Kerala State Water Policy 2008

Water Res。urces Department Government of Kerala WATER P。LICY 2008 I. Background 1. 1. Rationale for a W ater Policy Water is a natural resource vital fo「 the survival of life. It is becoming increasingly evident that limited availability of water can impede further progress while its thoughtless exploitation can negate most of ou「 s。ci。－economic achievements. With the availability of water and water-use pattern undergoing constant changes and facing pressures owing to a variety of environmental and human factors, it has become necessary to lay down guidelines and policy parameters for the optimal utilization and proper conse「vation of this natural resource. There is an imminent need to create greater social awareness about the rights and responsibilities in the use of water and to put in place better management practices in the utilization of this invaluable resource. It is also necessary to ensure people’s participation in wate「 sector within the framework of decentralized democratic institutions and to evolve suitable frameworks and strategies fo「 the continual up-gradation of water environment. Further, it is important to make sure that the right of every citizen to equitable access to water for his or he「 basic needs is protected and enforced through appropriate p。licy. legislative and pr。gramme initiatives. State Water Policy is, therefore, a necessary p「erequisite for pr。per planning, th。ughtful utilisati。n and sustainable management of water. It calls for a multidisciplinary and holistic approach that E。nsiders water as part of the ecosystem ford、e benefit of all and not as a comm。dityfor the profit ofa few. 1.2 . Guiding P r inciples Access to water is a human right. As water is a c。mmon heri臼.ge having econ。mic value, the resp。nsibil ity for its regulated use and conse「vation is vested with every citizen and c。mmunity. The 。wnership of water resides with the State as a publicly 。wned 「esource with entitlement b「 individuals, communities and service pr。viders to use water without owning it. In order to conserve and manage wate巧 mic「。－watershed have been considered as a basic unit and rive「 basi n, as an integrated unit of micr。－watersheds, shall define water rights and regulate water use.This will facilitate a 「esource-based approach, user participati。n and a sustainable and equitable water res。urce management. 1.3. Basic strategies A policy framework shall be adopted to E「eate an enabling environment for equitable, sustainable and productive management 。f water resources for ensuring public health, promoting growth and minimizing regional imbalance. This shall include rest「ucturing of roles and relationships of the State and water users for pn。moting efficient and pr。ductive use of water. It is necessa「Y to redesign the present institutional arrangements in order to guide and regulate water use and achieve better stakeh。Ider participation in planning. development and management of water resources at the river basin and micro-watershed levels. With a view to impr·。ving e何iciency and productivity, high priority shall be given for promoting and supporting the development, adaptation and dissemination of new and appropriate technologies in water resource management. 1 .4. 。bjectives The major。bjectives 。f this p。licyare t。： 己 Ad。pt integrated and multi-sectoral approach for planning, devel。pmenc and management。fwater resources. ~ Consider micro watersheds as the basic unit for the c。nse「vationand 。ptimal utilization ofwate「 resources for ach ieving 「es。urce sustainability. 。 Integrate the problems and prospects of wate「 resource systems by considering river basin as the basic Unit. ~ Emphasize the imp。rtance 。f c。mprehensive watershed conservation and management plan, water quality management plan, long-term sub-basin and 「iver basin operation and monitoring plan and State water resource plan. 』 Enable approp「iate institutional mechanism and legal measures for sustain由le water resource development and management. 1.5. Sta te of Water Resources There is a mistaken notion that water is abundant in the State. Though the State receives an average annual rainfall 。f 3000 mm, the undulating topography of the State coupled with deforestation and sand mining in the rivers lead to an accelerated draining of water to the sea. This is evident from the fact that the gr。undwater recharging has suffered and g。undwater levels have steeply declined .. 5 blocks have already been declared as over-exploited while I 5 blocks are identified as c「itical and an。the「 30 blocks as semi-critical. The widespread wetland system too has come under great strain by widespread conversion of paddy fields for non agricultural purposes, affecting the recharging of aquifers and water bodies. The pollution levels in the water bodies and drinking water s。urces have gone up at an ala「ming rate. Factors like unscientific waste disposal, lack of alacrity to protect the 「ivers and other water bodies and unplanned construction of toi lets in areas of high density of population have led to the steady deteri。ration 。