 years, no longer have authority. As the competent authority, WRD will take responsibility for WUA management until elections take place. 13. The principal focus of WUA capacity building was the WUA Capacity Development Program designed for delivery through the regional training centers by the PIMUs using village meeting facilities with the support of an NGO contracted under the project (NGO Package A, para. 28). WUA mobilization and capacity building was supported by the capacity development NGO. A total of 191 WUAs were provided training in WUA roles and responsibilities and management, PIM, water management, agriculture practices, and the like. It was proposed to provide the remaining 1,133 non-cidp WUAs (of Chhattisgarh s total of 1,324 WUAs) with more general training. A total of 1,061 WUAs received training, which included aspects of the PIM 9 Although WRD assesses water charges payable by individual farmers, collection is the responsibility of the patwari, a local government official not employed by WRD. Funds collected are transferred to the state exchequer. WRD has no involvement in repaying the share of water charges to WUAs. 10 Support for promotion of women and a pre-election awareness campaign for the 2012 elections was provided through a grant of $150,000 under the ADB-financed TA 6143 (REG): Promoting Gender Equality and Women s Empowerment, approved on 28 November 2003 for $1.5 million from the Gender and Development Cooperation Fund.

14 5 Act, PIM principles, and financial management. 11 The project also provided support for WUA capacity building through one-off grants to be administered by WRD to assist in WUA establishment, obtaining basic equipment, etc. All WUAs that had received support under the WUA Capacity Development Program were eligible for a grant of Rs45,000 ($850) for CIDP WUAs and Rs22,500 ($425) for other WUAs. By project completion, 359 grants totaling Rs8.91 million ($169,230) had been provided. Grants to CIDP WUAs numbered 86 with a total value of Rs2.77 million ($52,610). This represents 45.0% of the 191 eligible CIDP WUAs. There were 273 grants to non-cidp WUAs totaling Rs6.14 million ($116,620) and representing 31.4% of the 870 eligible non-cidp WUAs and 24.1% of the total of 1,133 non-cidp WUAs in the state During implementation, with support of the agricultural support services NGO Package B, several WUAs successfully engaged in collective purchase of inputs and marketing of outputs, resulting in reduced costs and increased income. Eight WUAs were supported in their establishment and legal registration (as shareholding limited companies) of four producer firms to formalize procurement and marketing activities. The four continued in operation at the time of the project completion review. WUAs were also supported to engage in seed production by registered participating farmers to address the limited availability of quality seed in Chhattisgarh. Starting in 2010, this WUA-managed seed production covered 98 ha. By the 2012 kharif season, 13 it covered 3,623 ha and involved 2,418 farmers in 76 WUAs across 43 schemes. 15. Broader dissemination of project messages was conducted through an education, information, and awareness-building campaign prepared by TA 4573 and delivered at field level by NGO Package C. Dissemination materials included newsletters; WUA pocket diary and year planner; posters; a comic-book explanation of the PIM Act; crop and water management information; and a documentary film on the likes of farmer capacity building, WUA leadership, and conflict management. The NGO was also tasked with creating awareness of the WUA elections scheduled for February 2013, although these were finally postponed. The education, information, and awareness-building program was delivered statewide, not only in CIDP WUAs, and it played an important role in supporting the creation of WUA federations. These federations represent WUAs from all irrigated areas of Chhattisgarh and continue to lobby government on behalf of farmers interests, in particular with respect to spreading the PIM lessons of the CIDP. 16. A special feature of the project design was improving women s access to and participation in irrigation and water management activities by removing institutional, social, and cultural barriers to women s empowerment. It was proposed that the revised PIM Act would designate households as members of WUAs, so that both women and men could attend meetings, vote, and stand for election. Women would be represented on WUA management committees and all subcommittees, with a target representation of 30% on all committees. The PIM Act was enacted as proposed, ensuring gender equity in governance and decision-making processes and greater empowerment of women in WUA affairs. Women committee members accounted for 34.1% (2,598) of the total committee membership of 7,622, and 24 WUAs out of the total 1,324 (1.8%) elected women presidents in the 2007 elections. Appendix 2 provides a detailed analysis of achievements in respect of gender. It was intended at the project level that initially 10% of PIMU trainers would be women, rising to 20% by year 3. At project completion, 13% of trainers were women. 11 Around 100 WUAs in the south of Chhattisgarh could not be covered due to security concerns. 12 These figures derive from WRD s project completion report submitted in September Kharif is the wet (monsoon) season, usually extending from June to October. Approximately 90% of Chhattisgarh s rainfall occurs from mid-june to the end of September.

15 6 3. Rehabilitation and Upgrading of Existing Irrigation Schemes Leading to Improved Performance 17. The project was designed to rehabilitate 20 medium and 200 minor irrigation schemes, averaging 5,000 ha and 500 ha, respectively, and thus take in around 200,000 ha. That total is equivalent to 15% of the overall irrigated area in Chhattisgarh. The R&U scheme was intended to be a collaborative effort among the PIMU, SDU, WUAs, and WRD field staff, with the PIMU playing a coordination role. The first year of the program was intended (among other things) to operationalize the PIMU and SDU, mobilize and build the capacity of WUAs (through the WUA Capacity Development Program), establish scheme selection criteria, and select and prepare designs for pilot schemes. R&U of the remaining schemes was to take place over 6 years. It became clear at an early stage in implementation that the proposed R&U process faced problems due to (i) institutional issues related to the design unit, PIMU, and SDU (among others); (ii) inappropriate scheme selection criteria with respect to WUA capacity and involvement; and (iii) insufficient water in many schemes to achieve the required rabi season cropping of at least 30% of the command area. 14 These issues were addressed by relaxing the selection criteria and delegating scheme R&U designs and feasibility studies to project consultants (under Package C, para. 29). 18. Initial progress was slow due to strict contractor eligibility criteria. These were subsequently relaxed by removing the requirement for contractors to have irrigation civil works experience. In addition, the bidding period was shortened. By the midterm review in 2010, contracts had been awarded to rehabilitate 148 schemes covering 177,130 ha and 47 schemes covering 28,372 ha (16.0%) were reported to be completed. The quality of construction was in a number of cases inconsistent and poor. 15 It also appeared that contractors focused on largerscale works and neglected smaller ones, which were in fact critical for effective water management. It was agreed at midterm review that no new schemes beyond the 148 already agreed would be included until proposed corrective measures had been adequately costed and the issues at all completed schemes resolved. The midterm review also required an increase in the number of scheme inspections. Construction quality improved thereafter. The final number of schemes covered was 144, covering 173,984 ha, comprising 23 medium schemes (108,563 ha) and 121 minor schemes (65,421 ha). Details of the R&U work completed are in Appendix It was originally planned to construct field channels covering 100,000 ha (i.e., half the area to be rehabilitated and upgraded). This proposal was based on a cost of Rs2,000 per ha, of which beneficiaries were to contribute 10%. However, the rate paid for field channel development under the command area development and water management program of the government was Rs12,000 to Rs 15,000 per ha. The state government revised the rate for the project to Rs10,000 per ha in October As a result, the area to be covered was subsequently reduced to 20,000 ha. It was also agreed that the beneficiary contribution would be made in-kind as labor. In spite of these revisions, the development of field channels was well below the revised target due to (i) delay in starting the activity, which depended upon substantial R&U works having been completed; (ii) initial reluctance by some WRD field officers; (iii) shortage of support staff to complete surveys and prepare estimates; and (iv) reluctance of some farmers to voluntarily provide land. By project completion, field channels covering 5,300 ha in 19 schemes had been constructed. Details of field channel construction by scheme are in 14 Rabi is the dry season, usually running from December to March. 15 Of the nine subprojects visited by the midterm review mission that were reported to be completed, none were found compliant with their design and appraisal reports. In one case, the scheme was reported to be completed and the contract closed while works appeared to be unfinished.

16 7 Appendix 3. The construction of field channels contributed to significant improvement in water management by delivering water directly to individual farmers fields. 4. Improved Capacity and Willingness of Farmers to Engage in Rabi Cropping and Diversified Farming in Irrigation Systems 20. As designed, the project was to deliver farm-level support through the PIMU structure, with a full-time DOA deputy director seconded to each regional PIMU to be supported by two irrigated agriculture specialists under the agricultural support services NGO Package B. It was intended that these PIMU staff would work with WUAs and farmers on a long-term basis to improve agricultural practices and develop input and output marketing strategies through links with private sector enterprises and related agriculture service providers. This mechanism was expected to result in higher yields, increased cropping intensity, crop diversification, and improved farm incomes. The associated TA 4573 was to provide support to this process. 21. Intensive intervention program (IIP). TA 4573 adopted a holistic approach to the delivery of water management (referred to as Managing Kharif for Rabi to increase water availability in the rabi season) and agriculture support services to WUAs and farmers through year-round hand-holding and WUA collective action. Details of the IIP approach and results are in Appendix 4. The IIP was piloted during 2007 in seven schemes covering 11,000 ha. This was extended during implementation until the IIP encompassed 78 schemes covering 115,871 ha, equal to 66.6% of the total area of 173,984 ha covered under the project. By project completion, average kharif paddy yield was recorded at 5.91 tons per ha, an increase of 211% over the pre-project figure of 2.8 tons per ha and 180% higher than the project target of 3.30 tons per ha. 16 Kharif season cropping intensity in areas covered by the IIP was 100%, thus exceeding the project target of 90%. The IIP also introduced the system of rice intensification on a pilot basis in 2010 and achieved dramatic results with paddy yields up to 11.3 tons per ha (achieved by one farmer and measured by crop cutting). The impact of the IIP was also observed in rabi season cropping. Cropping intensity increased from 6% in the rabi season to 53% in the season. That compares with a project target of 40%. In addition to the increased rabi season area, cropping was diversified with the introduction of maize, wheat, sunflower, groundnuts, pulses, green gram, and mustard. Yields achieved for these crops in project areas were generally above state averages and resulted in marketable surpluses. 22. Non-IIP intervention. There were 66 schemes covering 58,113 ha wherein the IIP was not implemented. In these schemes, the project supported enhancement of WUA and farmer knowledge on PIM and the PIM Act, as well as the water management and agricultural practices promoted through the IIP. Farmers and WUA representatives participated in project training and undertook exposure visits to IIP schemes to learn how to implement IIP approaches, but they did not enjoy the same degree of hand-holding. This task was entrusted to the agricultural support services NGO Package B under the supervision of TA 4573 consultants. As the project focused on achieving success in IIP schemes, achievements in non-iip schemes were not adequately assessed quantitatively. Nevertheless, participants and stakeholders indicated that cropping intensity, yields, and crop diversification have improved or are expected to improve compared with the situation prior to project implementation. 16 Based on a sample of 1,071 (25 square meter) crop cuts undertaken across 50 schemes covering 101,312 ha at the end of the 2012 kharif season and certified by DOA, WRD, and WUAs.

