Innovative Lake Management Frameworks: Lessons from Rajasthan

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1 Sengupta, M. and Dalwani, R. (Editors) Proceedings of Taal2007: The 12 th World Lake Conference: Innovative Lake Management Frameworks: Lessons from Rajasthan Paritosh Gupta, K K Mathur and Ashish Dua ABSTRACT Tourism is considered to be India's biggest industry in the new millennium. With a wide range of offerings from sandy beaches to the heights of Himalayas, tourism has also the potential to be a major foreign exchange earner. In the year 2006 an estimated 4.43 million foreign tourists who earned for India approx. US$ 6,000 million visited the country. A domestic tourist, whose importance is now being recognized, is estimated at a massive 20 million plus (year 2006). Following table lists the tourist arrivals in Rajasthan. INTRODUCTION Rajasthan situated in the north western part of India was the home of Maharajas and their nobles. The huge forts and palaces, heritage hotels and cultural fairs and festivals of the State have played major role in developing this beautiful land as a center of attraction for national and international tourists. In fact, one in four tourists coming to India visits Rajasthan. The State ranks amongst the top three States for foreign tourist arrivals on an all India basis. Following figure 1 lists the tourist arrivals in Rajasthan. The state also has some of the most beautiful lakes spread over the complete geographical area. Some of the important lakes include:- 1. Mansagar Lake, Jaipur 2. Fatehsagar and Pichola Lake, Udaipur 3. Nakki Lake, Mount Abu 4. Pushkar Lake, Pushkar 5. Anasagar Lake, Ajmer Understanding the high tourism potential of the State, the Government of Rajasthan has been proactive in promoting both investments and services to attract tourists into the State. The tourism policy objectives of the State seek to revamp the heritage monuments which have deteriorated with time, promote private sector investments in tourism infrastructure and recreate the mystique of the "old" Rajasthan. Public Private Partnership (PPP) Initiative in Rajasthan Uptil now the tourist were finding interest in the old heritage assets of the state. Now the foreign tourists as well as domestic tourists want all facilities at these destinations. Taking lead from the tourism policy as well as to invite private investment for the provision of tourism infrastructure, a project was conceived to be developed on Public Private Partnership model. Source: Department of Tourism,year Rajasthan Figure1: Foreign and Domestic Tourist arrivals in Rajasthan (figures in Lakhs / year)

2 Project Development Company of Rajasthan (PDCOR) was mandated by the Government of Rajasthan (GOR) to develop the Jal Mahal Tourism Infrastructure Project on a commercial format (Built, Own, Operate and Transfer BOOT) basis for private sector participation. Jal Mahal Tourism Project Government of Rajasthan was keen on restoration of lake water bodies in the state. The government of India (GOI) had already included lakes in Udaipur under the X th Five Year Plan. Government of Rajasthan decided to restore Mansagar Lake, which was in environmentally degraded condition and was requiring restoration on a priority basis. Mansagar Lake (Figure 2) is the single largest body in the city situated between the historic town of Amer and the walled city of Jaipur. Apart from being an important wetland of the city, the lake area was also the feeder for downstream irrigation requirements. Mansagar Lake also houses the Jal Mahal Monument which looks like a palace floating on water waves. The monument was built in 1735 and was in total disuse and also required a comprehensive restoration. Paucity of funds with the State has necessitated a change in strategy with respect to implementation of this project. In keeping with the overall objective of promoting tourism in the State, Govt. of Rajasthan created a sustainable format for lake and the monument, Jal Mahal Tourism Project was conceived. Component 2: Development of lake side facilities, such as Craft Bazaar / Shopping, Multiplex & Entertainment facility, Amusement Park I Theme Park I Water Park, Restaurants & Food Court, Heritage Resort (one or even two at different levels), Convention & Exhibition Centre, Sports, Polo, Sailing Club, Spa and Health Club hotel etc. to make the project commercially viable. The money, as received from the PSD, through land lease was to be utilized for the operation and maintenance of the Man Sagar Lake. MoEF played a significant role in the overall project by providing an initial funding of 70 % of the project cost estimated for the Man Sagar Lake restoration and balance funding was being provided by State Government. JDA is the nodal agency for Lake Restoration Project. Issues Involved There are several issues connected with the ecological restoration of the Lake along with the Jal Mahal Tourism