f water quality. Kerala has not adequately resp。nded with appropriate water retention techniques and approaches to meet the challenge of the high rate of rund。wn. 缸盘 、，， 1.6. Issue s in Wat er Sector Water is an essent ial resource for d「inking and agricultural pu「poses .Ace。rding to Census, 200 I, about 77% of the rural population and 56% of the urban populati。n draw their drinking water from wells. This implies that a substantial number of 。pen wells and ground water sources which serve as drinking water sources need to be protected from bacteri。logical and chemical contamination. The demand for piped drinking water is bound to gr。w in a developing society. The operation and maintenance of drinking water schemes need constant improvement and modernization of the distribution netw。rk, treatment technol。gies and optimizati。n 。f del ivery. The existing demand-supply mismatch has to be addressed by perspective planning and the sustainability of water sources have to be ensured with the participation of stakeholders and Local Self Government lnstituti。ns . The technical supp。rt for integrated water 「esource planning at the level of Local Self G。vernments is grossly inadequate. This is a major handicap, which prevents the users fr。m involving and owning water related projects and schemes. There is a shortage of adequate facilities at various levels for testing water quality.This has to be add「essed. The total replacement of traditional systems by piped water supply need not be a goal as long as it is possible to ensure the safety of those sources of water.The ’polluter pays' principle is enforced only in the case of industrial discha「·ges for minimizing contamination of surface and ground water sources. The same app「'Oach needs to be extended to othe「 sectors too. The changing wate「 use habits and increased pumping have enhanced the chances of saline wate「 intrusion in coastal terrains.The extent of salinity intrusion in rivers also increased consequent to change in river flow regime. Irrespective 。f an irrigation potential 。f 15 lakh ha (net), the net irrigated area, as on 2004, was only 3.81 lakh ha.The water use efficiency of the existing i「rigati。n distributi。n system is poo「 with p。or corelation to ag「icultu「E P「oduction and productivity. 丁he major irrigation schemes have lost their bearing, especially with a fast changing land use pattern. Long years for completion of i「「igation projects and exorbitant costs have alienated them fr。m farmers' priorities.There is a need for g「eater accountability and transparency in the management and operation of major irrigation pr。jects.This is necessary to redeem their relevance for the farming sector. The minor irrigation schemes, irrespective of their appropriateness to Kerala conditi。ns, receive less attention with only about 14 t。 17% of the overall investment in irrigation sector. The traditional water storages are mostly dilapidated due to negligence. While there is increased spending in the water sector. maintenance has not received adequate attention. Participatory irrigation management is yet to be materialized beyond pil。t studies.Availability of water is not considered as a major crite「ion for industrial zoning. Lack of institu ti。nal 俨egimes for water a ll。cation and management at the river basin, sub basin and watershed level leads to sub optimal use of water. The efficiency of repeated utilization 。f tailrace water from hydroelectric projects needs periodical review.The management of wetlands f。「 sustainable fisheries. tourism, transportation etc. is als。 inadequate. II. Policy Parameters and Initiatives 2. 1 W ater Use Priorities The State shall foll。w the following priority for allocating water among the various categories of users. Such a pri。ritization will be primarily based 。n the integrity of Ec。system and will also cake into c。nsideration the physical. environmental and s。cial background of the state. 】 D。『nestic use " Agricultur在l use .:::. Power genera ti。n 。 Agro-based industrial use > Industrial and commercial use o All other uses The necessity of c。nservation, development and management of water resources based on the concept of watershed is inevitable for maintaining the ecosystem, integ「ity of rivers and river basins of Kera la. This is 。f special importance to Kerala because 。f the fragility of ec。systems. high density of population, changing water use habits etc. Government shall prio「itize the availability of water to vulnerable groups and take steps for the sustainable management and development of each river basin. 2.2.Water υse Entitlement The absence of clear and enforceable water entitlements at all levels causes service shortc。mings,water use ine仔iciency and conflicts. Therefore, the State shall establish a well-defined transparent system for water entitlements according to the guidelines and prescriptions made and accepted by the public at la「g巳 Government shall be guided by the realization that water as a community resource shall be primarily utilized for public benefit and individual's interest shall not be allowed to rake precedence over public interest. The commercial exploitation, use and transactions of water by private individuals and establishments shall be regulated. 