17 8 C. Project Costs 23. At appraisal the cost of the project was estimated at $66.6 million, of which ADB was to finance $46.1 million (69%), the government $19.9 million (30%), and beneficiaries $0.6 million (1%). Actual project cost was $43.0 million, 65% of that estimated. ADB financed $32.4 million (75.5%) and the government financed $10.5 million (24.5%), comprising $8.6 million for direct project activities and $1.9 million in interest and commitment charges during implementation. The contribution of beneficiaries, which was provided in kind in the form of land and labor for field channel construction, was estimated at $33,240, equal to 0.1% of total project costs. 17 As a result of the slow project start-up and increased role foreseen for project consultants and NGOs, the allocation of project funds by expenditure category was revised in December Overall, actual project cost, excluding finance charges, was 69.8% of estimated cost. Estimated and actual project cost and variances are detailed in Appendix 5. D. Disbursements 24. Total loan disbursement was $32,443,927, equivalent to 70% of the loan s $46,108,000. At loan closing, $13.66 million remained undisbursed and was cancelled. Appendix 6 provides a breakdown of annual disbursements by expenditure category and actual disbursements against loan agreement amounts. The first disbursement was on 27 April 2007 and the final disbursement on 22 August At WRD s request, neither an imprest account nor secondgeneration imprest account was established as required by the loan agreement (Schedule 3, para. 7). In spite of the noted implementation delays, the schedule of actual disbursements closely reflected that projected at appraisal. The associated TA 4573 was approved on 29 March 2005 in an amount of $1,900,000 from the Government of the United Kingdom. Following a number of supplementary approvals and partial cancellations between October 2008 and February 2012, the final TA amount was $2,700,000. Of this, $2,150,000 was provided by the Government of the United Kingdom and $550,000 was from the Water Financing Partnership Facility multi-donor trust fund. The first disbursement was on 5 December 2005 and the final disbursement on 24 March The TA contract was financially concluded on 1 April Disbursement under the TA totaled $2,641,442, equivalent to 97.8% of total funding available. E. Project Schedule 25. The project was designed to be implemented over 7 years from 2005 to The loan was approved on 29 March 2005 and the loan agreement signed on 20 March The loan was declared effective on 30 June 2006, 12 days later than anticipated in the loan agreement and 90 days after the date of that agreement. The loan was closed as scheduled on 31 March The period between loan effectiveness and closing was 6 years, 9 months. Delay of about 14 months in achieving loan effectiveness following approval was mainly due to delay in fulfilling conditions of loan effectiveness (e.g., staffing of the project management unit, designating counterpart staff for new WRD units, completing inventory of tank irrigation schemes). Mobilization of Package B consultants under TA 4573 on 28 November 2005, however, meant that much preparatory work had been undertaken by the time the loan became effective. 17 On the basis of a 10% contribution to the cost of field channel construction estimated from the value of contracts awarded to WUAs for this purpose.

18 9 F. Implementation Arrangements 26. WRD was designated as the project s executing agency. The government was required to establish a project steering committee before loan effectiveness to provide policy guidance and coordination. The steering committee was to be chaired by the Chief Secretary of the state government. The state government decided that the steering committee established for the PPTA would continue to provide overall policy guidance and review of project progress. As the steering committee was comprised entirely of secretary-level officials, it was difficult to arrange steering committee meetings. A Project Technical Coordination Committee was established in March 2007 to provide regular technical coordination and supervision. That committee comprised high-level, line agency staff and was chaired by the Secretary of WRD. In addition, a working group headed by the Secretary of WRD and including other WRD officers and the TA 4573 team leader was constituted to provide more frequent guidance to the project. 18 A project management unit (PMU) was to be established within WRD and be managed by a project director reporting to the Secretary WRD through the Engineer-in-Chief. The PMU was established in July 2006, although the first project director had been provisionally in place since September 2004, during project preparation. At the outset, the PMU had limited staff and comprised only engineering expertise. None of the staff required in nonengineering disciplines were posted. 19 By September 2006, only 7 of the 57 PMU posts had been filled. PMU staffing levels, high staff turnover, and lack of recruitment of nonengineering staff remained an issue throughout implementation. Critically, there were 10 separate project directors during the project period. 20 The project directors appointed were often at lower levels of the WRD hierarchy. Scheme R&U was undertaken through existing WRD zone and division staff under the direction of a chief engineer. The project director, therefore, had no authority over these staff, resulting, for instance, in delayed decision making and underachievement in certain project activities, such as field channel development. Much of the work of the PMU, and especially nonengineering activities, was undertaken by consultants. The extent to which PMU and WRD field staff took account of the consultants proposals varied. During the project implementation period, WRD s workload was also significantly increased as a result of government programs. G. Conditions and Covenants 27. Covenants were largely complied with. Out of 36 covenants, 24 were complied with in full, 9 complied with in part, and 3 not complied with. None of those complied with in part or not at all are considered to have been unreasonable or beyond the state government s capacity to comply. No covenants were modified. Appendix 7 details compliance with each loan covenant. The three covenants not complied with were the following: (i) Schedule 6, para. 2 (b) women trainers comprised only 13% of all trainers rather than the 20% stipulated in the covenant. (ii) Schedule 6, para. 5 (b) while the PIM Act allows for the transfer of water fees collected from farmers to WUAs (up to 50% of sums collected), the proposal to allow WUAs to retain fees at source was not approved. Critically, according to PMU management, the state government has never transferred any water fees collected back to WUAs. These issues have implications for 18 The project steering committee met only twice in conjunction with the Project Technical Coordination Committee. The working group met several times to review and/or revise proposals for the PIM Act and address WUA issues. 19 Four deputy-director level staff members from DOA were initially seconded to the PMU but were largely redundant and returned to DOA shortly after project start-up. 20 The longest serving project director was the one in the post at project start-up, who remained for 2 years. The shortest period served was 2 months.

19 10 the long-term sustainability of irrigation schemes rehabilitated under the project. (iii) Schedule 6, para. 7 the state government has not reviewed irrigation water charges. This, too, has a potential effect on irrigation scheme sustainability in that charges do not adequately reflect actual O&M costs. H. Related Technical Assistance 28. Technical assistance (TA 4573) associated with the loan was designed to support preparation and implementation of the PIM Act, provide WUA capacity building, improve agricultural practices, and support monitoring and evaluation. 21 The TA period was 7 years. Consultants (Package B) under the TA were contracted through international competitive bidding on 22 November 2005 and the team leader mobilized on 28 November At appraisal, it was proposed to engage 59 person-months of international and 164 person-months of national consultant inputs. Total TA cost was estimated at $2.375 million. The contract with Package B consultants included 59 person-months of international and 148 person-months of national consultant inputs and total TA cost of $1.723 million. Actual consultant inputs were 73 person-months of international and 300 person-months of national. The TA contributed significantly to establishing the PIM Act, although the state government did not adopt all provisions proposed by the consultants. During the process, the TA also provided capacity building to WRD s PIMU staff. The TA with NGO support contributed significantly in the areas of WUA capacity building and agricultural support services (paras ), and it was instrumental in increasing cropping intensity and yield, improving agricultural and water management practices, crop diversification, etc. Greater success was constrained, however, by the limitations of WRD s PIMU and SDU and difficulties in contracting NGOs and retaining NGO staff. I. Consultant Recruitment and Procurement 29. At appraisal it was proposed to provide a total of 382 person-months of consulting services (92 person-months international and 290 person-months national) via two contracts: Package A for general project management and Package C for WRD strengthening and feasibility studies and designs for irrigation scheme R&U. By project completion, 71 personmonths of international and 450 person-months of national inputs had been utilized. Appendix 8 provides a breakdown of proposed and actual inputs of consulting services under the project. As requested by WRD, ADB assisted in recruiting Package A consultants. Consultants were selected in July 2006 and mobilized in October Although advance action for recruiting Package C consultants was approved by ADB at appraisal, the limited experience of WRD in consultant recruitment resulted in the process taking 14 months to complete. The contract for Package C consultants was signed in July 2006 and the team leader mobilized on 8 September The recruitment of consultants followed ADB s Guidelines on the Use of Consultants. Package A and C consultants were both recruited through quality- and cost-based selection. 30. In accordance with project design, three NGOs were contracted to support implementation in PIM and WUA capacity building (NGO Package A), agricultural support services (NGO Package B), and education and awareness building (NGO Package C). NGOs were contracted using local competitive bidding. A single contract for NGO Packages A and B was awarded in November 2007, but, due to poor performance of the NGO and concerns over its financial management, the contract was terminated in August Separate contracts were 21 TA 4573 was part of Government of the United Kingdom s Department for International Development cluster TA, CTA 003-IND: Advanced Project Preparedness for Poverty Reduction.