Project. The project has suffered delays thereby effecting the overall progress the estimated times line of the project. Issue 1 Multi Stakeholders and Multiple approvals system: The first and most important issue being absence of a Single Window Clearance System. The project has multiple stakeholders like Jaipur Development Authority (JDA), Jaipur Municipal Corporation (JMC), Forest Department, Irrigation Department, Rajasthan Pollution Control Board (RPCB), Rajasthan Tourism Development Corporation (RTDC) and Department of Tourism (DOT). There was no single authority / SPV that could take decisions to speed up the overall process. Issue 2: There was a delay in the Lake Restoration program thereby resulting a delay in the overall progress. The project got delayed owing to following reasons. Figure 2: Jal Mahal, Jaipur The total project can be broadly broken into two components Component 1: Restoration of monument, restoration of lake and maintenance of the public facilities through involvement of a Private Sector Developer (PSD). a) Issue of the land availability: For commercial viability of the project, a parcel of land was to be leased out in the vicinity of lake. Lack of efforts in land acquisition project suffered delays thereby delaying the overall process. b) Issue of Tertiary Treatment Plant (TTP): Tenders have been awarded for 7 MLD pipeline, Physico-Chemical Treatment Plant and for constructed Wetland and all works are in progress. This would take six to nine months for completion of Tertiary Treatment Plant. c) Issue of Settling Tank: The requirement of construction of a temporary settling tank along with wetland creation along the Mansagar Dam was not envisaged earlier as it was expected that time schedule for all the components of the Lake 1209

3 Restoration would be adhered to. Since the monsoon was imminent and the Government process was time consuming, PSD has constructed the settling tank and the same is operating at present. JDA is to obtain ex-post facto approval of the settling tank from the Ministry of Environment and also to consider O & M issue of the same. d) Issue of untreated sewage and Storm Water from Brahmpuri and Nagtalai Nallah entering into the lake at present because of huge number of houses in the catchment of the lake do not have sewerage connection as of today. Ninety two thousand (92,000) houses approximately have still to be connected and 50 MLD STP at Jaisinghpura Khor is to be constructed by Jaipur Municipal Corporation. e) Issue of storm water disposal downstream of Dam once the lake crosses full capacity level is also to be addressed. The Mansagar Lake Conservation Programme and Jal Mahal restoration works provided learning on comprehensive and integrated management of lakes in which the Government partnered with private sector operators in managing the lakes. More recently National Lake Conservation Programme (NLCP) provided an opportunity to prepare Lake Conservation Plans for the following lakes. PDCOR has been retained as the Project Management Consultant for five lakes in Rajasthan under NLCP. National Lake Conservation Programme Government of India is financing the conservation of lakes under National Lake Conservation Plan (NLCP). The conservation of lakes is proposed to be undertaken through de-silting, de-weeding, strengthening of bunds, interception and diversion of sewage entering the tanks, fencing and such other works. Government of India provides grant of 70% of the project cost for these works and the remaining 30% has to be borne by the State Government. The proposals for rejuvenation and conservation of five lake viz Anasagar lake (Ajmer), Pushkar Sarovar (Pushkar), Pichhola & Fateh Sagar lake (Udaipur) & Nakki lake (Mount Abu) have been prepared and submitted to GoI under NLCP for approval. A brief write up on the present condition of lakes, as an outcome of the study, selected under NLCP is as follows: Anasagar Lake, Ajmer At present Anasagar faces significant environment challenges of which the advanced level of eutrophication due to heavy nutrient and pollution loading is the most significant one. Availability of sufficient quantity of water to maintain the capacity of the lake is another major concern, also, increased agricultural activities and consequent withdrawal of water in the Fatehsagar sub-catchment has reduced the inflow. Unplanned developments and illegal constructions have blocked the drainage systems and minimized the runoff. The project costing Rs Cr. has been approved by MoEF on October 22, Figure 3. Nakki Lake, Mt. Abu Pushkar Sarovar, Pushkar The small town of Pushkar has been a place of scenic beauty, worship and solace. At present, it faces acute environmental challenges related to silting in the lake, degradation of quality of water, reduction in water quantity, depletion of groundwater and many more. Pushkar sarovar, the holy waters, offers unique case in terms of addressing