2.3. Management ofExistingWater Resource Projects In order to analyze and improve the performance of al l water resource projects, benchmarking exercise shall be unde「taken and c。mpleted in a time bound manne仁 Considering the nagging issues of t ime and cost overruns of major and medium water resources projec巳， p时ority shall be given for c。mpleti。n of pending projects by stipulating cut 。仔 dates. po。ling and allocating resources and constituting special task forces for close m。nitoring and public accountability. Short term (annual) and long-term (five-year) management plans shall be prepared for all the major/medium irrigation and drinking wate「 systems using modern scientific tools. In all irrigation pr。jects, Participatory Irrigation Management (PIM) shall be implemented. In order to ensure efficient imple 『nentation 。f PIM, an exclusive legislation shall be enacted and necessary organizational and procedural changes shall be effected. The Dam Safety Authority of the State shall be equipped and strengthened for organizing scientific studies pertaining to dam safety, dam break analysis, disaster management and emergency preparedness planning etc. Safety monitoring as well as safety aspects of the structures shall be made transpa「enc. In order to have periodical evaluation 。f 陀source sustainability and assess the corrective measures required, if any, water audit shall be made compuls。ry for all the projects. 2.4.W ater Resource s Planning The sustainable development of water 「esources of the State calls for an ec。syst.em approach and it shall be facilitated th「。ugh micr。 watershed based planning and interventi。n. In the case of groundwater aquifers, the assessment and development shall be made based on the specific characteristics of respective aquifers. Detailed database on water at the micro watershed level shall be prepared in a participato「y mode and water balance shall be estimated at the watershed, sub basin and river basin levels. A state-level master plan for water resource development and management shall be prepared by compiling the status and action plans in each micro watersheds. subbasins and rive「 basins in a hierarchical form. The master plan, so prepared, shall form the b咀sis for development interventions and sectoral pri。ritization ensuring sustainability, equity and participation. The 。verall responsibility of implementation, management and maintenance of small and medium drinking water supply and irrigati。n schemes shall be shared with appropriate L。cal Self Governments and State Government based 。n sped白c guidelines. In order to improve the res。urce use efficiency, all the irrigation projects shall be considered as multi-purpose projects.The possibility of raising resources through alternate means and ensuring social equity through decentralized mode of intervention in water sector under L。cal Self Governments shall be utilized. In water resou「ces p「ojects, especially in ir「igation sector，由E future thrust shall be 。n medium and small schemes. The groundwater exploitation by pumping shall be regulated based on yield tests 。f wells. The concept of conjunctive use of surface and ground water resources shall be encou「aged in command areas and farmlands. In order to optimize the utilization of groundwater, awareness creation and capacity building shall be reso「ted to on the complexity and advantages of groundwater development and management. The conservation and management of t「aditional water resources structures with stakeholder parcicipati。n shall be adopted as an important practice. Artificial groundwater 「echarge measu「es shall also be prom。ted.E何ective measures shall be ad。pted to p「event the physical, chemical and biol。gical loading into wetlands. The paddy fields in the Scace shall be preserved for their environmental functions as well as agricultural values. Integrated management action plan for all the wetlands and thei「 drainage basins shall be formulated and implemented. The Fisheries and Wacer sectors are inalienably 「elated. Protecti。n of water bodies to sustain traditional 白shing activities will receive a high prio ric严 Appropriace measures for proceccion and development of water bodies will be adopted with a view to augmenting fish st。cks and ensuring livelihood security to the fishing c。mmunity. Participation of the stake holders, departments and agencies engaged in this sect。rwill be ensured in these efforts. Rainwater harvesting shall be given priority and promoted especially in the coastal and high range 「egions. Special incentives and support shall be extended to Local Self G。vernments and institutions for popularizing rainwater harvesting structures. The desalination of water, th。ugh a costly opt ion, shall also be adopted in c「itical areas afte「「ul ing out。