20 11 then awarded for NGO Packages A and B. Agreements were signed in March 2010 and both teams fielded in May The contract for NGO Package C was awarded in November 2007 and the team fielded in December NGO Package A and B contracts were closed in March 2013 and the NGO Package C contract in November Total disbursement under the three NGO packages was $1.76 million. 31. The project awarded 319 civil works contracts in respect of irrigation scheme rehabilitation. Of these, 167 contracts were awarded through the direct contracting method to WUAs for constructing field channels (61 contracts) and undertaking priority R&U works (106 contracts). The remaining 152 civil works contracts were awarded using national competitive bidding or shopping methods. A further 6 civil works contracts were awarded using national competitive bidding for construction of training centers. Equipment supply contracts were awarded under shopping or national competitive bidding procedures. Twenty-five contracts were awarded for vehicles and equipment. Other expenditure categories with significant procurement included 3 consulting services contracts; 30 contracts under WUA support and facilities (including 22 contracts covering grants to WUAs); and 6 contracts for training, studies, and surveys. Appendix 9 details contracts by expenditure category and reviews the procurement. J. Performance of Consultants, Contractors, and Suppliers 32. Given the constraints faced with respect to establishing and staffing the PMU and new implementation units in WRD and the variable levels of commitment by WRD staff to the principles and concepts promoted under the project, project consultants were not adequately supported and were required to take on much greater responsibility for implementation than expected. This was particularly the case with respect to R&U design and supervision (para. 17). The working relationship between consultants and PMU staff was, however, generally satisfactory. The performance of consultants is rated satisfactory. 33. NGOs, which were responsible for a significant capacity building effort under the project, faced similar difficulties (e.g., lack of commitment, inexperience of working with NGOs) in working with WRD staff at field level. In addition, NGOs faced a number of other issues, including problems in recruiting and retaining staff, lack of funds to prefinance project activities, delays in receipt of payments from WRD, and failure to obtain tax exemption as nonprofit organizations. In spite of this and given the achievements in WUA capacity building, the performance of NGOs is rated satisfactory. 34. The quality of civil works undertaken by contractors was generally low (para. 17), especially in the early stages of implementation. The tendering process was generally slow (9 months on average) and difficult, in part because contractors did not understand the process. The situation improved following (i) relaxation of contractor eligibility criteria, (ii) adoption of greater responsibility for construction management and supervision by Package C consultants, and (iii) improved interaction of the consultants procurement specialist and local WRD executive engineers. Nevertheless, the overall performance of contractors is rated less than satisfactory. 22 With respect to equipment procurement, the tendering process was generally slow but no issues with respect to supply were raised during implementation. The performance of suppliers is rated satisfactory. 22 However, no assessment was made during implementation of the works carried out under WUA contracts, nor was it possible to do so during the project completion review.

21 12 K. Performance of the Borrower and the Executing Agency 35. As the borrower, the Government of India had limited direct involvement in project implementation. That was the responsibility of WRD as the executing agency. The Government of India s Department of Economic Affairs nevertheless undertook periodic monitoring of project activities, including contract award and disbursement through tripartite portfolio review meetings with ADB and WRD. In addition, a joint secretary and director of the Department of Economic Affairs visited the project area together with ADB staff in February 2009 to expedite project implementation. The borrower s performance is considered satisfactory. At state level, the state government was supportive of the PIM Act, although it disagreed with key recommendations of TA 4573 consultants, namely the share of water charges to be returned to WUAs and that water charges should be retained at source by WUAs. To date, even the agreed share of water charges collected from farmers has not been returned to their WUAs. The effectiveness of WRD was mixed and depended to an extent upon the personal commitment of senior WRD staff and the project director. Frequent changes of project director also adversely affected project implementation. At the outset, WRD failed adequately to staff the PMU with disciplines other than engineering. It also failed to establish or effectively implement key support units proposed in the project design. This, too, undermined project implementation, especially in social and agricultural activities, and it placed an increased burden on project consultants. Overall, the performance of WRD is rated less than satisfactory. L. Performance of the Asian Development Bank 36. ADB supervised the project extensively over several years, with PPTA and loan factfinding missions in July 2003 and May 2004, respectively. The loan inception mission was fielded in November The midterm review mission took place in February 2010, and the project completion review mission in November Responsibility for administration of the loan was delegated to the India Resident Mission in September From the time of the PPTA until project close, four ADB project officers were responsible for the project. ADB assigned staff with in-depth technical expertise in water resources management and strong country experience, which ensured effective project supervision. WRD expressed no concerns with respect to any dealings with ADB and was appreciative of the proactive support it received. Overall, ADB s performance is rated satisfactory. III. EVALUATION OF PERFORMANCE A. Relevance 37. At the time of appraisal, the project was relevant to government and ADB goals and strategies in the agriculture sector. It remains relevant in terms of ADB s country partnership strategy 23 and the Indian government s Twelfth Five-Year Plan. 24 The assessment of problems and opportunities undertaken during project preparation led to a project design providing significant potential for improvements in farm household income and, therefore, poverty reduction. Concerns exist, however, as to the adequacy of the assessment at appraisal of the commitment of the state government and WRD to the PIM principle promoted by the project (para. 35). These concerns were addressed during implementation by giving consultants and NGOs a greater role in scheme PIM development, R&U design and supervision, and capacity building for WUAs and farmers. Overall, the project is rated relevant. 23 ADB Country Partnership Strategy: India, Manila. 24 Planning Commission, Government of India Twelfth Five-Year Plan, New Delhi.

22 13 B. Effectiveness in Achieving Outcome 38. The attainment of project outcomes reflected the intensity of support provided under the project. In IIP schemes, irrigation management and the participation of WUAs in scheme O&M improved significantly (Appendix 3). There was also improvement in agricultural practices, with an increase in kharif season paddy yields (from 2.4 to 5.9 tons per ha) and cropping intensity (100% compared with a target of 90%). In the rabi season, there were gains in cropping intensity (to 53% compared with a target of 40%), crop diversification, and crop yields (para. 21). The supply of water to downstream farmers in rehabilitated schemes also improved. Results in non-iip schemes are not documented, but consultation with stakeholders indicated increases in cropping intensity, yields, and crop diversification compared with the situation before project implementation. On the institutional level, the project brought improvement in the overall legislative and institutional framework for implementation of PIM and improved capacity and willingness among farmers to collaborate through WUAs, adopt improved agricultural practices, and intensify and diversify agriculture. Overall, based on the success of the IIP, the project was effective in achieving the outcome. C. Efficiency in Achieving Outcome and Outputs 39. At appraisal, economic analysis of the project indicated it to be viable, with an economic internal rate of return (EIRR) of 22.1%. Reestimation of the EIRR (Appendix 10) indicates the project was economically viable, with an EIRR of 23.8%. With respect to efficiency of process, results are variable. There were implementation delays at the start of the project that led, in part, to a lower level of irrigation scheme rehabilitation than projected. WRD is considered to have been less than efficient, largely because proposed institutional strengthening of WRD was not implemented. This contrasts with the level of efficiency displayed by ADB, which closely supervised the project from preparation and throughout implementation and sought to ensure that the project was implemented as designed. Overall, and in spite of the highly efficient rating based on the reestimated EIRR, given implementation problems the project is rated efficient. D. Preliminary Assessment of Sustainability 40. A special feature of the project defined in the report and recommendation of the President was sustainability, which would be ensured by the effective participation of WUAs in scheme R&U and especially O&M. The failure of the state government to share with WUAs water charges collected for scheme O&M and the fact that management of minor schemes was not transferred to WUAs raise concerns over project sustainability. In schemes where the IIP was implemented, improvements in yields and cropping intensity suggest that farmers may be willing to continue in utilizing improved crop practices and maintain field-level scheme infrastructure in spite of limited or nonexistent support from local DOA and WRD offices and the lack of funds due from water charges collected. Sustainability will nevertheless depend upon the transfer of water charges to WUA and support from DOA and WRD, particularly in respect of extension support for improved agricultural and water management practices and periodic scheme maintenance, respectively. In non-iip schemes, the project aimed to develop a sense of ownership among farmers but they did not receive the same level of intensive support and benefits as did IIP schemes. As such, the project overall is rated less than likely sustainable. E. Impact 41. Overall, the project impact is rated significant. It has clearly demonstrated that an effective PIM strategy resulting in greater WUA and farmer ownership and participation in irrigation management can contribute to increased crop yields, cropping intensity, and crop

