DRAFT FOR DISCUSSION - March 2006

Background Paper No. 8

INSTITUTIONAL FRAMEWORK OF

RIVER BASIN MANAGEMENT IN

NORTHEAST INDIA-HISTORY, EXPERIENCE AND THE WAY

FORWARD

Prepared by:

M.K.Sharma

CONSULTANT

Delhi, India

This paper was commissioned as an input to the Study on Natural Resources, Water

and the Environment Nexus for Development and Growth in Northeast India

Synopsis The North East Region of India, comprising of eight States, is highly rich in water resources available for exploitation for the benefit of the community, region and the nation. The Region receives an average annual rainfall of 2300 mm which drains into one of the largest river systems viz. Brahmaputra & Barak having average water resources potential of 586 BCM. The estimated 66,000 MW hydro-power potential which is about 44% of the national potential of 149,000 MW has been harnessed only to the extent of about 1095 MW (1.6% of estimated potential) against the development of 27,365 MW at the national level which amounts to about 18.4% of the total available potential. Similarly, the development of water resources in other sectors like irrigation, navigation etc. is much below the national average. The region has major recurrent problems of floods, soil & bank erosion and drainage congestion due to abundance of water, particularly in the monsoon season. Though the problems appear to be insurmountable, taking a holistic view of the available opportunities it can be concluded that with a coordinated approach and given the required resources, ie. finance, multidisciplinary manpower and cooperation of the community, the overall scenario of the region can be turned into a win-win situation for all. Presently the constituent States and the Centre do have their respective institutions for planning & executing the developmental works but the existing arrangement lacks coordination, finances, basin approach, manpower management and confidence of the community resulting in poor deliveries, small scale and piecemeal approaches to the bigger problems which come nowhere near to solving the issues. Thus the need of the hour is to come up with out-of-the-box thinking by strengthening or installing new Institutional arrangement and equipping it with the required resources, to bring a sustainable and acceptable change-at a faster pace. 1.0 GENERAL India’s North East consists of a land area of 2,55,083 sq.km (8.74 per cent of the total area of the country) jutting out eastward from between Bhutan and West Bengal and connected to the mainland by a land corridor which, at its narrowest, is 20 km in width. The States of Arunachal Pradesh, Assam, Manipur, Meghalaya, Mizoram, Nagaland and Tripura fall within this region, collectively called the Seven Sisters – a recent addition to the North East Council (the body of Chief Ministers of the North Eastern States) is Sikkim. North East India is unique in that it is home to a Kaleidoscope of races, castes, creeds, religions, cultures and languages. Approximately 200 indigenous communities (almost 50% of the indigenous population of the country) reside in the region, ranging from 13% of the population in Assam to 95% in Mizoram. The region is free from the social maladies of mainland India such as dowry, caste rigidity and untouchability. It is also the richest part of India in terms of natural resources & bio-diversity, with vast forests, perennial rivers & streams, minerals, oil and natural gases. Each State has its own identity and a unique set of issues which affect it, often vastly different from the other States in the area. The North East Region (NER) of India is highly rich in water resources available for exploitation for the benefit of the community, region and the nation. The region receives an average annual rainfall of 2300 mm with a maximum of 4100 mm in

certain areas which drains into one of the largest river systems viz. Brahmaputra and Barak. Brahmaputra is one of the largest river systems in the world having 52 major tributaries with a catchment area of 195,000 sq.km (33.6%) in India and 45,000 sq.km (7.8%) in Bhutan and rest in China (50.5%) and Bangladesh (8.1%). It carries an annual flow of about 537 BCM at Jogighopa which is almost 30% of the total water resources of country. The estimated 66,000 MW hydropower potential which is about 44% of the national potential of 149,000 MW has been harnessed only to the extent of about 1095 MW (1.6% of estimated potential) against the development of 27,365 MW at the national level which amounts to about 18.4% of the total available potential. Similarly, the development of water resources in other sectors like irrigation, navigation etc. is much below the national average. The region has major recurrent problems of floods, soil and bank erosion and drainage congestion due to abundance of water, particularly in the monsoon season. Though the problems appear to be insurmountable, taking a holistic view of the available opportunities it can be concluded that with a coordinated approach and given the required resources, i.e. finance, multidisciplinary manpower and cooperation of the community, the overall scenario of the region can be turned into a win-win situation for all. Presently the constituent States and the Centre do have their respective institutions for planning and executing the developmental works but the existing arrangement lacks coordination, finance, basin approach, manpower management and confidence of the community resulting in poor deliveries, small scale and piecemeal approaches to the bigger problems which come nowhere near to solving the issues. Thus the need of the hour is to come up with out-of-the-box thinking by strengthening or installing new Institutional arrangement and equipping it with the required resources, to bring a sustainable and acceptable change at a faster pace. 2.0 BRIEF SUMMARY OF THE KEY ISSUES Contrary to the scenario in rest of the country where the demand for water is more than the availability, in the NER there is abundance of water and the optimal exploitation of the water resources with least disturbance to the ecological balance and environment along with equitable socio-economic development fulfilling the aspirations of all concerned is the key issue. This may be further characterized as below: 2.1 Flood Management and Erosion Control This is the most enormous problem which affects the largest number of people especially in the plain areas of Assam and other States. The problem has been the focal point since independence and a number of Commissions and Committees have been constituted to address this problem. Considerable efforts have also been made to control this problem. However these are still far inadequate in view of the enormity of the problem which can be understood by the figures given in the following table.

Sl. no.

Time period

Average of affected

% of crop

Average of damage

% crop damage

Avg. affected

area (Mha)

crop area

(Mha)

Total (Rs. Cr.)

Crop (Rs. Cr.)

1. 1953-59

1.13 0.12 10.6 5.9 3.9 66.0 0.86

2. 1960-69

0.75 0.16 21.0 7.6 7.0 92.4 1.52

3. 1970-79

0.87 0.21 24.5 15.2 13.6 89.3 2.00

4. 1980-89

1.16 0.40 34.2 175.5 75.4 43.0 4.02

5. 1990-99

0.70 0.22 31.3 111.7 84.3 75.5 3.38

6. 2000-04

1.18 0.43 36.0 1595.6 215.0 13.5 5.91

2.2 Irrigation Development The efforts for development of irrigation facilities were started in right earnest in 1970s and 80s. However, the momentum was lost in the 1990s and there has been not much difference even after the introduction of Accelerated Irrigation Benefit Programme (AIBP) introduced by the Central Government in 1996. The region still lags far behind the national average of irrigation development. Besides the routine reasons like paucity of funds and institutional deficiencies there are definite socio-economic and cultural reasons behind it. Traditionally multiple cropping and irrigation has not been practiced in the region. But irrigation is slowly becoming important with the rise in population and economic development. 2.3 Development of Hydropower As has been expressed in the earlier para the development of hydropower has been very low in the region (only 1.6% of available) despite the largest potential being available. The scenario has started to look up after this being made a thrust area by the Central Government and starting a plan for additional generation of 50,000 MW by the year 2012. Geographical reasons have been the main reason for the slow growth in the past, but in future hydropower alone may become the largest growth engine for the region. 2.4 Supply of Safe Drinking Water This is a sensitive problem which affects the masses in the most direct manner. In most of the NER the ground water is having high iron content and high fluoride content. Of late the problem of arsenic has also been detected in many areas of the region. Since the ground water constitutes a major part of the drinking water supply, this problem needs a serious attention from the concerned authorities. The issue of water quality has gained nationwide importance during the last decade and a national authority called as Water Quality Assessment Authority has been constituted by the Government of India (GoI) under the Chairmanship of Secretary, Ministry of Environment and Forests (MoEF), which in turn has constituted the State Level Water Quality Review Committees under the Chairmanship of Secretaries/Commissioners of

the concerned State departments. The main objectives of Water Quality Assessment Authority are: • Bringing uniformity in data collection and compilation by the various agencies

involved and to create a common database. • Identification of the problem areas. • Promoting research and development schemes. • Promoting and aiding appropriate technology, transfer of technology and

development of necessary human resources. In the hill States of the region the small hill top villages of few dwellings largely depend upon roof top rainwater harvesting for meeting their drinking water requirements. Development of community rainwater harvesting schemes with disinfection measures being taken can improve the situation. 2.5 Inland Water Transport The water ways provide a cheaper mode of transport for man and material. The NER is crisscrossed by a number of perennial streams and the use of ferries is popular as well as necessary in many parts. Efforts are being made to develop certain sections on the river Brahmaputra and Barak as the water ways for mass transport. 3.0 LAWS AND REGULATIONS REGARDING WATER RESOURCES

MANAGEMENT 3.1 Constitutional provisions The Constitution of India has demarcated areas of legislation, executive and financial powers between the Union of India and States. The Constitutional provisions in respect of allocation of responsibilities between the States and Centre fall into three categories: • The Union List (List I); • The State List (List II); and • The Concurrent List (List III).

In the Constitution, water is a matter included in Entry 17 of List II (State List). The entry is subject to the provisions of Entry 56 of List I (Union List). The relevant provisions are as follows: i) Entry in List II (State List in Schedule VII of the Constitution)

“Water, that is to say, water supplies, irrigation and canals, drainage and embankments, water storage and water power subject to the provisions of entry 56 of List I.”

ii) Entry 56 of List I (Union List)

“Regulation of land development of interstate river valleys to the extent of which such regulation and development under the control of the Union is declared by Parliament by law to be expedient in the public interest.”