environmental problems as well as pilgrimage concerns, as the lake being one of the most important places in mythology and even at present to perform rituals. Detail Project Report for rejuvenation of lake and surroundings for Rs Cr. has been submitted to MoEF. It is proposed to take up works worth Rs Cr. in phase I. Nakki Lake, Mt. Abu:- Mt. Abu is a unique ecosystem with the presence of rare, endangered and endemic flora and fauna. Nakki Lake (fig. 3) is situated in Mt. Abu which is the North Western part of the Aravalli range. The findings of the DPR suggest that the major challenge that has led to unacceptable condition of the lake is the quality of water in the lake. The results of the water quality survey suggest that the quality of water in the lake though has not deteriorated much 1210

4 however the Faecal Coliform was found at an alarming level of 2,400 MPN per 100 ml of water sample (taken in November 2006). This implies that the water in the Nakki Lake is contaminated with sewage. The project for rejuvenation of Nakki Lake for Rs Cr. has been technically appraised by the S.F.C. of MoEF. 1. Stake Holders: Keeping in view the past experience of Mansagar lake in which case the beneficiaries or so called end users were perhaps not involved in the process of the DPR preparations, the senior citizens of Ajmer, Pushkar, Udaipur and Mt. Abu were closely associated with the work of DPR preparation of Lakes of these places by the consultants. A PPCP (Public Private & Community Participation) approach was taken into consideration. This has helped in pin pointing the cause of deterioration of the lakes. For example, Mount Abu is only Hill Station for the people of Gujarat and Rajasthan and therefore tourism is the main attraction of the place. Recently, it also has been declared Wild Life Sanctuary. Therefore consultations with representatives of Hotel industries in Mount Abu and Senior Citizens including former Chief Wild Life Warden, Chairman Municipal Board Mount Abu has helped in proposing the interventions which are beneficial for the tourism as well as acceptable to Wild Life Board of the state. Figure 4. Pichhola & Fateh Sagar Lakes, Udaipur:- The development activities in and around the lakes are demanded and required or meeting out growing needs of the people. Development plans executed time to time ranges from rescue to immediate solutions of the problems and implemented in piecemeal. The impact of pollution at gross level include: deterioration of water quality, reduction in submergence area, nutrient enrichment and eutrophication, flourishing growth of the macrophysics, decrease in biodiversity, increase in obnoxious gasses, decrease in water storage capacity of the lake. Detail Project Report for rejuvenation works worth Rs Cr. has been submitted to MoEF. ISSUES FOR CONSIDERATION Lessons learnt from Jal Mahal Tourism Project helped PDCOR to formulate a strategy to deal with the issue involved with any lake conservation programme. DPR s were prepared keeping in view certain parameters that are described as follows: Figure Interventions: Rajasthan represents great variation in geography as well as climate. In the proposed programme for rejuvenation of five lakes, each lake has it s own distinct problem and so is the intervention required for it. The lakes of Udaipur and Mount Abu fall in good monsoon zone of the state. These lakes are generally full of water leaving apart a few exceptional years when due to monsoon failure there was shortage of water in these lakes. The main problem in these lakes is that of pollutions from the fringe area contributing sewage, solid 1211

5 waste and other pollutants. Whereas lakes of Ajmer and Pushkar receive very less rain water and these are generally empty. The intervention required in this case is of filling the lakes with water by improving the catchment area, afforestation in catchment area, desiliting of the lakes and many more methods like floating fountains, Ozonizers for providing fresh oxygen in the lake water for survival of the species like fish etc. and reducing the nutrients from water. The DPRs have been prepared keeping in view the different aspects mentioned above. 3. Other issues that were covered for an implementable DPR s include Catchment Area Treatment, Quality of water in the lake, Replenishment of water in the lake, Beautification of lake and Institutional mechanisms for implementation of NLCP. CHALLENGES IN EFFECTIVE LAKE MANAGEMENT life is imperative to accomplish the project objectives. Evoking a sense of ownership amongst the public of these community-assets would ensure that citizens remain concerned to cleanliness of the lakes. Through PPCP approach, the community can become stakeholders during the implementation. This will ensure effective implementation of Solid waste, sewerage, water supply schemes, land acquisition and other such issues that lead to project delays otherwise. 