23 14 diversification. Project interventions have supported improvement in water availability at field level, implementation of improved agricultural and water management practices, raising of awareness throughout the state regarding the rights and responsibilities of WUAs, and, in some cases, boosting the capacity of WUAs to undertake collective action for input and output services. These factors have had a significant impact by increasing farm incomes of almost 135,000 farm households under the IIP and a further 65,000 households in non-iip schemes, thereby reducing poverty. A farm income analysis at project completion review suggests that average farm income in 2014 prices has increased from Rs27,415 before the project to Rs65,806 after the project, a gain of 140%. The national poverty line income in mid-2013 was Rs48,960. Chhattisgarh has, in recent years, had a poverty incidence greater than the national average and a poverty line income below the national average. The increase in farm income resulting from the project s IIP activities has made a significant contribution to raising the household income of the average farm in relation to the poverty line level of income. The significant increase in crop yields, especially of rice, the staple food of project area households, has enhanced household food security. Crop diversification has not only expanded the range of marketable outputs, it has also contributed to a broader diet and enhanced nutritional status. 42. Gender impact. The project made significant improvements in boosting the participation of women in irrigation management. The new PIM Act makes women eligible both for WUA membership as members of farm households as well as for election to WUA governing bodies and committees. More needs to be done in practice to ensure that women participate effectively, inasmuch as their representation as WUA committee members, and especially presidents, was limited (para. 12). An opportunity exists to expand women s participation with the next WUA elections, although these have yet to be scheduled. 43. Impact on indigenous peoples. The project was expected to have no significant adverse impacts on indigenous peoples because project interventions were limited to R&U for minor and medium irrigation schemes. At the institutional level, through the new PIM Act, the project laid the groundwork for improvements in the participation of minority and disadvantaged groups in irrigation scheme management by facilitating their representation in WUA management bodies. An opportunity exists to further promote this principle and to realize increased participation through the next WUA elections. 44. Environmental impact. Limited environmental monitoring was undertaken during project implementation. A post-project socioeconomic survey that included an assessment of environmental impacts nevertheless indicates that negligible or very limited negative environmental impacts resulted from project implementation. 25 Environmental impacts were found to be positive. Details are in Appendix 11. IV. OVERALL ASSESSMENT AND RECOMMENDATIONS A. Overall Assessment 45. Based on assessment of the project as relevant, effective, efficient, and less than likely sustainable, the project overall is rated successful. It was implemented largely as designed and achieved most of the outcome and output indicators, with the exception of full institutionalization of the PIMU and SDU in WRD. Such problems as weak capacity of WRD and WUAs and the engineering focus of WRD officers were addressed through capacity building of both WRD staff 25 ADB TA-8191 REG: Enhancing Gender Equality Results in South Asia Developing Member Countries (Phase 2) (Subproject 3). Manila.

24 15 and WUAs in such areas as PIM and improved agricultural and water management practices, especially through the IIP. This resulted in higher cropping intensity and increased crop yields, farmers incomes, and food security. B. Lessons 46. Major lessons from the project are as follow: (i) where principles and approaches proposed under a project are innovative in the context of the prevailing institutional framework, capacity building of implementing agencies should be undertaken in advance to ensure ownership of those principles and the capacity to implement projects dependent upon them; (ii) effective ADB supervision can help to overcome limitations in implementing institutions capacity; (iii) project preparation should consider the capacity of local civil works contractors and ensure that eligibility criteria for bidding are not so prescriptive that they preclude participation by all but large contractors who may not be interested in smaller-scale works; and (iv) some form of incentive may be necessary to attract staff to project management units and new units or sections within executing agencies specifically established for project activities. C. Recommendations 1. Project Related 47. ADB should continue to collaborate or maintain dialogue with the state government to (i) continue WRD reorganization and refocusing of its activities to make it a more service-oriented institution, (ii) pursue the PIM approach and the agricultural practices introduced under the project with a view to replication throughout the state, (iii) ensure that WUAs receive the allotted share of water charges collected, (iv) monitor the result of the WUA elections when they take place and assess the extent to which women and minority groups account for WUA president and committee positions, and (v) undertake a survey of both IIP and non-iip schemes in 3 5 years to compare their relative performance and potential sustainability. It is specifically recommended that the project approaches in PIM and the IIP should be replicated throughout India, both in schemes of all sizes and, if necessary, in individual sections of larger schemes. 48. Timing of the project performance evaluation report. The report should be prepared within the next 12 months. 2. General 49. General recommendations are as follow: (i) to avoid delays in project start-up and make implementation more effective, project preparation should assess the capacity of PMUs that are likely to be responsible for project implementation; (ii) project preparation should not only design project monitoring and evaluation systems but should, where possible, support the proposed executing and/or implementing agency to establish the system so that it is operational from project start-up; and (iii) where there is a long delay between project preparation (and cost estimation), the scale of costs should be reviewed to take account of cost escalation that may reduce the scale of project activities.

25 16 Appendix 1 Design Summary Impact (Goal at appraisal) Improve rural livelihoods and reduce rural poverty Outcome (Purpose at appraisal) 1. Attain more effective management, development, and operation and maintenance (O&M) of irrigation systems by Water Resources Department (WRD) and water users associations (WUAs) for improved irrigation service delivery 2. Improve agricultural practices for increased yields and expand area of rabi (dry season) and more diversified cropping PROJECT FRAMEWORK Targets Specified at Appraisal Increased household income, food security, and well-being for farmers and farm laborers in irrigated systems Decreased incidence of rural poverty in villages near irrigation systems Improved quality of operation and maintenance (O&M) in irrigation systems (downstream users with reliable water supply in kharif season) 2 years after rehabilitation and upgrading (R&U) Better performance of new irrigation systems (at least 90% kharif and 40% rabi cropping intensity) 2 years after R&U Higher yields (at least 3.3 tons of rice) and cropping intensity (130%) in irrigation systems 3 years after R&U More diversified and rabi crops produced (40% rabi intensity and decrease in rice growth in kharif) 3 years after R&U. Actual Achievement a Income on an average farm of 1.7 hectares (ha) has increased (in 2014 prices) from Rs27,415 to Rs65,806, a gain of 140%. Farm income from crop cultivation alone after the project exceeds the national average household poverty line of Rs48,960 (mid-2013), which has generally been significantly above that of Chhattisgarh. The project has therefore helped to lift almost 135,000 farm households above the Chhattisgarh poverty threshold. A further 65,000 households benefited from project support in schemes not included under the intensive intervention program (IIP). O&M improved, especially in IIP schemes. Farmers at the tail ends of schemes are receiving reliable water supply in the kharif season. Refer to Appendix 3 for details. During in IIP schemes, cropping intensities of 100% and 53% were achieved in the kharif and rabi seasons, respectively. During in IIP schemes, increased yields of both kharif crops (rice from 2.4 tons per ha to 5.9 tons per ha) and rabi crops (e.g., wheat from 1.1 tons per ha to 1.4 tons per ha) made a significant contribution to farm household food security. Total cropping intensity of 153% was achieved during During the rabi season, cropping intensity of 53% was achieved and the cultivated area of non-rice crops across a sample of

26 Appendix 1 17 Design Summary Outputs 1. Institutional strengthening and capacity development for WRD 2. Improved institutional framework and capacity development for WUAs Targets Specified at Appraisal WRD with improved functions for units for participatory irrigation management (PIM), social development, design, and dam safety by year 3 Capacity building ongoing for WRD and improved management information system, information technology, and other resources for effective management by year 2 New framework for PIM with greater WUA authority and WRD accountability by year 2 Capacity development program for WUAs established and WUAs enrolled by year 2 Higher resources flowing to WUAs (and WRD) for irrigation O&M by year 3 Actual Achievement a 50 schemes was 50,639 ha, equal to a cropping intensity of 51.8%. Crops introduced include maize, wheat, sunflower, groundnuts, pulses, green gram, and mustard. The PIM, social development, and dam safety units were set up in July No design unit was established. At the time of the project completion review, the PIM and social development units were not functioning effectively. There appears to be little prospect that they will become operational. The Dam Safety Unit was operating as a regulatory body for dam safety throughout the state. WRD capacity building was undertaken under the project, with 2,064 WRD staff receiving training in PIM, water management, ADB project procedures, and other areas. The project supplied computers and peripherals to subdivision level. The management information system developed under the project is being used by WRD throughout the state. The new PIM Act was enacted in March WUA capacity development was undertaken by nongovernment organizations engaged under the project. All WUAs in the state were provided basic training in the PIM Act, duties and responsibilities of WUA, and other subjects while WUAs under the project were given more detailed training in various aspects of irrigation management and agricultural practices. Under the new PIM Act, WUAs share in irrigation water charges collected increased from 25% to 50%. To date, however, no water charges collected have been returned to WUAs by the state government. There appears to be

27 18 Appendix 1 Design Summary 3. R&U of existing irrigation schemes leading to improved performance Targets Specified at Appraisal R&U of minor and medium schemes covering over 200,000 ha with increased cropping intensity by end of project Actual Achievement a little prospect of this changing in the near future. R&U of 144 schemes covering 173,984 ha (23 medium schemes covering 108,563 ha and 121 minor schemes covering 65,421 ha) were completed under the project. 4. Improved capacity and willingness of farmers to engage in rabi cropping and diversified farming in irrigation systems a During the rabi season, cropping intensity of 53% was achieved and the cultivated area of non-rice crops across a sample of 50 schemes was 50,639 ha, equal to a cropping intensity of 51.8%. Crops introduced include maize, wheat, sunflower, groundnuts, pulses, green gram, and mustard. At physical project closing unless otherwise stated. Data are derived from the database and/or progress reports of the project management unit.