In view of the above, the Central Government is empowered to enact a law for creating the desired institution/body entrusting integrated development and regulation of water resources in the country. 3.2 National Water Policy, 2002 The policy provides guidelines for water resources management and development. It also prescribes the priorities which are to be accorded to various kinds of water uses. Drinking water gets the top priority. The policy identifies the river basins as the geographical unit for water resources management. The concept of establishment of appropriate River Basin Organizations (RBOs) has been advocated in National Water Policy (NWP) 2002 for overall planning, development and management of water resources. The importance of multidisciplinary and participatory approach has been emphasized in the policy. Relevant provisions of the policy are stated below: Under para 3.3 of 3 ‘Water Resources Planning’ the Policy States that: “Water resources development and management will have to be planned for a hydrological unit such as drainage basin as a whole or for a sub-basin, multi-sectorally, taking into account surface and ground water for sustainable use incorporating quantity and quality aspects as well as environmental considerations. All individual developmental projects and proposals should be formulated and considered within the framework of such an overall plan keeping in view the existing agreements/awards for a basin or a sub-basin so that the best possible combination of options can be selected and sustained.” And accordingly advocates under Para 4.1 of 4 ‘Institutional Mechanism’ as “With a view to give effect to the planning, development and management of the water resources on a hydrological unit basis, along with a multi-sectoral, multi-disciplinary and participatory approach as well as integrating quality, quantity and the environmental aspects, the existing institutions at various levels under the water resources sector will have to be appropriately reoriented/reorganised and even created, wherever necessary. As maintenance of water resource schemes is under non-plan budget, it is generally being neglected. The institutional arrangements should be such that this vital aspect is given importance equal or even more than that of new constructions.” and under 4.2 directs “Appropriate river basin organisations should be established for the planned development and management of a river basin as a whole or sub-basins, wherever necessary. Special multi-disciplinary units should be set up to prepare comprehensive plans taking into account not only the needs of irrigation but also harmonising various other water uses, so that the available water resources are determined and put to optimum use having regard to existing agreements or awards of Tribunals under the relevant laws. The scope and powers of the river basin organisations shall be decided by the basin States themselves.” The other paras 6 ‘Project Planning’ and 12 ‘Participatory Approach to Water Resources Management’ are also relevant to mention as para 6.4 States that “There

should be an integrated and multi-disciplinary approach to the planning, formulation, clearance and implementation of projects, including catchment area treatment and management, environmental and ecological aspects, the rehabilitation of affected people and command area development.” Para 6.6 “The drainage system should form an integral part of any irrigation project right from the planning stage.” Para 6.8 “The involvement and participation of beneficiaries and other stakeholders should be encouraged right from the project planning stage itself.” Para 12 “Management of the water resources for diverse uses should incorporate a participatory approach; by involving not only the various governmental agencies but also the users and other stakeholders, in an effective and decisive manner, in various aspects of planning, design, development and management of the water resources schemes. Necessary legal and institutional changes should be made at various levels for the purpose, duly ensuring appropriate role for women. Water Users' Associations and the local bodies such as municipalities and gram panchayats should particularly be involved in the operation, maintenance and management of water infrastructures /facilities at appropriate levels progressively, with a view to eventually transfer the management of such facilities to the user groups/local bodies.” The above policy provisions can be effectively implemented through integrated development and management of water resources of a basin or sub-basin by an appropriate Institutional arrangement. 3.3 River Boards Act, 1956 The Government of India had enacted “River Boards Act” for the establishment of River Boards for the regulation and development of inter-State rivers and river valleys in 1956 just after six years of adopting the Constitution. However, no River Board has been constituted so far under this Act. The clause 4(1) of the Act provides for constitution of the River Boards by the Central Government itself or on the request of State Government (s). However, the powers have been limited due to a provision which reads as “Provided that no such notification shall be issued except after consultation with the Governments interested with respect to the proposal to establish the Board, the persons to be appointed as members thereof and the functions which the Board may be empowered to perform.” 3.4 Resettlement and Rehabilitation Issues In recent times the Resettlement and Rehabilitation (R&R) issues have gained prominence as these issues get a wide public support as well as support of Courts of Law, NGOs and Human Rights organizations. Ministry of Rural Development, GoI has formulated a national policy on “Resettlement and Rehabilitation for Project Affected Families – 2003”. Policy gives due recognision and importance the weaker section of the society, women and tribals communities. Policy also lays down the guidelines for implementation and monitoring mechanisms. Objectives of the Policy are; (a) To minimize displacement and to identify non-displacing or least-displacing

alternatives; (b) To plan the resettlement and rehabilitation of Project Affected Families,

(PAFs) including special needs of Tribals and vulnerable sections;

(c) To provide better standard of living to PAFs; and (d) To facilitate harmonious relationship between the Requiring Body and PAFs

through mutual cooperation. The Policy essentially addresses the need to provide succour to the assetless rural poor, support the rehabilitation efforts of the resource poor sections, namely, small and marginal farmers, SCs/STs and women who have been displaced. Besides, it seeks to provide a broad canvas for an effective dialogue between the Project Affected Families and the Administration for Resettlement & rehabilitation. Such a dialogue is expected to enable timely completion of projects with a sense of definiteness as regards costs and adequate attention to the needs of the displaced persons especially the resource poor sections. The intention is to impart greater flexibility for interaction and negotiation so that the resultant Package gains all-round acceptability in the shape of a workable instrument providing satisfaction to all stakeholders/Requiring Bodies. The rehabilitation grants and other monetary benefits proposed in the policy would be minimum and applicable to all project affected families whether belonging to BPL or non-BPL families. States where R&R packages are higher than proposed in the policy are free to adopt their own packages. Policy also lays down the guidelines for grievances redressal and dispute resolution. 3.5 Environmental and Forests clearance All the water resources development projects are required to be cleared from environmental and forests angle by the MoEF, GoI. MoEF has framed detailed guidelines and regulations for clearances depending upon the nature and size of the schemes. This has been a complex matter and many projects have suffered on account of delays caused due to non-clearance. The main issue under the forests clearance is the compensatory aforestation and the availability of land for this purpose. For the environmental clearance, the corner stone of the policy is the Environmental Impact Assessment study which is to be carried out by a committee of multi-disciplinary experts constituted by MoEF for each project. Efforts have been made to simplify the process for expediting the clearances and many modifications have been issued in this regard from time to time. 4.0 CENTRAL GOVERNMENT INITIATIVES FOR RBOs As explained in above para that though water is a State subject as per constitution of India, the Central Government is fully aware that equitable, efficient, optimal and sustainable development of the water resources of a basin/sub-basin is only possible through effective planning, regulation, coordination and implementation by basin/sub-basin specific organisation and accordingly, continuously advocating constitution of RBOs since last 50 years by way of enacting River Boards Act – 1956, adopting in National Water Policy – 1987 revised in 2002. Several Committees were also constituted from time to time who recommended for constitution of RBOs, their probable models, jurisdictions, functions, powers and setups. Brief of some of the Committees and their recommendations are given below:

4.1 Sub-Committee of the Parliamentary Consultative Committee of MoWR -

1988 A Sub-Committee of the Parliamentary Consultative Committee of MoWR considered the matter in 1988 and recommended formation of RBOs and suggested the composition. Setting up of RBOs was recommended in seven river basins including Brahmaputra, where reconstitution of existing organization had been suggested. The model of RBO suggested by the Committee for major inter-state rivers was proposed to be established under Article 246 of the Constitution by enactment of suitable law. The RBO was to work directly under the overall guidance of the Central Government and charged with authority for storage apportionment, regulation and control at various points in the river basin. The decision of RBO on matters was to be final and binding with provision for review by a Committee. The review committee was to be headed by Union Minister of Water Resources and Union Ministers from concerned party States or Ministries representing the State Governments were to be members. 4.2 Sub-Committee of the National Water Board - 1991 MoWR in February 1991 constituted a Sub Committee of National Water Board under the chairmanship of the Chief Secretary, Government of Gujarat with Secretaries (Irrigation) of Madhya Pradesh, Maharashtra, Arunachal Pradesh & Karnataka; Member (WP&P), CWC; Adviser (I&CAD), Planning Commission as Members and Chief Engineer (BPMO), CWC as Member- Secretary. The terms of reference of the sub-Committee included (a) examining the administrative, technical and legal aspects of setting up river basin organizations; (b) determining the powers and functions of the organizations; and (c) considering the setting up of the organizations in phases starting with organizational build up in the concerned State Governments and prepare a policy note on the subject. The Sub-Committee reviewed the earlier proposal of the Sub-Committee of Parliamentary Consultative Committee and recommended in 1992 that the RBOs need not be set up under an Act of Parliament but through administrative order. The proposed RBO was to be headed by a person of proven competence in water resources development as Chairman, assisted by a Member-Secretary and supported by an inter-disciplinary organization for coordination of work related to water resources planning, development and management. The representative from each Basin State would be among other members of the RBO. The Sub-Committee opined that the RBO should be given overseeing of the implementation in respect of storage apportionment, regulation and control at various points in the river basin as per the Awards of Tribunals or inter-State agreements. The RBOs would be basically a coordinating agency, rather than a controlling authority. The recommendations were considered by the National Water Board in its various meetings. However, a consensus could not emerge. 4.3 National Commission for Integrated Water Resources Development Plan

- 1999

The National Commission for Integrated Water Resources Development Plan (1999) considered the need for setting up of RBOs and was strongly of the view that RBOs are an essential institutional mechanism for integrated development. The Commission observed that the earlier proposals were not received with enthusiasm by the States because those of RBOs were visualized as a nominated technical body of the Central Government to thrust decisions on States and curtailing freedom of States. The Commission recommended RBOs as body in which the concerned State Governments, Local Governments and water users would have representation and which would provide a forum for mutual discussions and agreement. The Commission suggested indicative structure of an RBO considering the need for wide representation, general acceptance and effective functioning which would consist of a General Council and a Standing Committee with a permanent secretariat. It should be a multi-disciplinary professional body. The cost of funding the RBO may be shared equally by the Government of India and the participating states. Suggestion have been made that RBO should execute projects, but this may be done only if the State Government concerned requests the RBO to take up the responsibility. 4.4 Committee on RBOs headed by Additional Secretary, MOWR - 2003 On the recommendation of the National Water Board, the MoWR has set up a Committee in February 2003 under the Chairmanship of the Additional Secretary, MoWR, Government of India and Secretary (Water Resources/ Irrigation) of Governments of Gujarat, Jharkhand, Madhya Pradesh, Maharashtra, Orissa, Tamilnadu, Uttar Pradesh & West Bengal as Members and Commissioner (Policy & Planning), MoWR, Government of India as Member-Secretary. The terms of reference of the sub-Committee included (i) deliberating upon various model(s) of RBOs and recommending the most suitable one(s) for meeting the objectives of sustainable and optimal development of water resources of the country in accordance with the intents of National Water Policy; (ii) recommending the model(s) including its structure, functions and powers. The Committee is understood to have suggested three tier structure of the RBO consisting of Council, Board and Secretariat. 4.5 Task Force to look into the problem of recurring floods in Assam and

neighboring states as well as Bihar, West Bengal and eastern Uttar Pradesh –2004.

