PMKSY: Implementation
Pathways and Options
Tushaar Shah
and Shilp Verma
|| 07-Sep-2016 || Ranchi ||

About IWMI-Tata Program
• ITP has operated as an ‘irrigation-agriculture-
poverty’ think-tank for past 15 years
• ITP has closely studied important irrigation
interventions in various states.
• It has written about what has worked, where and
why in the irrigation playing field (and what has
not).
• PMKSY is a subject of intense ITP study

0
5000
10000
15000
20000
25000
30000
35000
40000
45000
1950-51
1952-53
1954-55
1956-57
1958-59
1960-61
1962-63
1964-65
1966-67
1968-69
1970-71
1972-73
1974-75
1976-77
1978-79
1980-81
1982-83
1984-85
1986-87
1988-89
1990-91
1992-93
1994-95
1996-97
1998-99
2000-01
2002-03(P)
2004-05(P)
2006-07(P)
2008-09(P)
2010-11(P)
IrrigatedArea('000Ha)
Canals Tanks
Wells Other Sources

Type I Irrigation Type II Irrigation
Public / CPR Private / Group / Market
Single system may service 20 – 1.5 mha Typically serves 1 – 20 ha
Endemic Head – Tail Inequity Rare
Level of service tied to bureaucratic effectiveness
Immune to bureaucratic lethargy;
Affected by fuel prices or feeder anarchy
Surface Ground / Surface / Surface Flow
Gravity flow in open channels Piped delivery; mechanical or kinetic energy
Unsuited for MI without pressure Ready for MI
6-12 on-farm deliveries /year On-Demand; throughout
Farming adapts to irrigation regime Irrigation regime adapts to farming

HAR KHET KO PANI?
LESSONS FROM IRRIGATION SUCCESS IN
GUJARAT AND MADHYA PRADESH AFTER 2000
Tushaar Shah

Irrigation Miracle in Gujarat and
Madhya Pradesh post 2001
• The battle cry of BJP 2014 electoral manifesto:
Har Hath Ko Kam, Har Khet Ko Pani
• BJP’s spectacular irrigation performance in
Gujarat and Madhya Pradesh since 2001 (10%+
agricultural growth)
• PMKSY should emulate BJP irrigation strategies
that worked in Gujarat and Madhya Pradesh.
Har Khet Ko Pani:
BJP’s Commitment

PMKSY: A Break from the Past?
• Since Colonial times, irrigation policy has aimed at
creating irrigation potential by building major,
medium and minor irrigation projects.
• Even after Rs 700,000 crores in these, 6.8 crore out
of India’s 13.85 crore farms today are totally
rainfed.
• Har Khet Ko Pani means supplemental irrigation to
these 6.8 crore farm holdings in 3-5 years time-
frame?

the
Farmers are demanding
year-round, on-farm water control.
TYPE I TYPE II
IRRIGATION
SERVICE
5-6 IRRIGATIONS/YEAR IRRIGATION-ON-DEMAND, ALL YEAR-
ROUND
IRRIGATION
SYSTEM
RESERVOIR/TANK/
CANAL/CHANNELS/
GRAVITY FLOW
WELLS/TUBEWELLS/
PUMPS/PIPES/MICRO-IRRIGATION
COMMAND AREA UP TO TO 15 LAKH
HECTARES
1-20 HECTARES
WHO MANAGES GOVERNMENT/ WATER
USER ASSOCIATION
INDIVIDUAL FARMER/WATER
SELLER/SMALL GROUP
GOVERNMENT
POLICIES/
INTERVENTIONS
AIBP/MMM IRRIGATION
PROJECTS/PARTICIPATO
RY IRRIGATION
MANAGEMENT
MILLION WELLS
SCHEME/ELECTRIFICATION OF
WELLS/MICRO-IRRIGATION PROMOTION/
SOLAR PUMP/GW RECHARGE

0
10
20
30
40
50
60
70
Area(Millionha)
Net irrigated area of India
Canals Tanks Groundwater Other sources
Canals Type I
Tanks type I
Wells &tubewells type II
Since 1985, Irrigation type I is
stagnating; Irrigation Type II is
booming all over India