28 Appendix 2 19 IMPLEMENTATION OF GENDER MAINSTREAMING ACTIVITIES AND RESULTS The project framework did not include any gender-specific targets nor was a gender action plan prepared because it was not a requirement at the time of project preparation. The activities and targets listed under each output in the following are derived from the main text of the project report and recommendation of the President (para. 36). 1 Activities with Target/Indicators Achievements/Results Output 1. Institutional Strengthening and Capacity Development for Water Resources Department Gender-sensitive training courses Training of trainers modules developed. b in place for Water Resources District level workshops also raised gender equality issues at district Department (WRD) a and state federation levels along with the issue of low representation of women in water users associations (WUAs) despite the fact that 80% of agricultural work was done by women. Training manuals developed c Gender-Related and Other Topics Included in Training: State policy for women in Chhattisgarh Participatory irrigation management (PIM) concepts PIM Act 2006 empowerment of women in WUAs Women s self-help groups Empowerment of elected women representatives for local bodies Women s participation in PIM Leadership traits of women National and state level policies on gender equality and women s empowerment Water rights of vulnerable groups and women Change in working relationships among engineers and women members of WUAs Comparative gender analysis and monitoring At least 20% women contracted by PIM Unit by year 3 At least 20% women trainers contracted by PIM Unit by year 3 Out of the total 65 people in the project management unit, including the PIM Unit, 4 (6.2%) were women. The Chhattisgarh Irrigation Development Project (CIDP) partnered with a nongovernment organization (NGO) for technical assistance to augment capacity of the project management unit through senior community organizers and community organizers who worked closely with WUA members on CIDP interventions. The NGO was responsible for recruiting one senior community organizer per district for coordination and PIM (a total of 12), community organizers (about 125 at the peak, but on average between 80 and 90) for WUA mobilization for agriculture and water management in the intensive intervention program (110), following experiential methods ( learning by doing ). Women accounted for 13% of all trainers up to 2013 Training was delivered using a cascading approach whereby specialists trained senior community organizers and community organizers who trained farmers in farmer field schools. In total, 142 specialists, senior community organizers, and community 1 ADB Report and Recommendation of the President to the Board of Directors: Proposed Loan and Technical Assistance Grant to India for the Chhattisgarh Irrigation Development Project. Manila.

29 20 Appendix 2 Activities with Target/Indicators Achievements/Results organizers were mobilized during implementation, of which 18 (12.7%) were women Output 2. Improved Institutional Framework and Capacity Development for Water Users Associations Participatory irrigation management policies and legislation in place to ensure: (i) Membership of the WUA will be on a household basis so that both men and women will be members and have the right to attend meetings and cast votes. (ii) All women who are part of a household that is a WUA member will be able to stand for election (not just women who are property owners with a title) and hold office on the WUA management committee and any subcommittee. A key aspect of the institutional reforms for improved irrigation management supported under the project was support for the preparation of a new Participatory Irrigation Management Act. This was undertaken by consultants contracted under TA Chhattisgarh State Government approved the new PIM Act in March Key aspects of the PIM Act included delegation of scheme operation and maintenance (O&M) to WUAs, allowing WUAs to retain a share of water charges collected from farmers to finance O&M, and empowerment of women. d The PIM Act was published on 24 May 2006 in the official Gazette of the State. The key gender-related features of the Act are the following: extension of WUA membership to spouses to ensure nearly 50% women s representation in WUAs reserved places on WUA managing bodies for women and underprivileged, including scheduled castes, scheduled tribes, and other backward classes Major legal provisions in the PIM Act include the following: Membership in the WUA is on a household basis so that both men and women are members and are eligible to attend meetings and cast votes. All adult women who are part of a household that is a WUA member are eligible to stand for election and hold office in the WUA (not just women who are property owners with a title). Subcommittees of WUAs have 33% women members. After the 2007 elections, there were a total of 1,320 WUAs with 7,622 committee members. Of these members, 2,598 were women (34.1%). Women s representation among WUA presidents is 1.8%. WUA elections (Target: 30% women s representation) e Women representation in each WUA management committee (Target: at least 2 women) WUA elections were due in 2012 but were postponed until They were again postponed to be held after panchayat (local selfgovernance bodies) elections. No date has been scheduled for elections to take place. According to the project management unit (Quarterly Progress Report, January March 2013), a budget has been allocated for conducting elections Clause 20, Item 4 of the PIM Rules and Regulations states that while the convener of any subcommittee shall be a member of the Management committee other than the President, members could be selected from the general body. Special provisions are made to ensure women s participation under the following sections of Clause 4: (b) In the case of the Project Committee not more than five members shall be selected for each subcommittee from the general body of the Project Committee in that project and at least two members among these shall be women (c) In the case of the Distributary Committee not more than five members shall be selected for each subcommittee from the general body of the Distributary Committee and at least two members among these shall be women

30 Appendix 2 21 Activities with Target/Indicators Women s representation on WUA subcommittees g Achievements/Results (d) In the case of the Water Users Association, not more than five members shall be drawn from the general body of the Water Users Association and at least two members among these shall be women CIDP supported WUAs in intensive intervention program (IIP) schemes to ensure women s participation in WUA activities and that WUAs are responsible for O&M. The WUA management committees within the command areas of selected schemes were involved in planning for efficient use of water for irrigation. They were also involved in allocation, distribution, and on-farm water management activities, as well as collective action. As of March 2013, management committees in the main CIDP areas were composed of 434 men and 199 women (31.4%) f In accordance with the PIM Act, the following subcommittees were formed: Finance and Resource Subcommittee Works Subcommittee Water Management Subcommittee Training and Capacity Building Subcommittee Social Audit and Monitoring and Evaluation Subcommittee Dispute Resolution Subcommittee WUA gender subcommittee formed in each WUA with the following mandate: (i) address the needs of women title holders and WUA members, as well as women farm laborers in the irrigation system; (ii) develop and protect the use of and access to irrigation water for alternative purposes such as home gardens, livestock, washing, and other domestic uses; and (iii) create capacity development and livelihood programs specially targeting women. Each subcommittee consists of a convener and five other members, with each such member being nominated from a different territorial constituency and having a reputation for honesty, integrity, and understanding or experience in the specified field. The subcommittees must have a minimum of one-third women members from the concerned farmers organization. The WUAs in IIP schemes were supported by CIDP, which ensured that each WUA (110 WUAs in 78 IIP schemes) formed the six subcommittees with at least two women members No separate gender subcommittee was formed. The PIM Act was the guiding framework and gender subcommittees were not part of that framework. h Gender concerns were addressed as cross-cutting issues. Women participated in the six specified subcommittees by acting as an interface between farmers and main system management; ensuring water distribution to head, middle, and tail users in the scheme; engaging in operation and maintenance; collecting water charges and other user charges or special charges that the WUAs levied; resolving local disputes among members; designing and constructing field channels; and participating in all training programs, meetings, and interventions. WUA meetings (Target: at least During the project period there were in total 48,808 WUA meetings, 30% women) i including general body and management committee meetings. The total number of participants was 458,702, of which 366,962 were men and 91,740 women (20.0%). WUA training (Target: at least 50% women) j Participation in Training and Workshops: 3-day residential training at district level covering four WUAs 30 participants, 3 women (10%)

31 22 Appendix 2 Activities with Target/Indicators Achievements/Results 3-day residential workshop at training center with representatives of five WUAs 36 participants, 3 women (8.3%) 12 1-day workshops at WUA cluster level covering 20 WUAs 645 participants, 80 women (12.4%) nine training courses at cluster level covering 490 WUAs 1,070 participants, 4 women (0.3%) five 3-day residential training courses at district level covering 35 WUAs 159 participants, 29 women (18.2%) 3-day residential workshop at training center covering 16 WUAs 77 participants, 9 women (11%) 62 1-day workshops at cluster level covering 184 WUAs 2,433 participants, 240 women (9.8%) two 3-day workshops at training center covering 34 WUAs 251 participants, 51 women (20.3%) 12 1-day workshops at cluster level covering 13 WUAs 529 participants, 65 women (12.3%) 99 1-day workshops covering 1,061 WUAs 2,943 participants, 314 women (10.7%) 58 1-day cluster level training sessions covering 673 WUAs 2,599 participants, 206 women (8%) 44 residential training courses in non-cidp areas covering 44 WUAs 1,601 participants, 32 women (2%) International Women s Day (7 8 March 2011), women s participation in a PIM workshop organized to celebrate International Women s Day at the Raipur regional training center and to promote the interests of women and to ensure gender equality in governance and decision-making processes International Women s Day (18 19 March 2012), actively celebrated in 10 districts of Chhattisgarh Workshop with media at state and regional level with 20 participants from print media and 5 from electronic media 4 zone-level workshops organized for inter-department convergence at: o Bastar and Kanker, 5 August 2011 (143 participants) o Bilaspur, Chapma, Janjgir, Kardha, and Raigarh, 9 August 2011 (123 participants) o Korba and Surguja, 19 August 2011 (151 participants) o Durg, Raipur Mahasamund, and Rajnandagaon, 26 August 2011 (187 participants) Scheme-level orientation held with WUA and WRD aiming to promote better coordination among farmers and WUAs Scheme-level orientation held to share published materials with target audience and to obtain feedback. These were organized in 19 districts between 2011 and 2012 to share published material with target audience and obtain feedback which was used in forthcoming publications. Regional workshops with NGOs on participatory irrigation management at: o Bilaspur, 28 November 2008 o Ambikapur, 29 November 2008 o Raipur, 2 December 2008 Two exposure visits: 9 11 March 2010 and 2 3 May 2012 District-level workshops in 25 locations to develop strategy for a