A Task Force was set up by the MoWR to look into the problem of recurring floods in Assam and neighboring states as well as Bihar, West Bengal and eastern Uttar Pradesh under the chairmanship of Chairman, CWC. The Task Force opined inadequate organizations deployed for flood management as one of the reasons of the slow progress in achieving the desired degree of protection against floods in its report submitted in December 2004. It has observed that it has become necessary to review existing institutional arrangements and that the Central Government plays a greater role in flood management by enacting appropriate Acts under existing constitutional provisions. It recommended that the Brahmaputra Board be upgraded, strengthened and empowered appropriately and existing related organizations be integrated into one authority.

Several other Committees/Task Forces etc. were also constituted, besides given above, to examine the issue of floods in the country including the NER who also touched upon the issue of institutional requirements for this purpose, which are being listed as below:

• Policy Statement – 1954 • High Level Committee on Floods – 1957 • Policy Statement - 1958 • Ministerial Committee on Flood Control – 1964 • Minister’s Committee on Floods and Flood Relief – 1972 • Working Groups on Flood Control for Five-Year Plans. • Rashtriya Barh Ayog – 1980 • National Water Policy - 1987 • Committee on Flood Management in the North Eastern States -1988 (Naresh

Chandra Committee) • National Commission for Integrated Water Resource Development plan –

1996 (S R Hashim Commission) • Regional Task Forces - 1996 • Report of the Committee on silting of rivers in India - 2002 (Dr B K Mittal

Committee) • Report of the Experts Committee to Review the Implementation of

Recommendations of Rashtriya Barh Ayog - 2003 (R Rangachari Committee) • Report of Technical Group on flood and erosion problems of North Bengal –

July, 2004 (M K Sharma Report). 5.0 AGENCIES/ORGANISATIONS RESPONSIBLE FOR WATER

RESOURCES DEVELOPMENT AND THEIR MANDATES IN THE NER

As has been elaborated in item 3 above the development of water resources basically is under the jurisdiction of State Governments while the Central Government acts as a coordinator, promoter and advisor. The State Governments formulate the projects, obtain the necessary administrative and financial approvals from State Government as well as Central Government departments, execute the schemes and maintain them. Central Government agencies, with the consent or on request of the State Government departments provide technical assistance, consultancy and even prepare Detailed Project Reports. Clearance from the Central Government depends upon nature viz. interstate or single State projects and size of the project. There are elaborate guidelines and procedures for preparation of project reports and their clearance from respective agencies for all kind of schemes. Details of functions of various agencies are described below: 5.1 Central Agencies 5.1.1 Ministry of Development of North East Region The Department of Development of North Eastern Region (DONER) was created in September 2001 by an amendment to the Government of India’s Allocation of Business Rule. The Department was formally inaugurated on 1st November, 2001.

This Department was accorded the status of a Ministry vide Gazette notification of Government of India dated 27th May, 2004. The works allocated to the Ministry include: • Matters related to the planning, execution and monitoring of developmental

schemes and projects of North Eastern Region including those in the sectors of Power, Irrigation, Roads and Communications.

• Non-lapsable Central Pool of Resources for the NER. • North Eastern Council. • Road works financed in whole or in part by the Central Government in the NER.

Planning of Road and Inland Waterways Transport in the NER. 5.1.2 Central Water Commission Central Water Commission is an apex national organization in the field of Water resources Planning & Development in the country. The main functions of the organization are: • National level planning and policy making regarding water resources

development. • Preparation of guidelines/manuals for preparation of project reports and other

technical matters. • Providing technical assistance/consultancy to State Government/PSUs in

execution of the projects. • Assessment of water resources of the country and flood forecasting, which is an

important non-structural measure of flood management. • Techno-economic appraisal of major & medium irrigation and multipurpose

Projects and monitoring including Command Area Development (CAD) works. • Investigation and preparation of project reports on the request of State

Governments or other agencies. Regional office of CWC at Shillong has its jurisdiction over the entire north east and performs the following functions: • Hydro-meteorological data collection in Brahmaputra and Barak basins. • Flood forecasting in the Brahmaputra and Barak basins. • Survey, investigation and preparation of DPRs of river valley projects in the NER. • Monitoring of Major, Medium and Minor irrigation schemes receiving Central

Loan Assistance under AIBP. • Monitoring of Command Area Development schemes receiving Central Loan

Assistance. • Liaison with the State Governments/NEC and other organizations working in the

north east regarding various issues and schemes of MoWR. 5.1.3 Brahmaputra Board The GoI has set up an autonomous body namely Brahmaputra Board under the Brahmaputra Board Act, 1980 to carry out mainly surveys and investigations and

prepare a Master Plan for the control of floods and bank erosion in the Brahmaputra valley. A High Power Review Board was constituted by the GoI in 1982 to oversee the work of Brahmaputra Board with Union Minister of Water resources as its Chairman and 14 members who are Chief Ministers or Union Cabinet Minister/Minister of State for Finance, Energy, Agriculture, Surface Transport, Minister of State for Water resources, Secretary (Water Resources) and Chairman (CWC). Chairman Brahmaputra Board is the Member Secretary. The Brahmaputra Board has also representatives from the Government of Assam, Meghalaya, Nagaland, Manipur, Tripura, Mizoram and Arunachal Pradesh, NEC and Central Ministries of Agriculture, Irrigation, Finance Board, Transport, representatives of CWC, CEA, Geological Survey of India and Indian Meteorological Department. Originally, the Chairman was of the rank of Secretary to the GoI, but subsequently in 2000 it was downgraded to that of Additional Secretary to GoI. Objectives and functions of Brahmaputra Board have been defined in the Brahmaputra Board Act, 1980 under Clause 12 and Clause 13. Clause 14 provides certain conditions under which the Board has to function. Provisions of Clause 12(1) (1) Subject to the other provisions of this Act and the rules, the Board shall carry

out surveys and investigations in the Brahmaputra Valley and prepare a Master Plan for the control of floods and bank erosion and improvement of drainage in the Brahmaputra Valley – provided that the Board may prepare the Master Plan in part with reference to different areas of the Brahmaputra Valley or with reference to different matters relating to such areas and may as often as it considers necessary so to do, revise the Master Plan or any part thereof.

(2) In preparing the Master Plan, the Board shall have regard to the development

and utilization of water resources of the Brahmaputra Valley for irrigation, hydro power, navigation and other beneficial purposes and shall, as far as possible, indicate in such plan the works and other measures which may be undertaken for such development.

(3) The Master Plan shall be submitted to the Central Government as soon as may

be after it has been prepared or, as the case may be revised and the Central Government shall, after consultation with the State Governments concerned, approve the same subject to such modifications as it may deem fit.

Provisions of Clause 13(1) a) To prepare detailed project reports and estimates for dams and other projects

proposed in Master Plans; b) To draw up standards and specifications for the construction, operation and

maintenance of such dams and other projects;

c) To construct, with the approval of Central Government, multipurpose dams and works connected therewith proposed in Master Plans as approved by Central Government and maintain and operate such dams and works;

d) To prepare, in consultation with the State Government concerned, a phased programme for the construction by the State Government of all dams and other projects proposed in the Master Plans as approved by the Central Government other than those referred in (c);

e) Perform any other function which may be prescribed for the proper implementation of this Act;

f) To perform such other functions as supplemental, incidental or consequential to functions specified above.

Provisions of Clause 13(2) Notwithstanding anything contained in Clause (d) sub-section (1), the Board may, with the prior approval of the Central Government, construct any dam or project referred to in that clause if it is satisfied, having regard to the cost of construction, and the expertise required for the construction, if any such dam or project, that it is expedient so to do. Provisions of Clause 13 (3) The Board may maintain and operate any dam or project referred to in sub-section (2) for so long as it deems it necessary so to do. Provisions of Clause 14 Conditions subject to which Board may function: a) No multipurpose dam as referred to in Clause 13(1)(c) shall be constructed by

Board unless the State Governments make available the required land. b) No dam or project referred in Clause 13(1)(d) shall be constructed unless the State

Governments concerned make available free of cost land required for its execution and also undertake to take over its maintenance.

c) No dam or other works shall be undertaken by the Board unless the State Governments concerned agree to provide all such assistance as may be required for the construction, operation and maintenance thereof.

d) Central Government to specify such other conditions including conditions relating to sharing by the State Government concerned of the whole or part of cost of dam or other works constructed by the Board by a general or special order published in the Official Gazette.

Provided that before undertaking the construction of any dam or other works, the Board shall apprise the State Government concerned of the cost of construction of, and the benefits likely to accrue from such dam or other works and proportion in which the State Government shall share such cost and benefits. In the case of disagreement, the Board shall refer the matter to the Central Government for decision and the Central Government shall decide such matter after

consulting the State Governments and the decision of the Central Government shall be final Activities Brahmaputra Board has undertaken the following works in line with its mandate:

• River basin planning and preparation of Master Plans for the Brahmaputra, the Barak and their tributaries.

• Survey, investigation and DPR preparation for drainage development schemes for the drainage-congested areas identified in the Master Plan.

