This document summarizes efforts to strengthen water user associations (WUAs) in Rajasthan, India to better manage local water resources. 45 WUAs across 5 districts were supported. Initial challenges included opposition from some farmers and inactive WUAs. Interventions included building understanding of WUAs, strengthening governance, capacity building, exposure visits, forming technical support groups, and record keeping training. Outcomes included an improved institutional framework with active subcommittees, linkages between WUAs and government agencies, and indicators of success like fee collection, water distribution improvements, and infrastructure projects completed through community participation. The initiatives showed that with support, WUAs can effectively manage local irrigation systems.

1. Strengthening Institutions, Bringing Prosperity
Author- Bhuvnesh Sharma
Working as Project Officer and associated with Ambuja Cement Foundation at Rabriyawas
location since July 2012
Introduction-
Water is scarce everywhere but it is more scarce in the state like Rajasthan, and assumed as a result
of low rainfall. It can’t be said that low rainfall is not a reason of water scarcity but situation is
critical where water is being misused & not managed properly.
[1] WUA (Water Users Association) for participatory Irrigation Management is a well suited
institutional Mechanism in water scarce areas, appreciated worldwide. Because of misuse &
inequitable distribution of water resulting conflicts, created situation where farmer’s participation
was being to be seen as answer. In Rajasthan, WUAs were formed after enacting the Rajasthan
Farmers Participatory Irrigation Management System (RFPIMS) Act in 1990s. Water Resource
Development Department was assigned the responsibility to form & strengthen the WUAs
introduced from 2002-03 first time after commencement of Rajasthan Water Sector Restructuring
Project (RWSRP). Along with WRD (Water Resource Development Department), many
Voluntary Organizations also came forward & started promoting the WUAs, but due the target
oriented approaches & other factors they were not nourished & nurtured properly hence majority
of them became defunct & ineffective soon.
Context-
Rajasthan, the largest state of India is also one of the driest state. A significant part of its land is a
desert, and the state faces recurring droughts. The western Rajasthan forms the ‘Great Thar Desert’
with rainfall range up to 450 mm. In terms of per capita availability of water, Rajasthan had less
available water than in the country. This clearly reveals a most crucial and critical resource
situation and grave water problem for the people of the state.
Scarcity of water is generally imagined due to the low rainfall, but the actual reason always remains
hidden. Districts of western Rajasthan like Pali, Jodhpur, Jalore, Sirohi & Barmer, farmers are
using flood, small furrow & large furrow methods for irrigating their crops. This require large
quantity of water as water waste in these kind of irrigation methods. The present major water use
in agriculture sector, making up 83% of the total water use and hence every focus is needed to be
attached with the [2] PIM (participatory irrigation management) system.
The perennial issues in agriculture and irrigation sector of Rajasthan like low agriculture
productivity, water shortage, low irrigation efficiency, poor management practices, over-
exploitation of groundwater and financial constraint etc. have been binding factors upon the state

2. government to launch various water/irrigation sector projects to improve upon the irrigation and
agriculture systems.
WUAs as a single organized unit consisting of all the water users who are land owners in the
command area can take over the management and maintenance of the whole system of minor
irrigation scheme including (a) distribution of water among its users, (b) maintenance of the
system, (c) efficient and sustainable utilization of water, (d) collection of water charges, and (e)
dispute resolutions, etc. Though WUAs were formed during 2002-03 under Rajasthan Water
Sector Restructuring Project (RWSRP), adequate attention was not given to the process of
institution building, so that it would take care of water management responsibility. For practical
purposes they were defunct.
ACF, therefore, while working in the state thought of working on the issue of water management.
Coincidentally, Grameen Vikas Trust, the CSR wing of KRIBHCO, was assigned the work by the
Water Resource Development department to strengthen the institutional mechanism like WUA
(which was though formed by the Govt., remained virtually inactive because of various factors)
for effective management of water resources under RAJAMIIP. This created an opportunity for
ACF to build synergy with GVT and contribute in the initiative. Other NGOs also became part of
the consortium with GVT being the lead one.
Baseline survey that we conducted of the area, revealed that more than 78% of the farmers from
command area were using canal system for irrigation but they were dis-satisfied with the quantity
& frequency of water that they were getting. Following were the reasons-
Poor irrigation system- command area of WUA is divided in to three parts i.e. head, middle & tale
farmers. According to the PIM first of all water should reach to the tale farmers through [3]“Wara
Bandhi Method” but farmers were not following this method of irrigation. As majority of farmers
were doing flood irrigation hence both longer duration & higher quantity of water was needed. In
this way some of the farmers were getting more water than they actually required, while other were
not getting enough water to irrigate the crop.
Leakage Siltation in Canal & Water Courses- water courses and canal were constructed long ago
and also they were not managed & maintained properly, which caused they breakage resulting to
leakage problem. Also due to the siltation problem flow of water towards the end point was not
proper. At some points siltation of so thick that the water was not flowing forward but getting
waste due to over flow of canal.
WUAs were not active- because of lack of Interest of some of the WUA, they were not functioning
according to norms of PIM. There was also the problem of capacity & understanding to execute
their responsibilities, hence farmers were not in the control of WUAs.
Technical problems in Canal & water course- In some WUA enough water was available for
irrigation but the wrong designing & lining of water course and syphon, wrong leveling of canal
was creating problem in water flow due to which water was not reaching to each and every farmer.