32 Appendix 2 23 Activities with Target/Indicators Achievements/Results campaign to encourage leadership among women members in WUAs leading to formation of a district-level federation. Districtlevel federation has now been organized as state-level federation. State-level workshop on August 2012 in the presence of Chief Minister, Chhattisgarh 5-day training on environmental issues of irrigation systems for WUAs organized on July 2014 attended by 283 Gram Panchayat members, WUA elected members, and farmers Ten training programs of varying durations were organized on themes such as PIM, quality control, gender mainstreaming, gender issues in leadership, O&M, dam safety, and environmental impact analysis with a total of 2,317 participants. Pro-women Learning Material Designed and Disseminated k Education, information, and awareness building to communicate internally and externally across all stakeholders to foster institutional and social change while enabling women to have a voice in their communities and governance which promotes political empowerment; significantly increase their voice and overcome inequalities in and barriers to political participation; empower themselves politically, raise awareness, develop networks; use innovative agriculture practices; introduce advocacy measures for policymakers to address women s perspectives and concerns leading to more genderequitable policy. Learning and dissemination material developed to demonstrate importance of women s participation and accepted leadership Comic-book material with icon Muniya used in project activities. Mascot Muniya (an educated girl) included in learning materials used to explain the PIM Act and importance and efforts to transform stereotypical notions about women and men and the divisions between them Pre-election awareness campaign aimed at improving farmers (particularly women s) knowledge and ability to implement PIM Act elections held in 2007 and proposed to be held during The campaign covered voters in general and women in particular in 4,000 villages. 1,320 WUAs made aware of PIM Act 2006 and its benefits through the pre-election awareness campaign in Through posters, hoardings, cover page of audio-aids with Pulashan Devi and Muniya, CIDP encouraged a positive portrayal of women and addressed historical inequalities between women and men in the area of political leadership. Advocacy program and communication in non-cidp areas Quarterly newsletter Kisan Sangwari (Farmers Group) developed and distributed from 2007 to 2012 Special Hindi newsletter Krishakon ka samuhik prayas (farmers collective action) developed and distributed from January to March 2012 Pamphlets and handbills, annual planner, poster, and pocket diaries developed as education, information, and awarenessbuilding material

33 24 Appendix 2 Activities with Target/Indicators Others Core labor standards Special Gender Sensitive Clauses in PIM Act Federation of Water Users Association Achievements/Results Planner Jal Upyogita Sansthaka Barshik (water users group annual planner) highlighting activities of participatory irrigation with color codes disseminated Four awareness mobile kiosks (vehicular) Matdata Jagrukta Rath (voter awareness kiosk) equipped with audio-visual aids deployed at strategic locations (e.g., farmers markets) for encouraging leadership among women and people s participation in WUAs Documentary shows organized in 40 government grain purchasing centers and cooperative banks to raise awareness on PIM among illiterate and semi-literate farmers (both men and women) to increase productivity of irrigated agriculture with participation of women WUA elections through street plays, rallies, and group meetings with messages on political participation of women Audio and video jingles disseminated on radio and television through government and private channels Through the bid documents and civil works contracts, WRD ensured that contractors complied with all applicable labor laws and followed legally mandated provisions on health, sanitation, and appropriate working conditions under the law; did not employ child labor; provided equal opportunities for women; provided equal pay for work of equal value to men and women laborers; and ensured monitoring of compliance with regulatory provisions on core labor standards and provided for termination of any contract in case of noncompliance. The PIM Act 2006 includes special clauses to promote women s participation in PIM. According to the Act, the president or a male member of a management committee becomes disqualified to continue in office if he remains absent from three consecutive meetings without reasonable cause. However this disqualification does not apply in the case of women who are in an advanced stage of pregnancy and for a period of 3 months after delivery. Also, under the PIM Rules and Regulations, the divisional election authority may grant special facilities to women. Farmers organizations in Chhattisgarh have federated and formed a state-level farmers federation. WRD, with the support of CIDP, assisted in establishing the WUA federation at state level and at district level in 25 districts. Women are represented in WUA federations. a b Not indicated among gender strategies in the summary poverty reduction and social strategy. Gender output corresponds with instruction that, The consultants will create capacity development curricula in consultation with WRD in para. 21 of the report and recommendation of the President (WRD Capacity Development). (1) Water management a compilation of subjects for training; (2) Chhattisgarh farmers role in the Participatory Irrigation Management (PIM) Act 2006 (key features); (3) Farmers organizations roles and responsibilities; (4) Resource mobilization and financial management; (5) Operation and maintenance (O&M) of irrigation systems by farmers organizations; (6) Crop water requirements and irrigation practices for rabi crops; (7) Crop water requirements and irrigation practices for paddy (kharif) crops; (8) Environmental aspects relevant to O&M of irrigation systems.

34 Appendix 2 25 c (1) Participatory irrigation management; (2) Quality control and construction management; (3) Irrigation management; (4) Irrigation systems procedures (with sub-manuals); (5) Procurement procedures; (6) Participatory rapid diagnostic appraisal; (7) Functionary manual for WRD (training institutes). d From main text of the project completion review, Part II. Evaluation of Design and Implementation. para. 10 (Improved institutional framework and capacity development for WUAs). e Target is indicated in para. 15 in the main text of the project completion review: women should be represented on WUA management committees and all subcommittees, with a target representation of 30% on all committees. f CIDP Gender Case Study (draft April 2015). Table on CIDP Gender-Related Activities and Achievements. g Summary poverty reduction and social strategy indicated that In addition to the gender subcommittee, women will have at least 33% target representation on the other subcommittees that will be formed in every WUA including (i) the water allocation and distribution committee, (ii) the dispute resolution committee, and (iii) and the financial audit committee. h CIDP Gender Case Study (draft April 2015). Table on CIDP Gender-Related Activities and Achievements. i Indicator or target not in summary poverty reduction and social strategy. j Indicated in summary poverty reduction and social strategy as follows: For general training offered to all WUA members 50% of the slots will initially be reserved for women WUA members. k Not included in summary poverty reduction and social strategy. Activity corresponds with report and recommendation of the President, para. 23 (Strengthening the Institutional Framework and WUA Mobilization): The Project will contract a nongovernment organization (NGO) to conduct an awareness campaign about revised PIM policies, basic WUA organization, and the planned WUA elections to start the WUA development process.

35 26 Appendix 3 IRRIGATION SCHEME REHABILITATION A. Scheme Rehabilitation and Upgrading 1. The Chhattisgarh Irrigation Development Project (CIDP) was designed to rehabilitate 20 medium and 200 minor irrigation schemes covering around 200,000 hectares (ha). Minor schemes are defined as having less than 2,000 ha, medium schemes as between 2,000 and 10,000 ha, and large schemes as over 10,000 ha. At the time of project preparation, irrigated agriculture covered a total area of 1.3 million ha, of which 0.8 million ha were in completed schemes and 0.3 million ha were in schemes under development. Medium and minor schemes accounted for 37% and 20% of the total area, respectively. 2. Each scheme was to be rehabilitated in two stages. Stage 1 comprised (i) scheme assessment and determining design options involving the Participatory Irrigation Management Unit, design unit, Water Resources Department (WRD) field staff, water users associations (WUAs), and farmers; (ii) preparation of designs and tender documents; and (iii) scheme rehabilitation and upgrading (R&U) by contractors supervised and certified on completion by WUAs. Stage 2 involved the construction of field channels contracted to WUAs and on-farm water management, for which WUAs would be responsible while supported by the Participatory Irrigation Management Unit. The project was to finance materials for and supervision of the development of field channels with WUAs (farmers) providing land (on a voluntary basis) and labor with a nominal value of 10% of the total cost of the work. 3. Designs for 175 schemes covering 208,327 ha were completed by December Feasibility reports were prepared for 159 schemes covering 182,100 ha by June Of the 148 schemes selected, 4 schemes were subsequently dropped, resulting in a final R&U of 144 schemes covering 173,984 ha, comprising 23 medium schemes (108,563 ha) and 121 minor schemes (65,421 ha). The schemes dropped comprised 3 schemes (1 medium and 2 minor) that were taken up under another Government of India program. The area of the fourth scheme was taken over for development of the new state capital Naya Raipur. 4. Irrigation scheme R&U also included a program open to WUAs in all medium and minor schemes (not only those targeted for full R&U) for priority repairs where tank sluice gates were not functioning. It was proposed to cover around 500 schemes under this program. The program was, however, dropped during implementation. Out of 319 proposals received by the project management unit by March 2008, fewer than 50% of gates at the proposed sites could be included into the project because either they were not tank systems or the schemes proposed had been abandoned. Moreover, none of the proposals for repair or replacement had been put forward by WUAs or other farmers organizations. It was decided during the June 2008 ADB mission to consider only gates that met the project criteria. Some of these were taken up as a part of the broader R&U scheme. 5. Details of project-financed rehabilitation works are in Tables A3.1 and A Improvements in scheme operation and maintenance (O&M) are discussed in Section B following Tables A3.1 and A3.2.