• Survey, investigation and DPR preparation for multipurpose river valley projects. • Survey, investigation and DPR preparation for anti erosion schemes. • Hydro-meteorological data collection. • Construction of Drainage Development Schemes and Multipurpose river valley

project. • Construction of anti-erosion works. • Physical Model Studies of river related problems. • Soil, Rock & Concrete testing and foundation studies. • Monitoring of the works executed by Assam State Government under Central

Loan Assistance. 5.1.4 Central Ground Water Board (CGWB) The CGWB is a National apex organisation with responsibilities to carry out scientific surveys, exploration, monitoring of development, management and regulation of country’s vast ground water resources for irrigation, drinking, domestic and industrial needs. Established in 1954, Central Ground Water Board functions under the Ministry of Water Resources (MoWR), GoI. The Board is headed by a Chairman and 4 Members, with their offices in Delhi & Faridabad under whom 16 Regional offices function in different State Capitals headed by Regional Directors. • Hydro-geological surveys; • Exploratory drilling; • Groundwater monitoring; • Hydro-chemical studies; • Hydro-meteorological studies; • Geophysical studies; • Remote sensing; • Water supply investigations: • Groundwater resource estimation; • Special project studies; • Assistance to User Agencies; • Groundwater user maps; • Mass Awareness & Training Programme; and • Rain water harvesting schemes. 5.1.5 National Institute of Hydrology (NIH)

The NIH was established in 1978 as a research organisation under UNDP project with its Headquarters at Roorkee (Uttaranchal). The Institute was established as an autonomous society under the MoWR, GoI with the following main objectives: • To undertake, aid, promote and co-ordinate systematic and scientific work in all

aspects of hydrology; • To cooperate and collaborate with other national, foreign and international

organisations in the field of hydrology; and • To establish and maintain a research and reference library. Basic and applied research, field and laboratory oriented action research, demand driven research and technology transfer form the major activities of the Institute. It is the endeavour of the Institute to apply hydrological principles for solving water resources problems of the country. The North-Eastern Regional Centre (NERC) covering seven NE states, Sikkim and hilly regions of West Bengal was established at Guwahati in August 1988. Since its inception, the centre has been actively interacting with the various water resources organisations in the States covered under the region while carrying out its studies and activities within the frame work of recommendations of the Regional Coordination Committee in the areas of representative basin studies, remote sensing applications, water quality studies, floods, watershed management etc. The Regional Centre has created facilities like Water Quality Laboratory, Soil Laboratory, Remote Sensing Applications Laboratory. For basic research, it has also established one representative basin at Dudhnai and various hydro-meteorological equipment have been installed in a meteorological observatory. An Automated Weather Station capable of continuously recording ten weather parameters has also been installed at Guwahati (finally to be shifted to representative basin). Considering the flood as a major problem in the region, MoWR, GoI, decided to focus the activities of centre towards the problems of floods in Brahmaputra and renamed it as NIH Centre for Flood Management Studies for the Brahmaputra Basin (NIH-CFMS). The centre was formally opened on September 27, 2001. As per the five year action plan, the Regional Centre is now working on the following areas: • Flood estimation and routing; • Structural/non-structural measures for flood management; • Integrated watershed management for flood control; • Hydrological data base management system; • Drainage congestion and erosion problems; • Water quality problems; • Socio-economic aspects of flood disaster; and • Technology transfer. 5.1.6 Inland Waterways Authority of India (IWAI)

The IWAI was set up in October, 1986 under the IWAI Act, 1985. As per this Act the Authority consists of Chairman, Vice Chairman, not more than three full time Members and not more than three part time Members. At present there is a full time Chairman, three full time and three part time Members in the Authority. The Head quarter of the Authority is located at NOIDA, UP and its field offices at Kolkata, Farakka, Bhagalpur, Patna, Ballia and Allahabad on National Waterways (NW-1), Guwahati on NW-2 and Kochi and Kollam on NW-3. The IWAI has also identified Barak river as a waterway. 5.1.7 Ministry of Agriculture, GoI The Ministry of Agriculture is involved in Watershed Development Programmes of River Valley Project & Flood Prone River and Rain fed Areas by implementing “National Watershed Development Project for Rain fed Areas (NWDPRA)” and “Integrated Watershed Development Project (IWDP)” in the country including North-Eastern States. The Project Reports are prepared, supervised and implemented by multi-disciplinary group of technical officers of the State Agriculture Departments for which funds are provided by the Ministry of Agriculture. It also operates a scheme called as “Watershed Development Project in Shifting Cultivation Areas (WDPSCA)” in the NER. The objective of the scheme is the overall development of Jhum areas on watershed basis, reclaiming the land affected by shifting cultivation and socio-economic upgradation of Jhumia families so as to encourage them for settled agriculture. The scheme provides 100% Central Assistance to the State Plan for the following components of watershed management: (i) administration cost; (ii) community organization; and (iii) training programme and rehabilitation component through household/land based

production system. The scheme is taken up through Government and Non-Government Organizations, scientific and technical institutions in the NE States in watersheds where a minimum of 25% area is under shifting cultivation and 50% and above families are engaged in shifting cultivation as the only means of livelihood and are living below poverty line. 5.1.8 Geological Survey of India (GSI) Geological Survey of India has its regional office at Shillong. It plays an important role in planning of the projects by providing necessary geological inputs. 5.1.9 Survey of India (SOI) Survey of India has also its regional office at Shillong, which carries out topographical surveys of the project sites and other areas at the request of projects authorities. 5.2 Regional Level Agencies 5.2.1 North Eastern Council (NEC)

The NEC came into being by an Act of Parliament, The North East Council Act, 1971 to act as advisory body in respect of balanced socio-economic development in the north eastern areas consisting of the present States of Arunachal Pradesh, Assam, Manipur, Meghalaya, Mizoram, Nagaland and Tripura. The NEC started functioning in the year 1972. The NEC Amendment Act 2002 has come into force from December 20, 2002. As a consequence thereof, Sikkim is now a member of the NEC. At present NEC acts as an arm of MoDONER. The members of the NEC consist of the Governors and the Chief Ministers of the Eight Member States including Sikkim. Apart from the Chairman and three Members nominated by the President of India. The NEC was constituted for performing the following functions: • To discuss any matter in which some or all of the States represented in the

Council have common interest and advise the Central Government and the Governments of the States concerned as to the action to be taken on any such matter, particularly with regard to:

(i) any matter of common interest in the field of economic and social planning; (ii) any matter concerning inter-state transport and communication; and (iii) any matter relating to power or flood control projects of common interest.

• To formulate and forward proposals for securing the balanced development of the

north eastern areas particularly with regard to:

(i) a unified and coordinated Regional Plan, which will be in addition to the State Plan, in regard to matters of common importance to that area;

(ii) prioritization the projects and schemes included in the Regional Plan and recommend stages in which the Regional Plan may be implemented; and

(iii) regarding location of the projects and schemes included in the Regional plan to the Central Government for its consideration;

Where a project or a scheme is intended to benefit two or more States, to recommend the manner in which such project or scheme may be executed/implemented and managed, the benefits therefrom may be shared, and the expenditure thereon may be incurred. • To review, from time to time, the implementation of the projects and schemes

included in the Regional Plan and recommend measures for effecting coordination among the Governments of the concerned States in the matter of implementations.

• To review progress of expenditure and recommend to the Central Government the quantum of financial assistance to be given to the States entrusted with implementation of any project included in the Regional Plan.

• To recommend to the Governments of the States concerned or to the Central Government the undertaking of necessary Surveys and Investigations of projects to facilitate inclusion of new projects in the Regional Plan for consideration.

• To review, from time to time, the measures taken by the States represented in the Council for the maintenance of security and public order and recommend to the concerned State Governments further measures necessary in this regard.

An Eleven Member Committee was constituted by Government for revitalisation of the NEC, in October 2003 The Committee held consultations with the Governors, Chief Ministers of the North Eastern States, MPs of the Region, State Government officials, Intellectuals, Academicians, Civil Society Groups and other stakeholders. The Committee has finalized its Report and it was formally submitted to the Government on 30th August 2004. Some of the recommendations in the Report relate to:

i) Composition of the Council; ii) Strengthening of organisational set up of the NEC Secretariat at Shillong; iii) Regional Planning for Sustainable Growth and Development of NER; iv) Financing and Implementation of the Regional Plan; v) Monitoring and Evaluation of Development Projects; and vi) Establishing Synergies with Development Partners.

The Government’s Common Minimum Programme envisages “Revitalisation of NEC” as a priority area and it provides that NEC will be strengthened with adequate professional support. 5.2.2 North East Regional Institute of Water and Land management (NERIWALM) This institute was set up at Tezpur in December, 1989 by the NEC, basically for imparting training to the in-service professionals, NGOs and the farmers of the North Eastern Region and also to be further developed as a Research and Consultancy Institute on all matters relating to water and land management. 5.3 State Level Agencies/Organisations Water essentially being a State subject, various schemes are planned and executed by the different departments of the States. Brief description of these departments is given below – State-wise and Sector-wise details have been tabulated at Annex-I. 5.3.1 State Water resources Department/Irrigation and Flood Control Department. In the NER, irrigation and flood control projects are executed through respective State departments named as Water Resources Department or Irrigation and Flood Control Department or Public Works Department. In the State of Assam where the flood and erosion control is the biggest problem, the Water Resources Department is responsible for the projects relating to floods and erosion control and irrigation is looked after by Irrigation Department. Mainly the mandate of these departments is to formulate schemes, to obtain necessary approvals from appropriate agencies/authorities, to execute them and their maintenance. 5.3.2 State Electricity Boards

The development of hydropower falls under the purview of State Electricity Boards. The Electricity Boards are to execute and maintain the various hydropower projects owned by the State. 5.3.3 State Agriculture department The State Agriculture Departments are responsible for formulation and implementation of watershed management schemes. 5.4 Public Sector Undertakings 5.4.1 National Hydro-electric Power Corporation (NHPC) The NHPC is a Public Sector Undertaking (PSU) and has been functioning in the Region since 1976. The activities of the NHPC are as under: (i) Survey, investigation and preparation of DPR for hydro-electric power projects. (ii) Construction of hydro-electric power projects. In the North-East, NHPC has taken up preparation of DPR and construction of projects in Subansiri, Siang and Debang valleys. 5.4.2 North Eastern Electric Power Corporation (NEEPCO) The NEEPCO is a PSU incorporated on April 2, 1976 and has been functioning for exploitation, utilization and development of the inherent power generation capabilities in the North East for the benefit of the region and the country as large. It started with an authorized share capital of Rs.75 cr. in 1976, which has grown over the years commensurate with the growth of its activities to Rs.2500 cr. in February 2004. Its activities in the region are: (i) Collection of Project Specific data. (ii) Survey, investigation and preparation of DPR for hydro-electric power projects. (iii) Construction, operation and maintenance of Hydel and thermal power projects. So far, the corporation has constructed three Hydel and two gas based thermal power projects with a total generating capacity of 1105 MW (730 MW Hydel and 375 MW thermal power). 5.4.3 National Thermal Power Corporation (NTPC) NTPC was created for development of Thermal power in the country. However it has entered in the field of hydropower in a big way and has shown interest in a number of projects in the NER. 5.5 Other agencies 5.5.1 Indian Institute of Technology (IIT), Guwahati