% of cultivated area irrigated
But Jharkhand,
Chhatigarh, Bihar,
Orissa, Assam
have ample
rainfall
Western
Rajasthan
and Kutch
have little
rainfall

Rapid increase in the index of net area irrigated in Gujarat and
Madhya Pradesh under BJP governments post-2001;
unprecedented in India and the whole world.
80
00
20
40
60
80
00
20
40
2000-01 2001-02 2002-03 2003-04 2004-05 2005-06 2006-07 2007-08 2008-09 2009-10 2010-11 2011-12 2012-13 2013-14
Figure 5.2 Indexof Net Area Irrigated from all Sources(2000-
01=100)
Andhra Pradesh Madhya Pradesh Gujarat Maharashtra India
MadhyaPradesh
Gujarat
India
Maharashtra
AndhraPradesh
60
80
100
120
140
160
180
200
220
240
Figure5.1 Indexof Canal Irrigated area
(2000-01=100)
Andhra Pradesh Madhya Pradesh Gujarat Maharashtra India
Gujarat
MadhyaPradesh
AndhraPradesh
Maharashtra
India
BJP governments in Gujarat and Madhya Pradesh
recognized the criticality of Type II irrigation.

Madhya Pradesh: NSS survey results of % of cultivated
area under irrigation by different sources 2003 and 2013
1.13
28.13
5.09
34.35
6.48
16.56
0.96
24
3.78
34.73
8.2
46.71
21.12
63.36
3.52
88
0
10
20
30
40
50
60
70
80
90
100
Govt. canals wells and tubewells Other sources All sources
Figure 4 INCREASE IN % OF CULTIVATEDAREA UNDERIRRIGATION BY
DIFFERENT SOURCES IN MADHYA PRADESH:
COMPARINGNSSO ROUND 59 (2002-3) WITH NSSO ROUND 70 (2012-13)
Kharif 2003 Kharif 2013 Rabi 2003 Rabi 2013

Madhya Pradesh: Remote-sensing images of
increase in land-cover ‘greenness’ between
winter 2009 and winter 2014

Remote sensing assessment of changes in single,
double and triple cropping areas in Gujarat
between 2003-4 and 2010-11
11.09
5.53
1.38
12.51
8.96
2.17
0.00
2.00
4.00
6.00
8.00
10.00
12.00
14.00
Monsoon Rabi Summer
Gujarat: RS estimates of increase in cropped area:
2003-4 to 2010-11
Area cropped 2003-04 ( million hectares)
Area cropped in 2010-11 (Million Hectares)

It is commonly believed that irrigation
increase in Gujarat and Madhya Pradesh
was due to new projects in Narmada basin;
but not true..

Madhya Pradesh: Canal Irrigation increase
was in all basins, not only Narmada
0
50000
100000
150000
200000
250000
300000
350000
400000
450000
Figure 3 Area reported to be irrigated by public canals in
different river basins of Madhya Pradesh: 2011-12 to 2013-14
Total 2011-12 Total 2012-13 Total 2013-14

Single
crop
Double
crop
Tripple
crop
Perenni
al crop
In Gujarat, area outside Sardar Sarovar Command
experienced more irrigation growth than command

other governments BJP in Gujarat and Madhya
Pradesh
Irrigation potential creation Benefit to farm households
Large projects, distant benefit Small investments, quick benefits
Major, Medium, Minor Irrigation
schemes
Groundwater wells backed by
aggressive recharge programs
Free power, but no power Reliable energy for irrigation
Construction of new mega projects Management of existing projects
Build-neglect-rebuild maintenance of existing
infrastructure
No attention to groundwater
recharge
Groundwater recharge in campaign
mode
Lip service paid to new
technologies but small budget
allocation
Smart promotion of new-age
technologies like micro-irrigation
and solar irrigation pumps

