KERALA MINOR IRRIGATION PROJECT
An Assessment

Part I

The Project

     Kerala Minor Irrigation Project with EEC assistance was launched in Kerala in 1994-95. The Agreement for Kerala Minor Irrigation Project between European Commission and Government of India was executed on 21-5-1992. The financial agreement for the Project envisaged an investment of 14.87 million European Currency Unit (Rs.52 crores approx.). European Union financed 80 per cent of the Project Cost and the remaining 20 per cent was met by Government of Kerala. Government of Kerala's contribution was mainly used for the purchase of vehicles, office establishment, salary and allowances of Government Staff working on the Project and a share of labour, materials and equipment costs necessary for implementation of the schemes. The scheme envisaged repairing and modernising 312 tanks benefiting 7800 ha; commissioning 115 diversion schemes benefiting 2300 ha. and commissioning 148 lift irrigation schemes benefiting 7400 ha.

     The total ayacut area targeted was 17500 ha. The project aimed at strengthening the Government policy to stabilize paddy production through enhanced cropping intensity in the ayacut area of tanks and lift schemes with the objective of increasing farmer's income. In addition to physical work due importance was given for training and extension. Participation of farmers from the stage of planning up to construction and on completion was envisaged The schemes on completion are to be handed over to the Beneficiary Farmers Association for Operation and Maintenance.

     The Project was implemented by the Minor Irrigation Wing of the Irrigation Department and was managed by the Project Management Unit in close co-ordination with the Agriculture Department at the field level. For the successful completion of each and every scheme the project follows a staged approach and it has to pass through different stages viz. Primary Selection, Technical Screening, Social Screening, Formation and Registration of Beneficiary Farmers Association, State Level Selection, Technical Sanction and Execution of Agreement with Beneficiary Farmers Association (BFA) or Tenderer for the construction work. A series of Committees viz. Project Level Steering Committee, Primary Selection Committee, State Level Selection Committee, the Joint Training Committee etc. were also constituted.

    As per the Agreement, project had to be completed by 31-12-1998. But the pace of implementation of the Project was slow during the initial period. Government of Kerala therefore requested for a two- year extension of the Project. Accordingly, a Review Mission was set up by the Union of European Community. The Mission after the field visits in the end of March 1998 came to the conclusion that the project has taken off in the right direction and recommended extension by two and a half years. Accordingly, the Project was extended for a period of two years i.e. it has to be completed by 31-12 -2000. A Revised Work Plan was also prepared.

     The Primary Selection Committee approved 1013 schemes. Out of this 551 schemes were found technically viable and 526 schemes socially viable schemes. The Original target was to complete 575 schemes. As per the Revised Work Plan, the number of schemes selected for implementation was reduced to 251 to benefit 7285 hectares of land. As against this, 245 schemes were completed (VCBs 165, Tanks 74 and Lift Irrigation 6). The expenditure incurred was Rs. 18.90 crores and the irrigation potential created was 6766 ha.

Monitoring and Evaluation

     The Monitoring and Evaluation ( M & E ) of the Project was entrusted with the Evaluation Division of the State Planning Board. For this purpose, a Memorandum of Understanding was signed by the Member Secretary, State Planning Board with the Chief Engineer, Project Management Unit (PMU), Irrigation Department on 30.8.1995. As per the Agreement, an M & E Unit was set up in the State Planning Board for undertaking baseline/ impact studies of the EEC funded Kerala Minor Irrigation Project vide G.O. (MS) 95 / 95 / IRD dated 25.7.1995.

     All the identified schemes were not finally selected for implementation as they did not adhere to the viability norms set by the PMU. Out of the selected schemes, 60 Minor Irrigation Schemes were identified and suggested for concurrent Monitoring and Evaluation by the State Planning Board.

The tasks entrusted with the M & E Unit included:

1. Conduct of baseline, seasonal & crop cutting surveys and hydrological studies in the selected scheme areas; and



2. Analysis of data and preparation of timely Reports based on above studies
   

     The Staff Members of the Unit worked under the overall supervision of the Chief (Evaluation Division). They visited the scheme areas frequently for arranging surveys and supervised Local Investigators recruited for the purpose. The requisite information were collected through structured questionnaires and visits to the households of beneficiary farmers. For crop cutting surveys of paddy, the presence of M & E Staff in the scheme areas, as far as possible, were ensured. The information thus collected were entered in the Computers supplied by the PMU for generating relevant Tables in the preparation of Reports. The Draft Reports thus prepared were modified incorporating the comments of Consultant Project Economist of the T A Team and submitted to the PMU periodically.