IIT, Guwahati is a premier institute of the country. It has a Civil Engineering wing which also deals with water resources. The institute can take up the works of R&D nature like numerical modelling of flood and pollution related issues, environmental impact assessment, disaster management and use of remote sensing technique etc. There are other departments like Indian Council of Agriculture Research (ICAR) in the agricultural research field, National Remote Sensing Agency (NRSA)/SAC in remote sensing who all work in fields related to the water resources sector. 5.6 Private Participation Projects of flood and erosion control and even irrigation are either non-revenue generating or financially unviable for private parties. A number of private parties have shown interest and a few are executing hydropower projects in the NER specially Sikkim and Arunachal Pradesh. 6.0 BUDGET ALLOCATION 6.1 Central Agencies These are funded directly by the Central Government through consolidated fund of India or various plan and non-plan schemes. For certain activities they may charge to the client for services asked by them on non-commercial basis and as per guidelines fixed by the central Government. For example CWC charges salary of staff plus other actuals and overhead charges for surveys and investigations and technical consultancy from the clients which are usually State Governments or PSUs. 6.2 Regional agencies Regional agencies get their budgetary support from the Department of North Eastern Region (DONER). The DONER uses the funds available with the non-lapsable Central pool of resources (NLCPR). Funds to the NLCPR accrue from balance of the 10% Gross Budgetary Support (GBS) which each Ministry/Departments of GoI is mandated to spend in the region. Project-specific support is provided from this fund for developmental infrastructure in the North East. 6.3 State Agencies These are funded through the plan and non-plan budgets of the State Governments in addition they get full/partial budgetary support from Central Government as well as from DONER for various schemes. This budgetary support is provided as grant as well as loan as per the guidelines of the lending authority in respect of various schemes such as AIBP for major, medium and minor irrigation projects, command area development and water management (CADWM) schemes etc. For example, for irrigation projects, Central Government provides funds through MoWR under the AIBP scheme introduced in 1995-96. The mode of support is broadly described below:

Total State Plan = 25% State fund + 75% Central Loan Assistance (CLA) CLA = 10% Loan + 90% grant

The CLA is given in two equal installments against the Utilisation Certificates submitted by the State Governments after physical completion of the works and financial expenditure. Besides this the State agencies may arrange assistance from other sources also like financial institutions and external agencies. 6.4 Other agencies These are funded through the Central Government through different means depending upon the nature of the agency viz. boards, authorities, autonomous bodies etc. which are governed by different business rules. 6.5 Public Sector Undertakings These are corporations with majority or controlling stocks being held by the Central Government. The financial matters are dealt as per corporation business rules. They can raise funds through financial institutions as well by divesting the stock holding. 7.0 OVERLAPS AND GAPS IN THE MANDATES OF VARIOUS

AGENCIES Water Resources Development is a multifarious and multidisciplinary activity as is clear from the mandates of the various agencies which are involved in the activities many of which are overlapping. Most of the overlaps and gaps are because of outdated approach and framework under which Government agencies typically function. The approach revolves around one faceted engineering aspect and all the agencies carry out similar works in similar fashion. The other aspects like social impacts and environmental issues do not find their due place in the working of these organizations. This causes overlaps. Some examples are illustrated below. • Project formulation and preparation of project reports - The State Government

departments, CWC, Brahmaputra Board and PSUs (for power projects) all are involved in the preparation of project reports for irrigation, power and flood control projects.

• Execution of the projects - In execution of flood control, erosion control, drainage

improvement projects, Brahmaputra Board and State Government agencies both execute the schemes. Similarly all the PSUs and State Government departments are involved in the execution of hydropower projects.

• Funding of projects - The projects are funded by Central Government departments

and Ministries, departments of NE Region/NEC Financial institution like NABARD and in some cases by external agencies also.

While there are many overlaps in the role and responsibilities of various agencies there are serious gaps which have resulted into partial success of the various projects and schemes executed by them. These gaps have also resulted in to loss of credibility,

public discontent, delay in completion and time & cost overruns. These are discussed below: (i) Lack of overall regional and basin planning Though the Brahmaputra Board has prepared the master Plans for river basins and sub-basins of the NER but so far there has been lack of approach towards integrated regional and basin-wise planning which is necessary for the optimal and economic development of water resources and tackling of other problems related to water. Schemes are formulated, appraised and executed in an isolated manner by different agencies without concern to the basin approach. (ii) Lack of proper socio-economic and environmental impact assessment Various projects and schemes are formulated on the basis of normal engineering concepts. The general perception is that the usual concept of benefit cost ratio does not take into account the socio-economic factors and impacts, which are very difficult to be quantified in a realistic manner. The water resources development has now become a multi-disciplinary activity with huge socio-economic and environmental impacts and none of the agencies are properly equipped to take this aspect of the projects into consideration in a justifiable manner. (iii) Lack of holistic approach Various projects are formulated in departmentalized and compartmentalized manner. Some aspects which affect the realization of objectives of the projects are normally not included while formulating the projects, for example, for realizing the full irrigation benefits it is essential that the programme for Command Area Development and Mass Awareness through agriculture extension workers should be made as part of the project. Otherwise neither the full irrigation potential can be utilized nor the benefits of multiple cropping and optimal use of water can be obtained, which otherwise are taken into account while calculating the benefit cost ratio for the projects. (iv) Lack of Monitoring The executing agencies/departments carry out the nominal monitoring of the projects. This aspect requires attention and effort in the project formulation itself to reduce the time and cost overruns and to achieve better inter and intra departmental coordination. (v) Performance appraisal The concept of performance appraisal is almost non-existent with all the agencies involved in the work of water resources development. Though this work is taken up sporadically by other agencies who find it difficult to collect the correct data from the concerned departments. It will be desirable if this aspect is also included in the project formulation itself and the executing agencies or external agencies should carry out the realistic performance assessment of various schemes at periodical intervals after the completion of the schemes. This is necessary to identify the reasons which cause non-fulfillment of the objectives and taking corrective measures in future.

8.0 LICENCING OF DIFFERENT WATER USES In the NER water is available in abundance and as such no disputes or conflicts have arisen over the various uses or distribution between the States. However, water use is to be governed by the national water policy, which gives top priority to the drinking water. Except for the hydropower other issues are of basically non-revenue nature and are being carried out largely through Government agencies, aid and support. Therefore no particular process of licensing for these purposes is existing. In case of hydropower development, if the State organizations are not executing/owning the schemes. The concerned agency (PSU/Private operator) has to enter into an agreement with the concerned State and State may claim part of the benefits as royalty. Other conditions of the MoU regarding land acquisition, man power etc. are project specific. 9.0 STAKE HOLDERS ROLE, RESPONSIBILITIES AND INCENTIVES Except for hydropower, where various corporations and even private parties are taking interest because of the revenue generating capacities of power. There are virtually no stake holders but only beneficiaries in other kind of schemes like flood protection or irrigation. Usually the State Governments construct the schemes and own the responsibility of their maintenance. The beneficiaries remain wholly uninvolved though they do demand such schemes in their area which find a voice through public representatives and political leaders also. There has been effort on the part of the Governments to involve the beneficiaries in atleast operating and maintaining the schemes especially in the minor irrigation and command area development etc. which have localized and well identified beneficiaries. Certain incentives for formation of Water Users Association and Participatory Irrigation Management (PIM) are also given to the beneficiaries for their active participation. Central Government also gives incentives in the shape of liberalized funding to the States for enacting necessary acts for PIM, formation and registration of Water Users Associations and signing of MoUs with these association to take over the completed schemes or end-use components like distributaries, minors etc. for operation and maintenance. Incentive of liberalized funding (through AIBP) is also given for the States to introduce or revise the water levies in a phased manner so as to meet the full O&M charges from these levies after five years. Such States who agree to this condition are termed as reforming States and the incentive is 100% assistance for ongoing projects in the State instead of 75% for the NE States. But the efforts have not been successful in the desired manner. Water user associations/village councils/beneficiaries association etc. have been formed for many schemes specially minor irrigation schemes, but their contribution remains bare minimal in terms of labour for activities like cleaning of debris, clearing of weeds etc.

from the channels at the time of water requirement. The cost of man and material for operation and maintenance is yet to be borne by the State departments/agencies. No NE State has come forward as reforming State and a large number of schemes remain defunct or underutilized for want of repairs and maintenance. The reasons behind the failure of incentives are: • The various schemes like CAD and PIM have a built in factor of water deficiency

which is not the case in the NER. • Traditionally water has never been a commercial commodity and with apparent

abundance in the region it can not be thought of. Beneficiaries are used to getting water free and consider it as the duty of the Government to provide free water as per their requirement.

In the field of hydropower there have been policy changes to attract private capital for executing and operating hydropower projects. Concerned States can permit any government, public sector or private agency to execute the hydropower projects in the state. The States may claim their right to get a share in the produced power free of cost. The other arrangements/conditions may be agreed upon between the State Governments and the executing agency on a project specific basis. 10.0 ROLE OF NGOs A large number of NGOs are active in the NER but there are virtually none in the field of development of water resources. Most of the NGOs are working in the areas of public health and drug abuse etc. that too in a localized manner. The ethnic diversity and strong tribal identities are also the reason that NGOs on pan regional basis do not exist. Water resources development, by its very nature (barring water supply of small villages) requires concerns approaches and vision on a much wider scale. However Governments have been promoting the participation of NGOs in developmental activities of localized nature. Recently MoWR, GoI had introduced a pilot scheme for Rainwater Harvesting in girls schools for drinking water purpose including construction of two toilets with water supply. The scheme was introduced through Global Rainwater Harvesting Systems, a Rajasthan based NGO. The work was further executed through local NGOs along with local people participation. Schemes got a good appreciation from the public in the N.E. region. Though there are hardly any NGOs who are active towards development of water resources, but there are many instances that local bodies get formed or NGOs get involved in opposing the developmental projects, especially dams. The dams in Arunachal Pradesh and Tipaimukh dam in Manipur are facing resistance from many NGOs. Because of delays and other ills like non-transparency in their working etc Government organizations do not have good public image. There is a lot of communication and information gap between Government agencies and the masses. This is one area where NGOs can play a very effective role.