ther alternatives. Adoption of app「opriate technology shall be made compulso「y fo「 water 「esource projec臼 considering its environment friendliness, economic efficiency, technical feasibility, safety and adaptability for enabling faster E「ansition to a dispersed p「oduction system. While planning projects, alternate plans shall be explored and their environmental viability examined for selecting the most optimal proposal. Environmental viability of projects shall be ensured using environmental impact assessment and implementation of environmental management plans. Disaster management plans shall be made essential for major projec巳. Peri。d ical environmental auditing shall also be made practice for ensu「ing the system sustainability. Alternate mechanism for financing water projects shall be considered. where appropriate, in order co introduce new technology and innovative financing. 。btain management expertise and improve the quality and cost-effectiveness of water services after ensuring accountability and equi俘 A detailed 「ehabilitacion and resettlement policy shall be necessarily formulated for the Stace and commissioning of a project shall be done only after implementation of rehabilitation and resettlement plan, if applicable. 2.5. Implementation of W ater Resour ces Projects Documentati。n and monitoring shall be made compulsory for project implementation with a view to ensuring timely realization of pr。jecc benefits and sustainability. In order co enable fast decision-making, speedy implementation and involvement of stakeholders in project implementation and management, necessary procedural changes and amendments to the existing codes and regulati。ns shall be made.The gaps in existing organizational setup for project implementation shall be identified and necessary changes adopted. Importance of time lines and quality c。ntrol in pr。ject implementation shall be recognized and appr。priate mechanisms for ensuring quality of works and timely implementat ion shall be st「engthened. In 。「der to monitor the e仔ectiveness of ad。pting the environmental management plans, pe「iodic environmental monitoring shall be made compulsory. The factors that lead to abn。rmal c。st escalation should be identified and necessary precautions should be taken to avoid this, by b「inging about m。re accountable and transparent practices and social audit and concurrent evaluati。n at every stage. 2.6. Water Quality M anagement The correlation of wate「 quality with public health is self evident. Suitable preventive and c。rrective measures, with active public part』cipation will be taken up under this policy to ensure the safety of drinking water. The quality 。fwate「 f。rdesignated uses shall be appropriately ensured. Regular water quality upgradation programs shall be undertaken, with the suppo「t of L。cal Self G。vernments, f，。「 the protection of water bodies under perpetual dange「s of pollution. The p「otection of existing water bodies shall be achieved by adopting approp「iate measures based on polluter pays principle. Community based water quality monitoring and surveillance of all drinking water sources of the state and timely remedial interventions shall be unde「taken on a co『1tinuous basis. Special drive for sanitizing all wells and improving their recharge shall be promoted. Effective steps shall also be taken t。 coordinate with the Agricultural Department for reducing the use of chemical fertilize「s, pesticides and weedicides to reduce land and water p。lluti。n. Z工 Environmental Int erventions in Water Se ct or Prevention of salt water intrusion into drinking water sources as well as low-lying cultivable lands will receive adequate attention. Vulnerable areas will be mapped and prioritized for taking up remedial measures. 丁here shall be specific plan of actions for implementing location specific sewerage system in all urban areas and appropriate sanitati。n systems in all rural areas. In order t。 。verc。me second-generaci。n issues in sanitati。n sector, appropriate sanitation sub policy and action plans shall be formulated and implemented.The potential for recycling and reusing of water shall be recognized and all wate「 users shall be directed to adopt measures through recycling for incremental reduction in wate「 extractio『l.The storm water drainages shall be rejuvenated based 。n urban watershed master plans. Drought prone ar四s shall be delin臼ted and prioritized for every river basin depending 。n the drought characteristics. Drought mitigation plans shall be given priority in the watershed master plans of such areas. C。ncurrentl严 the operations of reservoirs shall be scheduled in consultation with stakeholders. taking into consideration the meteorological predictions for the year. Protection. conservation and management of wetlands shall receive special attention of the Government through legal and programme initiatives. The management of wetland shall include Its utilization. maintenance and development within a conservati。n framework. The legislative measures shall address the aspects of regulation, administrative mechanism. enfo「·cement, participatory management, punitive measures etc. The watershed master plans 。f reserv。i r catchments shall be conservation o「iented and prepared in a participative manner for preventing def,。