Key Take-aways
1. Quick results
2. Energy for irrigation
3. Decentralized groundwater recharge
4. Maintenance of infrastructure
5. Management of public projects
6. Convergence of water, agriculture, RD, WS&S
7. CM’s & CS’s role in vigorous monitoring and
coordination

Thank You…

Re-thinking PMKSY
Practical ways forward for India’s
“unirrigated half”

District Clusters…
Different geographies have different hydro-ecological and socio-economic
conditions…and would require different interventions…

India’s Unirrigated Half: Primary Target for PMKSY
Cluster # 1: Less than 30% irrigated holdings
Cluster # 2: Irrigation constrained by absence of electricity and high cost of diesel
Cluster # 3: Irrigation constrained by inadequate and unreliable power supply

Quick Recap…
• Changing nature of India’s irrigation economy
• Type I and Type II irrigation
• India’s most irrigation deprived districts
• In its current shape, PMKSY unlikely to target
“irrigation deprivation”
• Different district clusters face different problems and
require different solutions
• Gujarat and Madhya Pradesh have shown the way with
several innovations
• New opportunities such as solar irrigation pumps are
inevitably going to reshape India’s irrigation economy

Contours of Deprivation in Jharkhand
Irrigation, Agriculture, Livelihoods

Mean Annual Rainfall and Irrigation
High rainfall, low storage, very little irrigation…

Groundwater Development and Energy Use
Surplus Groundwater, low density of structures, very
little energy use in agriculture

Cropping Intensity and Agricultural Productivity
As a result, low cropping intensity and agricultural productivity,
both per hectare and per worker

Irrigation Status in Jharkhand
• As against Ultimate Irrigation Potential, the total
Irrigation Potential Created (IPC) and Irrigation
Potential Utilised (IPU) in Jharkhand stands at 43%
and 70% respectively
– The national numbers are 73% and 84%
• At present the major share of AIBP in the state goes
to Suvernarekha Multipurpose Project (SMP) that
intends to benefit two districts at a cost of ₹6,600 Cr.
• 16 out of the total 18 districts are a part of the most
irrigation-deprived geography of India

Jharkhand INDIA
Top 20
Districts
Percentage Irrigated Area 10% 41% 86%
Percentage Canal Irrigated Area 0.1% 11% 14%
Percentage GW Irrigated Area 8% 28% 67%
Percentage Rainfed Holdings 85% 48% 12%
Cropping Intensity 1.10 1.37 1.84
Level of Groundwater Development 32% 61% 92%
GW Wells per 1000 Operational Holdings 58 146 203
Pump HP per 100 Ha NSA 19 89 174
Energy Consumption in Agriculture
(kWh-equivalent per Ha of NSA)
122 504 1152
Agricultural Productivity (Rs/Ha) 26,088 27,584 74,201
Irrigation Deprivation in Jharkhand…

All Classes SC ST
Average Land Holding Size (Ha) 1.23 0.91 1.52
Percentage GCA under Irrigation (%) 9.61% 13.16% 6.84%
Irrigation Deprivation within Jharkhand…
Even within Jharkhand, Adivasi’s are the most
irrigation deprived social group…

PMKSY implementation in Jharkhand
Can it ensure ‘Har Khet Ko Pani’? How?

Key Points
 ~190,000 wells can be created across all the districts
(except in Dhanbad) without threatening GW
sustainability
 Creation of these wells will add 1.0-1.3 mha (5-7ha per
well) to the region’s gross irrigated area at a cost of Rs.
950 crores (assuming 1 well costs Rs. 50,000)
 These will add twice the NIA expected to be added by
the Suvernarekha multi-purpose project (SMP) at 1/7th
of the cost
 Tank-groundwater conjunctive use can be made
possible by restoring available tank capacity