The situation can be reversed if Government itself first educates and then commissions the NGOs for educating the public about various benefits and consequences of the projects. This will save considerable public misery, time and money which is lost because of half baked information available to the people and media. 11.0 ASSESSMENT OF THE IMPACT OF THE LAWS, REGULATIONS

AND INFORMAL AGREEMENTS It has been explained in para 4 that as per the Constitutional provisions the responsibility of water resources development basically lies with State Governments and the Central Government is only given an advisory and promoter’s role, though the Central Government can create some organizations to help the State Governments in formulating, funding, executing or maintaining the various projects where interest of more than one State are involved. It is a fact that rivers know no boundaries and most of the major rivers happen to be of interstate nature. This has led to many disputes and complications through out the country. Fortunately there are no disputes so far in the NER mainly due to abundance of water. But many projects have suffered or had to be shelved because concerned States did not agree to the projects. Recently Government of Arunachal Pradesh has passed a resolution in its State cabinet which prohibits the construction of storage dams in the State. But storage projects shall have to be constructed in Arunachal Pradesh for mitigating the problem of floods in Assam. This has been a recommendation of many a committees. Due to such conflicts in interests and demands of the States, Central Government had to use its statutory power to constitute boards/ authorities/corporations for managing the water resources of interstate rivers. Bhakra & Beas Management Board and Damodar Valley Corporation are a few to be mentioned. The formation of these Board/authorities takes a long time as these are to be formed with the consent of the States and their mandates must also have the consent of all the concerned states. 12.0 ASSESSMENT OF PERFORMANCE AND REASONS THEREOF IN

RESPECT OF VARIOUS AGENCIES, EFFORTS FOR IMPROVEMENT, THEIR ACCOUNTABILITY, REWARDS AND SANCTIONS

It has been brought out in the very first para of the paper that the development of water resources has been very sluggish in the NER. All the associated agencies are basically Government agencies and it may not be relevant to go into the details of performance of each agency just to establish a well known fact that the performance has been below par. This has also been realized at various levels and there have been re-distribution of works and strengthening of the organizations from time to time to enhance their performance. The water resources department was bifurcated to create the irrigation department separately in Assam. A few central Government agencies have strengthened their regional offices in an effort towards decentralization to meet the regional

requirements locally. But the changes have not been very effective as the over all framework within which these organizations work has remained the same. The Central and Regional agencies, which have the role of advisor, promoter and fund provider have largely been performing in a satisfactory manner though they also suffer from the problems typical to the Government organizations. The agencies directly involved with the execution of works, which are basically State Government agencies, except the Brahmaputra Board, have not been able to perform in a satisfactory manner. The reasons for Brahmaputra Board not been able to perform are intrinsic to its mandate itself, wherein it is supposed to coordinate and take consent of so many agencies that it can not perform at the desired pace. Mandate is also very limited and even ambiguous as far as execution of the schemes is concerned. An insight into its functioning reveals that the board has been grappling more with the administrative and other trivial financial matters than the developmental and technical issues. Since its inception, in the 42 Board meetings that have been held, on an average only about 25% of agenda items pertained to the development issues. Besides this there have been a number of other factors which can be identified as: (a) Lack of Authority; (b) Lack of Autonomy; (c) Lack of budgetary support and/or absence of powers in the Act for raising of

public/private funds; (d) Absence of regulatory powers; and (e) Problem of top posts remaining perpetually vacant. In the wake of emergent situations like floods, when people looked at the Board for help, it could not identify its role, either for relief or in terms of immediate flood control measures. In view of the stake holders ie. the State Governments of the NE States and beneficiaries ie. the people of the region, Brahmaputra Board has failed to deliver upto their expectations. The performance evaluation of any agency or institution can not be complete unless and until the reasons behind their success or failure are looked into. It is to be emphasized here that it is not only the water resources development which has developed at a sluggish rate but the other sectors of socio-economic development have also suffered in the same manner in the region. Thus it is obvious that besides the reasons which are specific to the water resources sector there are other generalized reasons also which have hampered the pace of over all development. The various reasons can be characterized as; • Administrative reasons, • Financial reasons, • Physical reasons, • Socio-economic and Cultural reasons. 12.1 Administrative reasons The procedure for clearance and execution of the projects involves lengthy procedures and consents of various organizations. Mostly this takes a very long time and results into blame game among the organizations and even within the organizations. There

have been efforts for bringing better coordination and synergy within and among the departments and even the concept of single window clearance has been mooted but still a lot requires to be done on this aspect. Land ownership patterns are different in different States making land acquisition a very complicated problem for a project causing severe delays in completion of works. 12.2 Financial reasons The financial position of State Governments is very poor. On their own these agencies can hardly tackle any schemes and are dependent on funding from the various Central and regional agencies. This involves lengthy procedures which results in shortage of funds from time to time, halts in the execution of work, delays and cost overruns of the schemes. In many schemes the States have to contribute a part of the cost of the schemes viz AIBP, Command Area development etc. the central aid is available in a fixed ratio commensurate with the States own contribution. Since the fiscal condition of the States is poor they are not able to take full benefit of these schemes and the fund earmarked by the Central Government for such schemes remain unutilized. 12.3 Physical reasons The NER comprises of a vast area with very little infrastructural development. The monsoon is prolonged and heavy, restricting the working season to a few months. The construction materials are also to be transported from long distances. All these factors lead to very slow progress of works and results in delays. 12.4 Socio-economic and Cultural reasons The NER largely comprises of self contained tribal economy. The tribal societies remain largely demonetized societies as they produce just enough for their requirement and the commercial aspect of surplus production is not prominent. This can be understood by the fact that the practice of multiple cropping is very limited even if the irrigation facility is available to the farmers, which at many places is considered as a taboo and looked down upon. This causes lack of surplus capital and entrepreneurship. Tribal identities are the most prominent factor and the state, region and national identities get a secondary place. This causes a lack of wider vision which is necessary for the development of the region as a whole. In many parts of the region the tribal ethics and practices find the sanction and even precedence over the State Governments’ rules and regulations. All these conditions have created situations where economic backwardness has led to numerous movements by the people specially the youth. These movements cause disruptions and unfavourable law and order situation, which have further hampered the development of the region. Thus lack of the development and dissatisfaction of the people have become complementary and feed on each other making a vicious circle.

The above reasons may not be directly connected with the development of water resources but need to be understood if a viable, practical and efficient institutional framework has to be developed for the water resources development in particular and in other sectors in general. 12.5 Accountability, Rewards and Sanctions Most of the executing agencies are the Government agencies/ departments. In Government departments the power of decision making is limited from level to level and normally execution, decision making and provision of funds become three distinct compartments/departments among which usually the coordination is rather poor. Such compartmentalization and multi tier decision making reduces accountability of individuals as well as intradepartmental units. 13.0 CASE STUDIES IN RESPECT OF RBOs 13.1 Tennessee Valley Authority (TVA), USA The TVA is a federal corporation since 1933 and the USA’s largest public power company. It consists of one chairman & two members appointed by the President, by and with the advice and consent of the Senate for a fixed term of nine years. As a regional development agency, TVA supplies affordable, reliable power, supports a thriving river system, and stimulates sustainable economic development in the public interest. TVA operates fossil-fuel, nuclear, and hydropower plants, and also produces energy from renewable sources. It manages the USA’s fifth-largest river system to minimize flood risk, maintain navigation, provide recreational opportunities, and protect water quality in the 106,000-square-km watershed. 13.1.1 Tennessee Valley before 1933 World Bank brought out a technical paper on Comprehensive River Basin Development – “The Tennessee Valley Authority” in November 1998 wherein it stated that “There were dire social and economic conditions in the Tennessee Valley in the 1930s. Although rich in natural resources, the region was largely rural and undeveloped, poverty-stricken, and characterized by degraded environmental conditions…….”The situation in the North East is more or less similar. 13.1.2 Functions & Jurisdiction The main functions of the Authority are “To improve the navigability and to provide for the flood control of the Tennessee River; to provide for reforestation and the proper use of marginal lands in the Tennessee Valley; to provide for the agricultural and industrial development of said valley; to provide for the national defense by the creation of a corporation for the operation of Government properties at and near Muscle Shoals in the State of Alabama, and for other purposes”. 13.1.3 Funding/Financing

TVA originally received appropriations from the federal government to fund the construction of certain portions of its power system. In 1959 US Congress made TVA's power system self-financing. When TVA was made self-financing in 1959, approximately $1.4 billion of the government's original investment in the power system was outstanding. TVA repays a portion of this original balance each year plus a dividend-like return payment at a market rate of interest. In 2004, these combined payments equaled $38 million. Through 2004, TVA has made payments totaling more than $3.5 billion on this original obligation. TVA received federal appropriations for its non-power functions until 2000. In 2001, TVA began funding its non-power operations from power system revenues. TVA is currently self-funded and receives no appropriations from the federal government for either its power or non-power operations. 13.1.4 Performance & Contribution TVA’s dams are part of a resource management system that’s totally integrated, each dam operating in relationship to the others. TVA dams are managed for multiple purposes and public benefits: navigation, flood control, power supply, land use, water quality and supply, and recreation. The integrated management approach ensures that water and land resources will be used in ways that sustain the watershed for future generations. TVA’s most important contribution is keeping power rates competitive. This helps attract industries that bring good jobs to the region. Low power rates also give Valley residents more money to spend on other goods and services. 13.2 Damodar Valley Corporation (DVC) 13.2.1 Constitution & Functions Damodar Valley Corporation was set up under the Damodar Valley Corporation Act, 1948 with the following functions:

(a) The promotion and operation of schemes for irrigation water supply and drainage;

(b) The promotion and operation of schemes for the generation, transmission and distribution of electrical energy, both hydro-electric and thermal.

(c) The promotion and operation of schemes for flood control in the Damodar river and its tributaries and the channels, if any excavated by the Corporation in connection with the scheme and for the improvement of flood conditions in the Hooghly river.

(d) The promotion and control of navigation in the Damodar river and its tributaries and channels, if any,

(e) The promotion of afforestation and control of soil erosion in the Damodar Valley, and

(f) The promotion of public health and the agricultural, industrial, economic and general well being in the Damodar Valley and its area of operation.

13.2.2 Organizational Setup The Rashtriya Barh Ayog (RBA) in its report made a case study of DVC and elaborated on various aspects of the Authority. The report says that Sub-section (1) of Section 5 of the original DVC Act provided that every member shall be a whole-time servant of the Corporation but was reviewed in September, 1957 and provisions made for part-time members. Again in 1959, it was considered sufficient to have only a part-time Board Accordingly, the Board was constituted on a part-time basis and the Secretary of the Ministry of Irrigation & Power was appointed as the Chairman in addition to his duties in the Ministry. This arrangement caused several administrative problems including non-implementation of decisions taken after consultation with the State Governments and thus again reviewed in 1963 and reverted to whole-time Chairman with headquarters at Calcutta and two part-time Members one each from Bihar and West Bengal (now Jharkhand), which is continuing till today. RBA dwelt upon the various aspects of the Corporation. Parts of conclusive chapter are summarized below as lessons for future:

• There is a conflict not only between flood control and irrigation but also between flood control and power. This conflict becomes aggravated if the project is undertaken by more than one agency. In such cases, this can be resolved only by having a unified authority.