36 Appendix 3 27 Table A3.1: Irrigation Schemes Rehabilitated (Areas and Cost) Designed Area (hectares) Total Cost ($ million) Cost per Hectare ($) a Scheme Name Kharif Rabi Total Medium Schemes 1 Shyam Ghungutta Tank 7,650 6,600 14, Gej Tank 2,720 1,696 4, Jhumka Tank 1,801 1,801 3, Piparia Tank 6,073 1,350 7, Surhi Tank 6, , Jhiram Diversion 2, , Khamharpakut Tank 3,441 1,250 4, Ibb Diversion 3,235 1,015 4, Paralkot Tank 9,717 4,858 14, Dudhawa Sarona Tank 2, , Balar Tank 4, , Chhirpani Tank 7,000 2,100 9, Saroda Tank 7, , Ghongha Tank 8,343 2,000 10, Keshwa Tank 2, , Kedar Tank 4, , Kinkari Tank 4, , Kumhari Tank 2, , Khapri Tank 4, , Gondli Tank 6, , Matiamoti Tank 5,000 1,400 6, Kunwarpur Tank 4, , Banki Tank 2,000 1,250 3, Total Medium Schemes 108,563 29, , Minor Schemes 1 Ghungutta Tank , Amhar Tank Charpara Tank Banjaridand Tank Bardar Tank Gadbadi Tank Gobri Tank Silphoda Tank Morga Tank Jhura Tank Charbhata Tank Maniyari Tank Khudmudi Tank Kohkajhori Tank Suktara Tank Kutelikala Tank Akarjan Diversion 1, , Tumidih Tank

37 28 Appendix 3 Designed Area (hectares) Cost per Hectare ($) a Total Cost Scheme Name Kharif Rabi Total ($ million) 19 Chhotegumda Tank Sisringa Tank Katharapali Tank Kotrimal Tank Kharkhara Tank 1, , Kotrinalla Tank 1, , Adpathar Tank 1, , Chhatarpur Tank Bhaira Tank Gunderdehi Tank Kothigaon Tank Kosmi Tank Maroda Tank Budgahan Tank Shanicharadih Tank Maini Diversion 1, , Pakhanjore Tank Markatola Tank Risewada Tank Golajhar Tank Amaruwa Tank Dhaurabhata Tank Taulidih Tank 1, , Sukhanalla Tank Bilanala Diversion Baherakhar Tank Kranti Tank 1, , Chilphi Tank Ramtala Tank Neota02 Tank Banskot Tank Kerakachhar Tank Baridih Tank Amakoni Tank Deogaon Tank 1, , Sirko Tank 1, , Kapsakhuta Tank 1, , Lamkeni Tank Dabpali Tank Kotripani Tank Ghorghati Tank , Pilwapali Tank Singhora Tank Hanumandih Tank Surangi Diversion Sawantpur Tank

38 Appendix 3 29 Designed Area (hectares) Cost per Hectare ($) a Total Cost Scheme Name Kharif Rabi Total ($ million) 65 Amachuwa Tank Kekrar Tank Dhanras Tank Tingipur Tank Gabda Tank Fulwari Tank Lotan Nalla Tank Shivsagar Tank Aghariya Tank Darki Tank Jhingo Tank Bilaspur Tank Koknitarai Tank Putka Tank 1, , Chhuwaripali Tank Katangi Tank Kosrangi Tank 1, , Khairadatan Tank Kurud Tank 1, , Manpur Tank Deoridih Tank Uparwaha Tank Pendalkuhi Tank Khurshipar Tank Botepar Tank Hardua Tank Jagannathpur Tank Ajab Nagar Tank Kaushalpur Tank Gangoti Tank Brijeshwar Sagar Tank Lanjit Tank Dumariya Tank Kurridih Tank Raima Tank Pondiguma Tank Bherwa Tank Pondisarwani Tank Kopra Tank 1, , Kharkhara Diversion 1, , Ganiyari Tank Belodi Tank Birejhar Tank Akoli Tank New Rounda Tank Saja Tank

39 30 Appendix 3 Designed Area (hectares) Cost per Hectare ($) a Total Cost Scheme Name Kharif Rabi Total ($ million) 111 Chikhli Tank Lorenalla Diversion 1, , Dhangaon Tank Parsadih Tank Dandgaon Tank Narkalo Tank Ghoghra Tank Bankipur Tank Khaliba Tank Burungpal Tank Bhansagar Tank Total Minor Schemes 65,421 10,138 75, Total All Schemes 173,984 39, , a. Cost per hectare is the total cost divided by the kharif season area, rounded to whole numbers. Source: Government of Chhattisgarh, Water Resources Department Chhattisgarh Irrigation Development Project Project Completion Report. Raipur.

40 Appendix 3 31 Table A3.2: Irrigation Schemes Rehabilitated (Works Completed) Canal Lining Completed Rehabilitation and Upgrading Works Regulating Structures Conveyance System Canals Tertiary Outlets Structures Repaired/ Replaced Repaired /Replaced Repaired/ Replaced Field Channels (ha) Scheme Name (km) (m 3 ) New New New Medium Schemes 1 Shyam Ghungutta Tank 3 2, Gej Tank 11 3, Jhumka Tank 21 4, Piparia Tank 2 2, Surhi Tank 6 2, Jhiram Diversion 4 2, Khamharpakut Tank 8 5, Ibb Diversion 6 1, Paralkot Tank 12 11, Dudhawa Sarona Tank 3 3, Balar Tank 10 1, Chhirpani Tank Saroda Tank 5 4, Ghongha Tank 13 12, Keshwa Tank 2 3, Kedar Tank 13 3, Kinkari Tank 15 7, Kumhari Tank 3 1, Khapri Tank 11 10, Gondli Tank 13 6, Matiamoti Tank 35 4, Kunwarpur Tank Banki Tank 7 3, Total Medium Schemes , , ,983

41 32 Appendix 3 Canal Lining Completed Rehabilitation and Upgrading Works Regulating Structures Conveyance System Canals Tertiary Outlets Structures Repaired/ Replaced Repaired /Replaced Repaired/ Replaced Field Channels (ha) Scheme Name (km) (m 3 ) New New New Minor Schemes 1 Ghungutta Tank Amhar Tank Charpara Tank Banjaridand Tank Bardar Tank Gadbadi Tank Gobri Tank 4 1, Silphoda Tank Morga Tank Jhura Tank Charbhata Tank Maniyari Tank Khudmudi Tank Kohkajhori Tank Suktara Tank Kutelikala Tank Akarjan Diversion 4 1, Tumidih Tank Chhotegumda Tank Sisringa Tank Katharapali Tank Kotrimal Tank Kharkhara Tank Kotrinalla Tank Adpathar Tank Chhatarpur Tank Bhaira Tank Gunderdehi Tank Kothigaon Tank

42 Appendix 3 33 Canal Lining Completed Rehabilitation and Upgrading Works Regulating Structures Conveyance System Canals Tertiary Outlets Structures Field Channels (ha) Repaired/ Repaired Repaired/ Scheme Name (km) (m 3 ) New Replaced New /Replaced New Replaced 30 Kosmi Tank Maroda Tank Budgahan Tank Shanicharadih Tank Maini Diversion 4 1, Pakhanjore Tank Markatola Tank Risewada Tank 3 1, Golajhar Tank Amaruwa Tank Dhaurabhata Tank Taulidih Tank Sukhanalla Tank Bilanala Diversion Baherakhar Tank 9 4, Kranti Tank Chilphi Tank Ramtala Tank Neota02 Tank Banskot Tank Kerakachhar Tank Baridih Tank Amakoni Tank Deogaon Tank 5 4, Sirko Tank Kapsakhuta Tank Lamkeni Tank Dabpali Tank Kotripani Tank Ghorghati Tank

43 34 Appendix 3 Canal Lining Completed Rehabilitation and Upgrading Works Regulating Structures Conveyance System Canals Tertiary Outlets Structures Field Channels (ha) Repaired/ Repaired Repaired/ Scheme Name (km) (m 3 ) New Replaced New /Replaced New Replaced 60 Pilwapali Tank Singhora Tank Hanumandih Tank Surangi Diversion Sawantpur Tank Amachuwa Tank Kekrar Tank Dhanras Tank Tingipur Tank Gabda Tank Fulwari Tank Lotan Nalla Tank Shivsagar Tank Aghariya Tank Darki Tank Jhingo Tank Bilaspur Tank 6 1, Koknitarai Tank Putka Tank 8 1, Chhuwaripali Tank Katangi Tank Kosrangi Tank Khairadatan Tank Kurud Tank Manpur Tank Deoridih Tank Uparwaha Tank Pendalkuhi Tank Khurshipar Tank Botepar Tank Hardua Tank

44 Appendix 3 35 Canal Lining Completed Rehabilitation and Upgrading Works Regulating Structures Conveyance System Canals Tertiary Outlets Structures Repaired/ Replaced Repaired /Replaced Repaired/ Replaced Field Channels (ha) Scheme Name (km) (m 3 ) New New New 91 Jagannathpur Tank Ajab Nagar Tank ?? - 93 Kaushalpur Tank Gangoti Tank Brijeshwar Sagar Tank Lanjit Tank Dumariya Tank Kurridih Tank Raima Tank Pondiguma Tank Bherwa Tank Pondisarwani Tank Kopra Tank 5 1, Kharkhara Diversion 7 3, Ganiyari Tank Belodi Tank Birejhar Tank Akoli Tank New Rounda Tank Saja Tank Chikhli Tank Lorenalla Diversion Dhangaon Tank Parsadih Tank Dandgaon Tank Narkalo Tank Ghoghra Tank

45 36 Appendix 3 Canal Lining Completed Rehabilitation and Upgrading Works Regulating Structures Conveyance System Canals Tertiary Outlets Structures Field Channels (ha) Repaired/ Repaired Repaired/ Scheme Name (km) (m 3 ) New Replaced New /Replaced New Replaced 118 Bankipur Tank Khaliba Tank Burungpal Tank Bhansagar Tank Total Minor Schemes , , ,318 Total All Schemes , ,449 1, ,191 5,300 ha = hectare, km = kilometer, m 3 = cubic meter. Source: Government of Chhattisgarh, Water Resources Department Chhattisgarh Irrigation Development Project Project Completion Report. Raipur.