Potential for Sustainable GW Development

District-wise GW Development Opportunity
DISTRICT
Annual
GW
Available
Current
GW Use
in Agri.
Current
TOTAL
GW Use
Level of
GW
Devt.
Dom. +
Ind. GW
Demand
2025
Mean GW
Draft per
Well (m3)
Potential
New Wells
(70%
GWD)
BOKARO 230.81 54.88 79.62 34.5 35.75 10,911 4,233
CHATRA 287.72 88.86 102.60 35.7 22.62 6,734 11,312
DEOGHAR 237.33 55.27 82.82 34.9 47.83 9,472 3,746
DHANBAD 149.43 37.15 83.38 55.8 57.80 11,066 -
DUMKA 435.98 89.03 122.51 28.1 43.97 2,760 50,247
GARHWA 309.86 92.21 112.48 36.3 29.25 34,027 2,209
GIRIDIH 436.95 123.08 162.21 37.1 52.45 19,651 4,641
GODDA 142.71 43.69 64.21 45.0 24.14 9,377 1,231
GUMLA 663.07 161.14 188.23 28.4 38.06 11,185 21,266
HAZARIBAG 468.85 142.59 194.42 41.5 64.23 22,680 3,067
KODARMA 75.72 18.18 27.03 35.7 12.86 5,357 2,448
LOHARDAGA 100.58 34.98 41.25 41.0 9.48 8,030 2,450
PAKAUR 137.83 7.85 20.41 14.8 18.97 4,249 13,439
PALAMU 602.93 154.05 190.64 31.6 53.75 12,645 14,048
PASHCHIMI SINGHBHUM 542.07 17.54 74.58 13.8 78.72 6,563 34,458
PURBI SINGHBHUM 291.00 31.38 66.05 22.7 38.37 19,178 5,177
RANCHI 516.94 151.32 218.38 42.2 98.84 7,373 6,055
SAHIBGANJ 132.28 9.57 30.70 23.2 31.59 4,934 6,142
JHARKHAND 5,762.06 1,312.77 1,861.52 758.69 186,170

Horticulture
Vegetable
and Upland
crops
Well +
Pump
Cereal crop
stabilization
Up-lands
Low-lands
Mid-lands
Borrowing from CInI…

Solar Pumps in Jharkhand
To meet energy needs; to sustainably develop GW
• There are only 6% un-electrified villages but 62.9 % of HHs still live in dark.
• Irrigation Structure Scarcity & Energy Scarcity
• Subsidy- Rs. 110/Wp up to maximum of Rs. 2.5 lakh can be reduced by private investment
and financial products
15-16 16-17 17-18 18-19 19-20
Total
(MW)
MW Power Plant 100 250 250 500 500 2100
Rooftop 25 50 100 125 200 500
Solar Pumps Sanctioned 1500; 5 kWp 7.5
Digging more Wells
Flat Rate
Electricity
Metered
Electricity
GW Depletion
issue
Interventions
to re-organize
GW economy
Localized power generation to run irrigation pumps and injecting
surplus electricity in the local grid-
• Electricity to houses
• Income to farmers,
• Value attached to GW to avoid over-exploitation
Fig 1: Usual way
of powering agriculture
Fig 2: As per Solar Policy of the state

Recommendations for PMKSY in Jharkhand
• Focus on “unirrigated holdings” in most-deprived districts
and give priority to “Adivasi” holdings
– ITP, CInI and Tata Trusts can help in finer level clustering
• Prioritize Type II over Type I irrigation for cost-effective
irrigation expansion
• Support farmers to acquire wells, pumps and water
delivery systems
• Support decentralized water harvesting and groundwater
recharge activities at watershed level
• First ensure access to Type II irrigation, then invest in drip
irrigation and other improved irrigation technologies

RaCE Irrigation Expansion Program
• Leverage MGNREGA for constructing ~200k private wells
• Leverage solar-PV opportunities for meeting rural
energy needs and sustainably developing groundwater
• Solarize Public Tubewells through Irrigation Service
Entrepreneurs
• Support irrigation distribution infrastructure for
catalysing equitable irrigation service enterprises
• Invest in decentralized water harvesting and
groundwater recharge
• Maximize conjunctive use in canal and tank commands
Irrigation Source,
Water Control
Pumping/ Energy
Needs
Distribution
Systems
Recharge,
Watershed,
Micro Irrigation

THANK YOU…