• To increase the flood absorption capacity of the DVC dams, several

Committees have recommended acquisition of land upto the designed levels. The DVC feels helpless, as the land has to be acquired by the States concerned, which may not be inclined to displace their population. Since an agreement has now been reached between the State Governments, this difficulty, we hope, may be overcome.

• In the initial stages, the DVC, in the exercise of its powers, undertook certain

developmental activities in the valley, but later on these were discontinued due to introduction of the Community Development Programme. This prevented the Corporation from getting the cooperation from the States. Had the developmental activities continued to be undertaken by the DVC, there might have been better rapport with the State Governments and the people.

• Efficient working of any organization depends, inter-alia, upon the nature of

its internal organization and professionalisation of management. The organizational system for a big multi-purpose undertaking should recognize the role that can be played by multi-disciplinary teams of officers. The DVC is still far from realizing this goal.

• Over the years, the control of the DVC over the river has been diluted.

• Though the DVC was intended to be an autonomous organizations. in practice,

its autonomy is very much restricted.

• The procedure for financing has further helped to keep the DVC subject to pressures and pulls of the participating Governments.

• While the task assigned to the DVC was very difficult, involving as it did,

three main objectives in conflict with each other, the authority delegated to it was inadequate.

13.3 Comparison of DVC vis-à-vis TVA Though the RBA compared DVC & TVA at several places in its report, the main issues are (a) Board itself -- Section 4 of the DVC Act provides that the Corporation shall consist of a Chairman and two other members appointed by the Central Government, in consultation with the State Governments of West Bengal and Bihar. This is in sharp contrast to the TVA where the Board of Directors consisting of a Chairman and two members is appointed directly by the President with the concurrence of the US senate without the States having any say in the matter for a fixed tenure of nine years. The TVA has a reasonable degree of autonomy and flexibility of a private corporation. The Central Government in drafting the Constitution of the DVC had emphasized that “for efficient administration, the authority must be vested with a high degree of autonomy for conducting the undertaking”. However, this is not reflected in actual operation. (b) Lack of Autonomy -- As already mentioned, the powers of the DVC are subject to directions to be issued by the Central Government from time to time. The State Governments have also a hand in the management as they are providing their share of finances. In fact, the DVC is responsible to each of the three participating Governments and submit its report to them. All these developments have tended to erode the authority of the DVC, and, reduce its effectiveness as an organization for carrying out the functions assigned to it optimally. There is a difference of scale between Damodar valley and the NER on Geo-physical, political and environmental levels, but still the lessons learnt from DVC would be very helpful in conceiving a new entity for the NER. 14.0 RECOMMENDATIONS The existing organizations engaged in water resources development in the NER have lost goodwill of the people of the region as they were not able to deliver as discussed earlier in detail. While these organizations could break some ground, their pace and manner of implementation could not meet the expectations of the region. The exploitation of the resources at a faster pace, making a conducive environment for development and participation of stake holders and their support would not perhaps be possible by mere upgradation or amalgamation of these organizations. The existing organizations have developed certain work culture and carry some image, the legacy of which would not be healthy for meeting the objective. In nutshell, there is a strong case for a new autonomous and empowered organization, manned by top class professionals, which embarks on the mission of integrated development of the water resources in the region from day one with clearly spelt out mandate and have such authority or power to not only discharge the functions smoothly entrusted to it but also facilitate other organizations engaged in the region in resolving various

adversities faced by them. It should be a visible mechanism to ensure that the benefits should reach to the poor and local communities. It would be pertinent to mention here that the Prime Minister of India visited Assam on 21-22.11.04 after very severe floods and emphasizing the need for a new organization stated that “the Government will consider establishing a cohesive, autonomous, self contained entity called the Brahmaputra Valley Authority or the North East Water Resources Authority to provide effective flood control, generate electricity, provide irrigation facilities and develop infrastructure. Given managerial and financial autonomy, equipped with top class manpower, and backed by Parliamentary sanction, such a body could be the instrument for transforming the region.” In accordance to the (a) available exploitable water resources, (b) available organisational setups at different levels, (c) existing legal and political scenarios, (d) expectations of people and their representatives, (e) recurring flood problem and resulting plight of people and losses, and (f) abstract poverty and low standard of living of the people of the region a new organization should be constituted by the Central Government the details of different aspects of which should be as under: 14.1 Jurisdiction The Organisation should be responsible for the regulation and development of water resources in the region. In respect of regulation the jurisdiction of the Organisation should be over the entire NER. With regard to development, the jurisdiction of the Organisation, should be decided in consultation with States but it should be on all major inter-state rivers. On the smaller rivers/minor tributaries, concerned State Governments should remain involved in water resources development in consultation with the Organisation. The hydropower development should be the responsibility of the Organisation for all the schemes other than mini & micro size that would continue to be taken up by the respective State Governments. Activities such as investigation, preparation of Pre-feasibility Report etc. in hydropower, irrigation sector taken up by the States or other Central Organizations should continue. 14.2 Structure It is proposed to have three tier system one at the top political level say the High Powered body, second at advisory level, and the third at the executive level say the Authority. The high Powered body should be at national level headed by the Prime Minister including Union Ministers for Water Resources, Finance, Power, DONER, Shipping, Environment & Forests, Agriculture and Deputy Chairman, Planning Commission and Chief Ministers of the State Governments of the region as members for deciding overall policy matters and direct the different Governments/Ministries/Organizations for facilitating expeditious progress of works. The Organisation shall have Advisory Bodies, consisting of senior Officers of the State Governments dealing with water/power resources sector, representatives of concerned Central Ministries/Organizations, public representatives of various levels, stake holders and eminent professionals, in specified sectors which would advise the Organisation on matters associated with the implementation of the mission. One of the tasks of the Advisory Bodies would be to promote community participation for

effective delivery of programmes and projects. The third tier i.e. the Authority is proposed to be headed by a Chairman – of top ranking level in GoI hierarchy and Members – for different subjects viz. Water, Power, Navigation, Environment, Finance & Administration, all to be appointed by the Central Government for a fixed tenure of at least seven years. The rest of the structure shall be decided by the Authority as per requirement. The Chief Secretaries of the seven States; Secretary, MoDONER; designated representative of administrative Central Ministry, Planning Commission & MoF; and Secretary, NEC shall be ex-officio part time members of the Authority. There thus would be multi-tier participation of the concerned States in the decision making of the Organisation ie. at the top political level: Chief Minister as representative in High Powered body headed by the Prime Minister; at the public and community level: representation in advisory bodies; and at the top bureaucratic level: State Chief Secretary as ex- officio part time member of the Organisation. The Authority is the most important organ of the whole proposed mechanism which is discussed in detail in the following paragraphs. The Authority should have a lean but effective & efficient organizational setup to reduce the administrative costs as well as to minimize inertia. 14.3 Basic Necessities for an Effective Organisation To fulfill the objective and to meet the expectations, the Authority is proposed to be autonomous, empowered, and ultimately self-sustainable. The lessons learnt from the DVC and the Brahmaputra Board have been utilized while conceptualizing the Authority so that it could function effectively and deliver. 14.3.1 Autonomy Complete Autonomy is essential for the effectiveness of the Authority. The Authority should be given a free hand in respect of appointment of officers/employees, consultants, experts, committees and deciding their service rules, remuneration and other perks as per merit. The Authority should have freedom to set its short & long term goals, within the given mandate, and evolve a suitable mechanism to achieve them. In discharge of its functions the Authority should be able to act on business principles. The Authority should devise methods for resolving problems being faced by other organizations working in the region with similar objectives. 14.3.2 Empowerment For autonomy in the matters of administration, planning, execution, finance, works etc. the statutory powers or the powers vested in different central organizations need to be fully or partially vested the Authority. The geographical positioning of the region warrants empowerment of the Authority to cut-off delays and to have better appreciation of the ground situation. The Authority should have regulatory powers in respect of development in water resources sector including flood & erosion control, irrigation, navigation & hydropower to ensure integrated development of the resource. Accordingly, the Water Resources Development projects in the region would be required to be examined by the Authority for their overall conformity with the master plan so finalized by the Organisation.

The Authority shall have powers to accord techno-economic clearance to flood control schemes, anti-erosion schemes, drainage improvement schemes and navigation schemes which otherwise being examined and cleared by various agencies of Central Government including environmental clearances. If required, necessary statutory powers should also be vested in the Authority. The Authority should have powers for land acquisition for discharging its functions as available to other Central Organisations like National Highways Authority of India under National Highways Act, 1956. The Authority should also be empowered to formulate its own project specific R&R package conforming to the National R&R policy and in consultation with the concerned State(s). All the financial assistance, grants, relief, loans etc. provided by the Central Government to the States pertaining to water sector should be routed through the Authority. 14.3.3 Self Sustainability Self-sustenance will be the key to the success of the Authority. The Authority is required to invest huge funds in infrastructure development of non-revenue generating sectors like flood management and irrigation sectors for which it will have to depend on budgetary support from Central Government which must reduce after certain time for which the Authority should simultaneously invest in revenue generating sectors like hydropower, navigation and other allied sectors. For the development of hydropower, the Authority should go for partnership with existing agencies like PSUs such as NHPC, NEEPCO, NTPC and private entrepreneurs on the basis of equity participation or execution on cost plus basis. The State Governments, where the project is located, should continue to receive a percentage of free power as per the existing practice which may be decided on project to project basis as per financial viability. Considering the requirement of funds for non-power programmes viz. Flood & erosion control, developing irrigation potential, navigation & fisheries etc. and assuming a 50% equity participation by the Authority with other players in the field of hydro power generation, the Authority would progressively become 100% self reliant in an estimated foreseeable period of say 20 years. Till such time the Authority achieves self sustainability, it should be supported by the Central grants for its non-power and power programmes to the tune of about Rs.1500 cr. per annum upto a time till some of the hydropower projects start generating revenue which may be about ten years after which the grants can be reviewed. The region faces severe flood problem almost on annual basis and to manage such natural disasters the Authority should also be supported by a revolving corpus of Rs.50 cr. to enable to take up works of urgent nature. For the debt component of the power projects, the Authority would be empowered to raise funds from private/public financial institutions. 14.3.4 Functions & Powers The Functions & Powers of the Organisation should be drawn from existing River Basin Organisation, the DVC. These should be modified to accommodate modern technological developments, socio-politico scenario, increasing concerns about protection of environment, bio-diversity and ethnicity of the region. It is proposed that

the existing State organizations should continue to function in their respective jurisdictions. The Organisation is proposed to be modeled in such a way so as to enable all existing organizations – State, Central and Private agencies to play a role in the development of natural resources in the region. The Authority should be entrusted with the following main functions/objectives and powers to ensure planned, optimal and integrated development of water resources in the NER for the purpose of effective flood management, erosion control, generate electricity, provide irrigation facilities and develop infrastructures related to navigation, tourism and pisiculture. • Preparation of Master Plan(s) for the integrated water resources development

incorporating issues of irrigation, flood control, hydropower navigation, drainage improvement etc.