46 Appendix 3 37 B. Post-project Operation and Maintenance 7. The following factors contributed to O&M improvements: (i) rehabilitation of irrigation infrastructure; (ii) participatory irrigation management with the active involvement of WUAs and strengthened partnership with WRD; and (iii) introduction of improved agricultural water management strategies, especially the novel strategy known as Managing Kharif for Rabi, which shortens the kharif season cultivation, utilizing rainfall while saving reservoir water for rabi season (follow-up) crops. 1. WUA Involvement in O&M 8. WUAs are involved in allocation, distribution, and on-farm management, including to match water with complementary inputs. WUAs and chak (village) committees undertook more responsibility in managing water within WUAs and chaks, respectively. Chak leaders and WUA management committees joined together in preparing and executing WUA-managed water distribution plans system-wide. Even though the official control of sluice gates by WUAs in minor systems is about 20% 23%a large number of WUAs have de facto control. 9. WUAs are actively involved in maintenance, as well. According to the technical assistance consultant s final report, WUAs checked whether there are any essential minor repairs needing to be done prior to rabi. WUAs were motivated to select appropriate, low-cost repairs with locally available material, such as sand bag weirs. WUAs and chak groups identified locations for the sand bag weirs in order to facilitate diversified rabi cropping and increased rabi cropping intensity Managing Kharif for Rabi 10. The CIDP strategy known as Managing Kharif for Rabi is a novel concept. 2 This aimed at year-round water management instead of being just seasonally focused. Planting varieties of unified maturities (4 to 4.5 months), organizing nurseries in advance for advancing the kharif season, and organizing farmers to plant within a period of 7 10 days are examples of changes that helped reduce staggered cultivation, shortened kharif, utilized rainfall, and saved reservoir water for rabi (follow-up) crops. The average length of kharif was reduced from about 6 7 to months even before the end of CIDP. Farmers were motivated to start the follow-up crop with residual moisture, thereby saving water and further increasing rabi area and productivity. 3. Improved Water Use Efficiency Due to O&M 11. By the end of 2012, in the intensive intervention area (100,000 ha), many WUAs were planning for the entire year and not just for one season. Through WUA- and chak- 1 ADB Water Users Association Empowerment for Improved Irrigation in Chhattisgarh Final Report. Consultants report. Manila (TA 4573-IND, p. 6). 2 Most of the irrigation systems, notably the minors and diversion systems in Chhattisgarh had been designed for supplementary irrigation in kharif season. Kharif rainfall has not been utilized effectively. Especially in minor and medium systems, much of the reservoir water is used for kharif season. Therefore, rabi cropping intensity was low.

47 38 Appendix 3 managed collective action, farmers were motivated to utilize rainfall to the maximum extent possible. Analysis clearly showed that the efforts to save water in the reservoirs at the end of kharif by utilizing rainfall effectively and controlling sluices were significantly successful, although there remained scope for further improvement (Figures A3.1 and A3.2). Figure A3.1: Water Consumed at Source during Kharif Season in 2012 (Sample of 50 Chhattisgarh Irrigation Development Project Systems) Total designed capacity (mcm) Total designed capacity (mcm) Total capacity of all reservoirs before kharif 2012 (mcm) Total water consumed in paddy irrigation during Kharif 2012 (mcm) Total capacity of all reservoirs before kharif 2012 (mcm) Total water consumed in paddy irrigation during Kharif 2012 (mcm) mcm = million cubic meters. Source: Technical Assistance Consultants Report Water Users Association Empowerment for Improved Irrigation Management in Chhattisgarh Final Report. TA 4573-IND.

48 Appendix 3 39 Figure A3.2: Water Consumed during Kharif and Capacity Remaining at End of Kharif Season in 2012 at Reservoirs of Intensive Intervention Program Irrigation Systems 100% 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% 17% Total water consumed in paddy irrigation during Kharif 2012 as a % of total designed capacity 67% Total capacity of all reservoirs remained after Kharif 2012 as a % of total designed capacity Source: Technical Assistance Consultants Report Water Users Association Empowerment for Improved Irrigation Management in Chhattisgarh Final Report. TA 4573-IND. Table A3.3: Other Indicators of Improved Operation and Maintenance Due to Improved Water Supply and WUA Participation Indicator Percentage Checking tank water level by WUA and community organizer in minor systems 100 Sluice gate control in minor systems by WUA as percent of total minor systems for Sluice gate control in minor systems jointly by WUA and WRD as percent of total minor systems for Irrigation distribution managed jointly by WRD and WUA in medium systems as percent of total medium systems for Rabi as a percent of total command area as % of Post R&U Designed Rabi Area 161 R&U = rehabilitation and upgrading, WRD = Water Resources Department, WUA = water users association. Source: Technical Assistance Consultants Report Water Users Association Empowerment for Improved Irrigation Management in Chhattisgarh Final Report. TA 4573-IND.

49 40 Appendix 3 Figure A3.3: Cumulative Water Use Efficiency during Kharif Season in 2012 with Better Water Management Recommended as per apparaisal report Cum/ha (50 Systems) Water used in kharif 2011 Cum /Ha. (36 Systems*) Water used in kharif 2012) cum/ Ha (50 Systems) 0 Recommended as per apparaisal report Cum/ha (50 Systems) Water used in kharif 2011 Cum /Ha. (36 Systems*) Water used in kharif 2012) cum/ Ha (50 Systems) ha = hectare. Source: Technical Assistance Consultants Report Water Users Association Empowerment for Improved Irrigation Management in Chhattisgarh Final Report. TA 4573-IND. 12. The overall water management strategy of utilizing kharif rainfall and saving water for rabi as well as initiating rabi crops utilizing the soil moisture available after kharif harvest helped to increase rabi cropping intensity (Figures A3.4, A3.5, and A3.6).

50 Appendix 3 41 Figure A3.4: Sources of Irrigation, Rabi Season (%) By Other Sources 37% By Residual Moisture 36% By Tank Water 27% Source: Technical Assistance Consultants Report Water Users Association Empowerment for Improved Irrigation Management in Chhattisgarh Final Report. TA 4573-IND.

51 42 Appendix 3 Figure A3.5: Rabi Area Cultivated Using Tank Water and Conjunctive Use (Residual Moisture and/or Wells), to (% of total command area) Cultivated Rabi area as a percent of total Command area 60% 50% 40% 30% 20% 10% 0% 53% 40% 25% 17% 10% 6% Year Source: Technical Assistance Consultants Report Water Users Association Empowerment for Improved Irrigation Management in Chhattisgarh Final Report. TA 4573-IND.

52 Appendix 3 43 Figure A3.6: Rabi Area Cultivated by Tank Water and Conjunctive Use (Residual Moisture and/or Wells) (% of designed rabi area after rehabilitation) Cultivated Rabi area as a percent of Rabi designed area after R&U 250% 200% 150% 100% 50% 0% 25% 56% 105% 108% 161% 210% Year Source: Technical Assistance Consultants Report Water Users Association Empowerment for Improved Irrigation Management in Chhattisgarh Final Report. TA 4573-IND. 4. Conclusion 13. Operation and maintenance has improved significantly due to the CIDP. In addition, the program demonstrated a novel strategy for improving water use efficiency in irrigation systems. Rehabilitation and upgrading of irrigation infrastructure, introduction of improved agricultural water management (especially the so-called Managing Kharif for Rabi ), and participatory irrigation management were the significant contributing factors. Within four crop seasons (2010 kharif, rabi, 2012 kharif, and 2013 rabi), the 100,000 ha under the intensive intervention program demonstrated a significant improvement in water use efficiency: 200% increase over the expected rabi cropping extent while maintaining 100% kharif cropping intensity. The sustainability of the O&M achievement will depend, however, on continued support to WUAs and WRD. The momentum created needs to be maintained. Partnership between WRD and WUAs needs further improvement, and WRD needs more time to completely hand over the O&M responsibility to WUAs in minor projects and for effective shared management in the medium systems.

53 44 Appendix 4 A. Approach INTENSIVE INTERVENTION PROGRAM: KEY FEATURES 1. The focus of the Chhattisgarh Irrigation Development Project (CIDP) was to enhance year-round irrigation efficiency and crop production in selected irrigation schemes. This was achieved through intensive hand-holding of farmers to improve water management and agricultural practices. The intensive intervention program (IIP) was implemented collaboratively between the Water Resources Department (WRD) and consultants and nongovernment organizations (NGOs) contracted under the project. The key features of the IIP were (i) a strategy known as Managing Kharif for Rabi, an approach which entailed shortening the duration of kharif crops (predominantly rice) and maximizing the use of rainfall through storage for year-round water management; (ii) harvesting kharif rice early (end of October or latest mid-november) and cultivating rabi crops using water saved in tanks and/or reservoirs; (iii) matching water usage more closely with complementary inputs, thereby improving water productivity; and (iv) organizing collective input and output marketing while promoting crop diversification in the rabi season. 2. Figure A4 illustrates the process of matching kharif paddy (rice) cultivation to rainfall, a key feature of the Managing Kharif for Rabi strategy. Figure A4: Matching Kharif Paddy Cultivation to Monthly Rainfall Seedling Tillering Panicle Initiation Flowering Harvest Rainfall in mm Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Months 3. If all farmers in an irrigation scheme plant 4-month (or at least 4- to 4.5 month) high yielding varieties by mid-june (or at least by the end of June), they can maximize the use of rainfall and save tank and/or reservoir water for rabi cropping (then combining it with residual soil moisture from kharif season rainfall and irrigation). For this to be successful, all farmers must have access to appropriate seed varieties as well as all