resta ti。n and excessive sediment yield.The summer Oow in the rivers shall be enhanced by extensive watershed c。nservation measures, river management act ions and appropriate reservoir operati。ns. Conse「vati。n of forests assumes great significance while implementing the Water p。licy as the rivers of the State originate in the Western Ghats. River management and regenerati。n programmes will be undertaken in keeping with the sprit and approach 。f the State Forest Policy. 丁he weaknesses in planning for a river system as a whole shall be corrected by revamping the p「esent piecemeal approach, which is mostly, based 。n engineering s。lutions. Multidisciplinary approach shall be ad。pted to find holistic and sustainable solutions. Master plans for the major rivers of the Sate shall be prepa陀d which will form the basis of any river-based project. The lowering of riverbeds Is due to excessive extraction of sand beyond the replenishment rate.This leads to curtailment of the base flow, reversal of the groundwater gradient, lowering of the g「·oundwater table, d「ying up of the wells and rivers during summer and enhancing saline water Intrusion. The riverine ecosystem has been highly tampered with adverse impact on its biological pr。ductivity and assimilative capacity. The effectiveness 。f existing regulatory measures brought about for c。ntrolling sand mining may be reviewed and made more effective and participat。ry in nature. This shall be done after exploring the possibility of making available construction aggregates and alternate building materials from 。ther areas or w ithin the state without affecting the environment. The implementation of pr。jects for mitigating the problem of coastal erosion shall be undertaken based on detailed coastal zone management plan and in consultation with the respective Local Self Governments. The c。astal protecti。n measures should be planned well in advance and transparently to avoid emergency measures and minimize wasteful expenditure. 2.8. Inter State Water Sharing Performance evaluation of all inter state water sharing arrangements shall be carried out peri。dically by the State and necessary action initiated to protect the interests of the State. Any further inter state water sharing shall be mandated by the Legislature. 2 .9. Institutional Mec hanism The existing institutions for g。verning water resources shall be reviewed with a view to attending to water resources on the basis of river basins and watersheds s。 as to ensure resp。nsibility for protection, conservation, development and management of the resources 。f rivers. There shaH be a State Level R.iver Au th。「ity, under which there shall be River basin and Sub basin organisati。ns. A wetland authority shall also be established in 。rder to ensure protecti。n , conservation, development and management 。f wetlands in the State.The rec。nstituti。n shall be d。ne in such a manner that it facilitates technical support to Local Self Governments in water sect。t Water Users Association/ Group and such other informal organizational mechanisms shall be considered for facilitating sustainable and equitable distribution of water resources. Effective functioning 。f the institutional set up shall be ensured through multi disciplinary and participatory approach. 2.10 Data Management and Information Syste m A system for periodical c。llection. compi lati。n and utilization of data per臼ining to water resources shall be established at the 「iver basin and state level. The role 。f R&D Centres and academic institutions shall be rec。gnized while establishing and operating the m。dern Database 问anagement System for water resou「cessect。「.There are als。 other agencies involved in the c。llecci。n of data pertaining to water sector including the Nati。nal Hyd「ology P「ojecc set up. The 。peracional practices of data collection and management shall be standardized and streamlined and subjected to periodi c evaluation, correction and calibr飞i.tio『1. ie da臼generated sha II I be put 。n the public domain. in order co ensure better transparency, utility and accountability. The advancements in the field of information techn。logy shall be utili.zed fully for the Database 问anagement System. State level institutional mechanisms should be evolved to ensure that data avai lable with different agencies are suitably pooled, shared and harmonized. 2. 1 I . Research, Developme nt andTraining The fr.。ntiers of knowledge in water and allied sectors shall be pushed forward through focused action research, devel。pment and promotion of state-of-the-art technology and training for effective and ec。nomic management of water resources. The se「vices of Centre for Water Resources Devel。pment and Management, othe「 R&D Centres and training instituti。ns shall be utilized appropriately. The requirement of earmarking at least half pe「 cent of the annual budget of I。cal governments and other user departments for S&T act.ivities, action research programmes, training and awa「eness campaigns related to water sect。r shall also be recognized. 2.12. Management competence of State W ater Services The cechn。