• Promotion, execution and maintenance of schemes for flood management, drainage improvement and erosion control; generation (other than mini & micro) transmission and distribution of electric energy both hydroelectric and thermal; Inter - State Schemes or other Schemes in consultation with the States for irrigation, water supply and improvement of water quality on the rivers in its jurisdiction.

• Promotion, development and control of navigation on the rivers/ channels. Promotion of policies and activities for the enhancement of environment of the region and preservation of its bio-diversity. Promotion of water resources related infrastructure development schemes and allied sectors like agriculture, fisheries, aqua-sports, tourism, industries economic and general well being in the region. Conserve and maintenance of wetlands associated with the rivers.

• Coordination with the various Central, State and other organisations operating in the water resources & related sectors mentioned above.

• Promotion of public/private investments in water resources sector and community participation for effective delivery of programmes and projects.

• Development of modern technologies, information technology, remote sensing, GIS and maintenance of geo-referenced data bank of all the water resources projects in the region and morphological studies and other related R&D in the water resources sector.

• Human resources development and awareness in the water resources sector and related issues concerning disaster management.

• Hydro-meteorological data Collection, acquisition and preservation, analyses and dissemination.

The Authority shall have the power to take any requisite action that may be necessary or expedient for the purpose of carrying out its above stated functions which may be spelt out as below: • Decide number of officers and other employees for the purpose of discharging its

functions and their appointment. Select consultants, experts, committees etc. for advice or smooth functioning of the works of the Authority and their appointment. Decide various service conditions, remunerations/perks etc.

• Goal setting, plan strategy and evolve suitable mechanism for achievement. • Regulation/ prioritization of the construction, operation and maintenance of water

resources projects as per functions of the Authority. Allocation of water resources projects including hydropower to appropriate agencies in private and public sector

and to make agreement with them. Construction of water resources projects, structures and works.

• Land acquisition for discharging its functions. Acquisition of water resources projects/structures by mutual understanding with the State.

• Raising funds from Private/public financial institutions and to invest. • Decide R&R package for different projects and in consultation with the concerned

State(s). • To issue various statutory/mandatory clearances to water resources projects

including techno-economic, environmental & forest etc. 14.4 Benefits to the States of the Region The main focus of the Organisation is on unified regional development with multiple objectives by which all the NE States are bound to get benefited – both tangibly and intangibly. Some of the tangible benefits would be: • The proposal envisages that the revenue generated by the Authority would be

utilized in infrastructural development including hydropower generation, flood management, irrigation, navigation and allied areas like pisciculture, tourism, human resource etc. of the region only, which is not possible in the present practice of development particularly in hydropower sector ie. by the PSUs or private entrepreneurs as the revenue earned by them would go to their reserves and would not strictly be deployed for development of the region.

• There is multi-tier active involvement of States in the decision making of the Organisation.

• The present envisaged fund infusion from Central Government through the Organisation of Rs.1500 cr. per year in the region is likely to change the face of the NER on account of employment generation, capacity building, law & order, education and general well being of people at large.

• The Organisation envisages equitable development of water resources of the region.

• The Organisation would be responsible for mobilization of huge funds needed for development of water resources at a faster pace on equity basis from Central Government and on loan basis from public/private sources.

• Optimal development & utilization of human resources of the region beyond State boundaries.

• The States would continue to get a percentage of power from the hydropower projects as per practice in vogue or even proposed to be negotiable on project to project basis.

• Faster clearances of the water resources projects. 15.0 How to go about it? It is said that well begun is half done. Creation of the proposed Organisation with intended Authority, empowerment and multifaceted functions, successfully in letter & spirit would undoubtedly help the organisation to achieve its objectives in times to come. There are bound to be serious hurdles and opposition from some corners at State as well as at the Central level but strong political will, transparency in parting information to the opposing parties, continuous dialogue and negotiations amongst the

stake holders and putting national interests above the local issues will see the proposal through. The proposal will have to have sanction from Parliament and concurrence from the constituent States. Since, functions of present Brahmaputra Board would be a small sub-set of the proposed Authority it would be prudent to propose that the board should be subsumed in the Authority. The other other Central/State Organisations with overlapping functions could be continued till the time the Authority is fully geared up.

Annex-I Brief description of State Government departments involved in Water Resources

Development

Stat

e Irrigation Hydropower Flood Management Navigation Watershed Management

Aru

nach

al P

rade

sh

Organization: Irrigation & Flood Control Department. Functions: survey, investigation, planning and construction of minor irrigation schemes. Due to hilly terrain scope is for only minor irrigation schemes. Present Status in thousand ha.:

Ultimate potential

18

Potential created

3.2

Potential utilized

3.0

Organization: State Power Department. Functions: Development of hydropower. Capacity Status: Constructed only Mini & Micro hydel schemes for local use. Scope available for Mega Reservoir Projects.

Organization: Irrigation & Flood Control Department. Functions: survey, investigation, planning and construction of embankments & drains and construction of anti-erosion and town protection works. Works Executed so far:

Embankments 7 km Drainage channel

9 km

Town/Village protection works

18 no.

Area benefited

0.003 mha

Organization: No organization for this purpose. Since the terrain is hilly, scope of navigation is nil.

Organization: State Agricultural Department. Functions: Formulation and implementation of schemes under NWDPRA & IWDP of Government of India. The implementation is also proposed to be carried out through NGO’s and community organizations.

Stat

e Irrigation Hydropower Flood Management Navigation Watershed Management

Ass

am

Organization: Irrigation Department-bifurcated from the Irrigation & Flood Control Department. Functions: survey, investigation, planning and construction of major, medium and minor irrigation schemes. Present Status in thousand ha.:

Ultimate potential

900

Potential created

213.5

Potential utilized

158.6

Organization: Assam State Electricity Board - under State Power Department. Functions: survey, investigation, planning and construction of embankments & drains and construction of anti-erosion and town protection works. Capacity Status:

Organization: Water Resources Department. Functions: Same as above. Works Executed so far:

Embankments 4459 km

Drainage channel

851 km

Town/Village protection works

681 no.

Area benefited

1.636 mha

Organization: Inland Water Transport Department. Functions: Running and maintenance of ferryghats at important places along Brahmaputra, Barak and major tributaries. Their function is confined to ferry passengers and goods across the rivers.

Organization: State Agricultural Department. Functions: As above.

Man

ipur

Organization: Irrigation & Flood Control Department. Functions: survey, investigation, planning and construction of minor irrigation schemes. Present Status in thousand ha.:

Ultimate potential

359

Potential created

0.6

Potential utilized

0.5

Organization: State Power Department. Functions: Development of hydropower. Capacity Status: Constructed only Mini & Micro hydel schemes for local use.

Organization: Irrigation & Flood Control Department. Functions: Same as above. Works Executed so far:

Embankments 500 km

Drainage channel

126 km

Town/Village protection works

1 no.

Area benefited

0.130 mha

Organization: No organization for this purpose. Since the terrain is hilly, scope of navigation is nil.

Organization: State Agricultural Department. Functions: As above.

Stat

e Irrigation Hydropower Flood Management Navigation Watershed Management

Meg

hala

ya

Organization: Irrigation & Flood Control Department. Functions: Same as above. Present Status in thousand ha.:

Ultimate potential

63

Potential created

10.2

Potential utilized

9.9

Organization: Meghalaya State Electricity Board - under State Power Department. Functions: Development of hydropower. Capacity Status: Constructed Medium & Mini hydel schemes.

Organization: Irrigation & Flood Control Department. Functions: Same as above. Works Executed so far:

Embankments 116 km

Drainage channel

Nil

Town/Village protection works

8 no.

Area benefited

0.004 mha

Organization: No organization for this purpose. Since the terrain is hilly, scope of navigation is nil.

Organization: State Agricultural Department. Functions: As above.

Miz

oram

Organization: No separate organization for this purpose. A no. of minor irrigation schemes are under implementation by Department of Agriculture & Minor Irrigation. Present Status in thousand ha.:

Ultimate potential

96

Potential utilized

16.5

Organization: State Power Department. Functions: Development of hydropower. Capacity Status: Constructed only Mini & Micro hydel schemes for local use.

Organization: No organization for this purpose. Being a hill State there are hardly any floodplains.

Organization: No organization for this purpose. Since the terrain is hilly, scope of navigation is nil.

Organization: State Agricultural Department. Functions: As above.

Stat

e Irrigation Hydropower Flood Management Navigation Watershed Management

Nag

alan

d Organization: Irrigation & Flood Control Department. Functions: survey, investigation, planning and construction of minor irrigation schemes. Present Status in thousand ha.:

Ultimate potential

Not assessed

Potential created

0.9

Potential utilized

0.7

Organization: State Power Department. Functions: Development of hydropower. Capacity Status: Constructed Mini & Micro hydel schemesfor local use.

Organization: Irrigation & Flood Control Department. Functions: Same as above. Being a hill State problem of flood & erosion is very limited around its major town of Dimapur.

Organization: No organization for this purpose. Since the terrain is hilly, scope of navigation is nil.

Organization: State Agricultural Department. Functions: As above.

Tri

pura

Organization: Public works (Water Resources) Department. Functions: survey, investigation, planning and construction of medium & minor irrigation schemes. Present Status in thousand ha.:

Ultimate potential

81

Potential created

21

Potential utilized

21

Organization: State Power Department. Functions: Development of hydropower. Capacity Status: Constructed only Mini & Micro hydel schemes for local use.

Organization: Public works (Water Resources) Department. Functions: Same as above. Works Executed so far:

Embankments 140 km

Drainage channel

11 km

Town/Village protection works

11 no.

Area benefited

0.045 mha

Organization: No organization for this purpose. There is no scope for navigation in the State.

Organization: State Agricultural Department. Functions: As above.