3. Interventions-
Building Understanding about Current Status of WUAs-
ACF assigned task and intended herself for revival, making functional & building the capacities
of WUAs. To collect the information about the current status of WUA, membership, and its
participation in water management etc. profiling of each WUA was done through the Social
dynamics study and it was found that in majority of cases, community was not aware that there is
any institution in their village to manage and take decisions for water distribution. In some cases
the active members of PRI (panchayat Raj institutions) were known that who the members of
WUA’s [4]MMC are.
This time was bit hard for ACF team as we were having our existence in District Pali only while
we have to build the capacities of WUAs, which were falling into Barmer, Sirohi, Jodhpur &
Jalore districts also. Although these districts were adjacent of our current existence district but in
terms of area & distance this was far away (distance more than 200 km for Barmer, Jalore & Sirohi
districts). Also this time was very crucial as rapport among community leads to their support and
involvement which decide the success of the programme. Initially it was needed to made WUAs
active & functional which were become ineffective due to the reasons like, not having clarity of
their role & responsibility, not having knowledge of PIM and their rights, no capacity building
programmes etc.
Table no. 1- Project Features of ACF supported WUAs
Items Unit Pali Sirohi Jalore Jodhpur Barmer Total
WUA Number 23 16 2 3 1 45
GB
members
Number 12400 15216 1117
1931 295
30959
MMC Number 115 83 10 15 9 232
Villages Number 58 48 6 4 5 121
CCA hectare 10847.39 8895.50 887.51 2058.13 544.37 23232.9
(Source: Voter list of WUA provided by concern WRD offices)
Introductory Meetings with community & Initial Hurdle-
To initiate the process of making WUA functional and then there capacity building, we started
making contacts dialoguing with community informally. We also approached to WRD and asked
for the list of MMC of WUA and they provided it to us. When community came to know that we
as organization will be building the capacity of WUA for management & distribution of water,
few people started opposing us. They said many things like, who you are to interfere in the affairs
of our village, we do not need your assistance etc. Many times, when we tried to organize meeting
at village level these opponent people misguided the community and changed the whole scenario

4. of the meeting. Not only this but many times they also threaten the team members to not to entre
even in the village. Reason for doing all this was the apprehension of these people to follow the
processes of PIM, like equitable distribution of water, collection of water tariff, warabandi method
of irrigation (tail to head) etc. which they were not following. But the people who were
discriminated and suffered by such malpractices of these people were in need of some fair practices
of water distribution & showed interest in reviving WUAs. This helped us to build our
understanding that who can help us and dealing with whom will needed the careful action.
Strengthening the Governance & Regularizing the Meetings of WUA-
Besides engaging with community we were also trying to build rapport with different departments
like, WRD, agriculture and animal husbandry. We called and involve the village level/ ground
level officials of these departments in the village level meetings. These officials supported us and
came to village and talked to community about the project and ACF also. This helped us to draw
the support of PRI members. Gradually this made the conducive environment to conduct the
orientation meeting of WUAs. After 3-4 months of hard time we started conducting regular
monthly meetings with WUAs.
Capacity building of WUA-
For the capacity building of WUAs we followed the pre designed schedule/agenda as per the
guideline of Project. Scheduling of trainings was done through the monthly meetings as per the
project guidelines and the module of training and agenda were designed by IMTI (Irrigation
Training & Management Institute), Kota. Along with the Orientation Meetings, monthly meeting
of WUA which were organized twice in a week, we conducted various activities for the capacity
building of WUAs. The activities included mass awareness camps, Record Keeping Meetings,
Training of MMCs, Exposure visits of Presidents of WUA, meetings of members of General Body,
meetings for pre & post cropping season and practice on water tariff collection, Meetings for Water
course rehabilitation works, Meetings with WUA members on soil testing, Meetings with WUA
members on transfer of management to WUAs for operation and maintenance etc.
Exposure Visits-
Exposure visit of WUA Presidents to other parts of country where WUAs are working from longer
time and performing their functions properly was a great help. This exposure was organized in
Jalgaon, & Shri Datta Pani Wapar Sansthan at Maharashtra. Where the WUA members are
making the irrigation plan, doing crop planning, collecting water tariff, doing revenue generation
activities, resolving their internal conflicts and maintaining proper record also.
After coming back from exposure visit some of the WUA Presidents like Salnadi & Girwar WUAs
decided to initiate the activities which they have learnt. But it was not easy for them also to initiate
this process. They were opposed by the farmers of the area. It was said that govt. will collect the
water tariff we will not pay you, there is no need of membership fee as this dam is of govt. they
will manage it by their funds etc. The reasons behind doing this previously farmers were not paying