logy transfe「 shall be encouraged on all technical assistance and consulting services. The training and R&D institutions in the water secto「 shall be strengthened t。 meet the cechn。logy requirements for supporting watershed/river basin planning and development. The need for capacity building, educati。n and access to information for enhancing the effectiveness 。f water management shall be recognized. A master plan for training the apex-functional-community level stakeholders shall be developed to mate「ialize the visi。n of the State Wate「 P。licy. In-service training and c。nstant up- gradation 。f human resources shall be pursued with a sense of urgency. Appn。priate training programmes shall be instituted for updating the knowledge, vision and management skills of professi。nals, bureaucrats and othe「。仔icia ls involved in the water sect。r. The capacities of existing institutions available in the sect。「 shall be shared and upgraded for this purp。se. The Panchayaci Raj institutions shall be capacitated for fulfilling their responsibilities in water and sanitation sector as envisaged in the Constitutional amendments.The functioning of Kerala Engineering Research Institute (KERI). Peechi shall be revamped and st renthened to enable it t。 carry out these tasks. The policy and operational issues in water and sanitati。n sector shall be periodically evaluated and s。luti。ns arrived at through a holistic appr。ach cutting across departmental bounda「ies using approp「iate mechanisms inv。lving the best expertise available in the state and the c。untry. Information, Education and Communication (IEC) programmes on a continuous basis shall be organized co raise the awareness l eve l 。f the community and other key stakeholders, t。 participate in developing watershed based action plans as envisaged in the StateWate「 P。Iicy. The facts and figures of state wate r sector and means and methods for sustainable utilizati。n of water and water conservation shall be included in the school syllabus and curriculum. The message for protecting the wate「「esources as a community property shall be c。ntinuously propagated in the State by imaginative measures and through suitable instituti。nal mechanisms. 2.13. Financial and Physical Sustainability The water charges f。「 vari。us uses shall be fixed in such a way that they cover at least the operation and maintenance charges for providing the service.The subsidy on water rates to the disadvantaged and poo「er sections 。f 由e society shall be continued. The rates for irrigation water shall be decided in such a manner that it conveys the scarcity value of water to users and foster motivation for econ。my in wate「 usage. The water rates shall be rationalized with due regard to the interests of smal l and marginal farmers. It shall be accompanied by volumetric measurement 。f wate「 consumption. There shall be direct public investments to locally planned and implemented programs to increase 「egi。nal wate「 se lf­ sufficiency. Inter-departmental financial 「es。urces linked to water sector shall be p。。led fo「 funding capital investment. A revolving fund shall be created for p「i。ritized activities in select areas. Government shall strive to achieve a paradigm shift in the management of water resources sector, with emphasis on the development and expansi。n of water resource infrastructure for diverse uses and improvement of the performance of existing wate「 res。urce facilities . Allocation 。f funds under the water secto「 shall be re prio「itized to ensure eq山table and sustainable development of water resou「ce and operation and maintenance of the facilities created. A Citizen's Charter shall be developed and published with a view to guaranteeing quality, efficiency. transparency and accountability in the delivery of drinking water and irrigation water. The prioritizati。n for incurring expenditure shall be for completi。n of 。n-g。ing and c。mmitted projects, modernization and 「ehabilitati。n of existing systems and prom。ting participat。ry irrigation management. 2. 14 . G e nder The crucial role that women play in the water 「esources sector shall be 「ecognized.Active involvement of women in the management of projects and pr·。tection of resources shall be ensured. The c。ncems of women in water management shall be duly add「essed. The administrative arrangements and decision making processes dealing with water res。urces management shall mainstream gender and be gen de「 sensitiveat all levels. 2.1 5. Legislation The provisions and adequacy of different regulations enacted in the water sector shall be reviewed and modified, if necessary. Wherever necessary, suitable legislations shall be enacted. Some 。f che aspects E。 be brought under new enactments are the water righ臼， pri。「itization of water use, groundwater expl。itation. bulk suppl严 water harvesting. transfer of irrigation systems to users, use of irrigati。n wate「 f。r drinking purpose, water pricing and subsidy norms. water conservation and harvesting，「ec。nstitut.ion of institutional mechanism etc. 2. 16. 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