3. Divergence of Project Development & Consultants: A professional project development company conceives a project and consultant provide its technical input to deal with problems and provides a sustainable solution. Efforts should be made for convergent of consultants and Project Development agency for sustainable management of similar projects / schemes. Generally, Lake conservation and development projects require multidisciplinary skills and expertise e.g. in engineering, hydrology, environmental sciences, project management, financing, stakeholder management and communication etc. Experiences gathered from Mansagar lake conservation initiatives executed by the State Government of Rajasthan has demonstrated the degree of complexity that might be involved in execution of such projects and its impact on outcomes. Some of the challenges other than the above mentioned issues include 1. Lack of Capacities in Local Bodies: As envisaged in the NLCP these five lakes have been handed over to local bodies. However, the local bodies in Rajasthan are generally understaffed and the skill sets of the existing staff do not match with the desired profile to execute such projects of huge size. Generally, no Municipal Corporation has experience of executing projects of such size. Moreover, execution of lake conservation projects is much more complex than that of routine construction and development projects. Successful implementation of such mission-mode projects require a diverse set of skills and exposure, which the staff of Municipal Councils lack in general. 2. Inadequate Public Participation: Effective implementation of lake conservation and development project cannot be imagined without active public support. Facilitating desired change in attitude of people is imperative to ensure that the water bodies remain clean even after the project is over. Generating awareness amongst masses about significance of water bodies in our Figure 6. Institutional Frame Work 1. Presence of a credible institutional mechanism is imperative for effective implementation of the NLCP Projects and create desired impacts with sustainability. Referring to the institutional requirements recommended by the MoEF, GoI and the State Government will require putting in place a two-tier organizational structure so that the LCP Projects could be implemented successfully. The upper level of the institutional structure will deal with policy and regulatory aspects associated with lake conservation and management. 1212

6 2. The next level, as envisaged by GoI, is of the Municipal Council which has been termed as Implementation Agency. The State Government requires setting up the appropriate structures as proposed in the NLCP Guideline. 3. In some of the States (e.g. Madhya Pradesh, Karnataka, Orissa, Manipur) Lake Authorities have been constituted as non-profit organization registered under respective Societies Act. 4. In Rajasthan it is proposed to constitute a High power committee, headed by the Chief Secretary to have an overall control of the NLCP in the state. The implementation Agency (I.A.) will be at the level of ULB/UIT in the individual lake area. 5. A project management consultant (PMC) will assist the I.A. to strengthen it in acquiring requisite technical skill and manpower for successful implementation of the project. PMC will advise in preparing bid document/award of works and construction and supervisor wherever required. This will ensure a professional approach in Project Development by involving all stakeholders under one table along with access to best International Consultans. Financial Mechanism The State share of 30% in NLCP is about Rs. 67 Cr. and is also a huge sum for the state to manage. Certain financial agencies like IL&FS, World Bank, JBIC etc. can act as a resource facilitator with Innovative proposals for earning revenue for the state / ULB s / UIT s. In Jaipur city the JMC in implementing the Basic Services for Urban Poor (BSUP) projects for resettlement of urban poor from slums to hygenic and well developed colonies. The JMC is in financial crunch and PDCOR is providing financial resources facility (loan) through IL&FS to the extent of Rs cr. PDCOR will generate revenue for JMC from the land where these sulms exist by developing it and selling it and each revenue for JMC to repay the loan. Likewise all other UIT s and ULB s can be helped to generate revenue to meet with their share in NLCP. Way Forward It is suggested that similar meetings / conference should also be conducted at a national level under the egis of National Lake Conservation Programme (NLCP). This will act as an insight to ongoing studies / practices in various parts of this country for effective lake management. The agenda will be not only to discuss the current practices in India, but also to present best practices all over the world and the environmental concerns like climate changes etc. that need attention right now. 1213