5. the water tariffs to govt. and if paid it was not the actual amount as they did not disclosed the total
cultivated land
As facilitator we realized that the exposure visit of one member is not enough for mobilization and
putting the things into work. Looking at the level of difficulty further MMC of WUA were send
for IMTI, Kota for their capacity building on PIM their roles & responsibilities and some other
technical aspect of WUA management. This worked more in our favor and the practice of annual
membership fee collection, water tariff collection initiated in some of the WUA. But still not all
WUAs were collecting the revenue & water tariffs.
Formation of Technical Support group & subcommittees-
Making the irrigation plan was also difficult for the WUA, because they have to ensure the
equitable distribution of water among all the farmers of command area. We seek the support of
[5] DTSG (District Technical Support Group) comprising District Collector as Chairmen, Director
of Agriculture as Coordinator, & Head of other departments as members. This DTSG guided their
field level officials to form a WUA level TSG i.e. [6] WTSG to provide technical support at field
level. In each WTSG there were 4 members i.e. President of WUA, 1 aware farmer of command
area, Field officials from WRD & Agriculture department.
This WTSG promoted WUA level subcommittees like – Irrigation committee, Chak committee &
construction committee. In each committee farmers from head, middle and tale region. As
irrigation committee has to play the major role hence, WUA incorporated the officials from WRD
and agriculture department were involved in it.
ToTs & Training of subcommittee members –
Execution of the role & responsibilities of these committees required the capacities of the
members. IMTI kota designed the module of training for the members of WUA (subcommittee).
To provide the handholding support to WUA after the trainings, ACF staff mainly Community
Organizers (4 in no.) which were recruited from the local community (project villages) themselves
underwent these training referred as [7] ToTs (Training of Trainers). These ToT were provided in
two phases for 4 days and 3 days respectively. Focus of these training was on State water policy,
availability of ground water, judicious use of water Role & responsibility of committees,
Measurement of flow, gauge record and water and equipment used for the same. Types for
distribution of irrigation water and importance of warabandi, Operation plan and maintenance of
canals etc.
After the completion of ToT now we have to build the capacities of WUA members on the same
subjects. WUAs decided to organize these training in monthly meetings as they were meeting
twice in a month. Apart from this farmers were strengthen about crop planning, crop
diversification, fertilizer application and soil testing.
Facilitation for systematic Record Keeping-

6. Some of the WUAs like Goradra were Salnadi were maintaining records like meeting register,
cash book, ledger, inward & outward register, stock register etc. record keeping practice of these
WUA replicated in all the WUAs to develop a more transparent system of WUA but there were
problem in maintain records properly. ACF suggested to appoint a local person to maintain the
records but the problem was, from where the payment will be made to him? Solution of this itself
came from WUAs who started collecting water tariffs and annual membership fee. It gave an
option to all the WUA to appoint the water master and an opportunity also initiate the process of
water tariff and membership fee collection. After discussion all the 45 WUA deployed water
master for looking after the functions of record keeping, & collection of water tariff. Training to
these water masters was provided in 9 Batches for 3 days each. Subjects of these training were,
Record keeping (cash book and ledger writing), Communication and motivational skill
development, Water budgeting and crop water requirement & Water tariff collection etc.
Initiating & strengthening Linkages between WUA & WRD-
WUAs were making regular contacts with WRD and created a good impression among officials.
To meet out the technical problems of water course, syphon and canal water resource which were
creating major hindrance in reaching water to each and every farmer. WRD asked WUA to take
this work with in this and contribute 15% of the total cost of the work either through the cash or
through Shramdan. Out of 45 WUA 40 WUAs were agreed as they know that this cost is nothing
if they will get adequate water for irrigation. After 2-3 meetings with each WUA 38 WUA signed
MoU with WRD.
By the time and through the capacity building phase not all but majority of WUAs gone through
remarkable makeover, which reflect through the indicators like, 18 WUAs started collecting
annual membership fee which is Rs. 1.86 Lakhs, collection of water terrify from the farmers and
deposition to WRD this is Rs. 1.51 lakhs, out of 38 WUAs, 7 completed the water course
rehabilitation and 31 about to complete, WUA members who were not sitting together even in their
village are organizing cluster level meetings (8 cluster level meeting organized during the Project
Period), Few WUA Presidents from WUA like Biratiya Khurd & Jhuta for “Certificate of
Appreciation” for doing wonderful work in WUA management. Looking at the efforts of WUA
government provided and office building and furniture of Rs. 10 Thousands to each WUA where
these WUA can organize their meeting and keep their records and assets.
Outcomes-
Developed Institutional Framework-
Formation & Strengthening of Technical Support Groups & Subcommittees at WUA level, gave
WUA strength. Assigning role & responsibilities and performing duties need active participation
of all, which is visible in majority of WUAs. Making [8] chak plan & resolve irrigation related