A. Baseline Surveys

     Under the baseline surveys, data as to the agricultural and socio - economic characteristics of beneficiary farmers were collected before the implementation of the scheme to facilitate future monitoring and evaluation. The farmers were listed and selected on the basis of a systematic stratified random sampling procedure. There were 30 (more) sample farmers selected for baseline survey in each scheme area. The sampling procedure was designed to have a representative sample of the farm households benefiting from the schemes so as to provide reasonable estimates of the various agricultural and socio-economic characteristics of the farm population. Baseline investigations included all relevant cropping seasons related to particular agriculture levels and irrigation system. This is because the investigations on tank productivity undertaken in a single year result in distorted impact on the project, particularly in areas where annual climatic features are highly erratic. The data from secondary sources relate to average performance on particular schemes and emphasis were given to estimate crop production and water usage. The survey concentrated on key variables in the development of the scheme viz. agricultural, engineering, socio - economic and institutional factors. The key performance indicators taken account of for baseline surveys are:

B. Crop Cutting Surveys

     Crop cutting surveys were conducted for paddy as part of baseline and seasonal surveys to ascertain the actual productivity of paddy. This facilitated paddy yield comparison before and after the implementation of the schemes.

C. Monitoring/ Seasonal Surveys

     Monitoring/Seasonal surveys were conducted in the three paddy seasons in the areas of selected schemes with the objective of gathering information on a range of agricultural, institutional and hydrological characteristics, which are expected/tend to change, with a view to assess the performance of schemes.

Agriculture	Water Availability for Field Crops Extension of Ayacut Area Changes in Cropping Pattern Improvement in Productivity of Paddy and other Crops
Irrigation Practices
Cropped Area and
Cropping Intensity
Crop yields
Farmer Association	MembershipParticipation;Leadership Quality; Resource Mobilization; Collective Activity & its Achievements
Extension and Farmer Training	Frequency of visits; Type of advice and Method of Training; Number and Type of Demonstration Trials; and Performance of Extension Staff
Hydrology and Scheme O & M	Water Availability and Method of Delivery; Water Supply at Field Level; Efficiency and Equity of Water Distribution; Frequency and Standard of Maintenance; Annual O&M Expenditure and Water Charges

     The information required for the monitoring surveys were obtained from various sources. Agricultural data for each of the three cropping seasons were collected from beneficiary farmers of the schemes by a formal household survey. Local enumerators supervised by M&E Staff Members of the State Planning Board interviewed the farmers using a structured questionnaire. Information on the functions and effectiveness of the newly established Farmer Associations were collected by interviewing Local Leaders and Committee Members as well as Farmer Groups. Data were also gathered on the operation and maintenance of the Irrigation Schemes. With regard to agricultural extension and farmer training, data on the frequency and effectiveness of the extension services were collected during the Farm Survey. This data was further supplemented by information gathered from Farmer Groups and Krishi Bhavan Staff. Information on the Demonstration Plots on the crop cutting experiments of paddy were also collected.

     Data were collected from the same panel of farmers selected for baseline surveys. The Planning Board Officers undertook collation and analysis of data collected. Data set for each scheme were divided into Head Reach and Tail End as well as Small Farms ( i.e.< 0.5 ha.) and Large Farms ( i.e. > 0.5 ha.). The data were then entered in a computer database and analysed using an appropriate computer programme ( d base).

D. Hydrological Studies

     Hydrological studies were also carried out as part of M & E of the Project to relate rainfall in the catchment to changes in the tank levels including those associated with discharge from the tank. Hydrological studies undertaken in the scheme areas were of two types:

1. Studies in the areas of 60 M. I. Schemes where baseline surveys completed; and



2. In depth and periodical studies in the representative 9 M. I. Schemes Areas where rain guages, gauge plates, notches etc. installed.
   
   

     The responsibility of collection of data for hydrological studies and analysis was vested with the Irrigation Engineer of the M&E Unit. The Irrigation Engineer trained locally recruited staff to undertake daily water measurements and recorded them with the aid of productivity format and daily record books.