7. problems was responsibility of Chak Committee, Collection of water tariff was the task of
irrigation committee and look after the civil & other construction related works was the task of
Construction committees. Farmers from head, middle & tail reasons were involved in these
committee and all of them were working in close coordination with each other.
More Transparency in the System-
Earlier either there was not recording or the records were not proper& the record keeping practice
was a big question. But now more than 50% of WUAs are maintaining 6- PIM registers (Meeting
Register, Stock Register, Cash Book, Ledger, inward register & Outward register), Bank account
of WUA, Chak Plan, list of farmers and detail of command area, estimates of works, copy of MoUs
etc. WUAs now have a mechanism & practice of giving receipts against the collection of water
tariffs & membership fee. These practices evolved a better & transparent system to keep the
records and managing funds. This system helped WUAs to gain the confidence of farmers also.
Water now reaching to the Last Mile-
Efforts which were made by our team for the Capacity building of WUAs, made them active and
as WUA became functional they took various initiative to improve the irrigation system in their
command area so that each and every farmer can have water to irrigate their crop. warabandi
method of irrigation, Rehabilitation of Canal, Water courses and syphon are the major initiatives
Box no. 1 We are Transparent, we have records
Name of the WUA : Salnadi
District : Pali
President : Sh. Udaram Regar
WUA salnadi comes in Raipur Panchayat Samiti of District Pali and was formed in 2009. After
its consideration in RAJAMIIP project ACF started conducting monthly meetings on regular
basis. President of WUA is a retired teacher he went on exposure to Shri Datta Pani Wapar
Sansthan, Maharashtra. Where he has seen various records those WUA were maintaining.
President Mr. Udaram was quite keen to discuss this with his WUA members and initiate the
same practices in Salndi WUA. As he returned back from this Visit he called a meeting of WUA
and he discussed his experience with all the members. After that WUA decided to maintain
records. Initially they themselves started writing meeting minutes then communication through
letter started. For which they started using letter heads they also started maintaining dispatch
register and inward register. Gradually it became their practice and they started maintaining
stock register of purchasing of material. For keeping the record of funds like membership fee,
WUA maintaining fee receipt, Ledger and cash book. Each and every record is being
maintained by WUA properly and by themselves only. For keeping bill and vouchers WUA is
also keeping voucher file. Keeping all these records has resulted a transparent system and trust
among WUA members.

8. in this regard. Canal used to be open 24 hours during the time of irrigation where command area
was large. These efforts are WUAs are now making water available to each & every farmer.
Improving Relations of WUA & WRD-
Efforts made by the WUAs gave them recognition in WRD and became the decision makers for
their command area. Previously water tariffs were being collected by the WRD but not as
efficiently and effectively as WUAs are now doing. Operation & Maintenance of 27 Dams have
been transferred to WUAs.
WUAs will now Remain Functional-
WUAs, existence of which was not even in the knowledge of community and in some cases not
even in the members itself, are now conducting regular monthly meetings. Farmers are
participating in these meeting and bringing their problems in the notice of subcommittees.
Subcommittees resolving the problems of farmers at the best that they can. Processes like fee
collection, warabandi, crop planning are being adopted by the WUAs. All these indicators shows
that these WUAs will sustain and remain functional.
Learnings-
Democratic & Informed way of Institution building decides sustainability-
While formation of any institution it must remember us that maximum people from the community
knows the process & they were present and took part when that institution was formed. Formation
of WUA didn’t formed the said process, which made them defunct and ineffective. We as
facilitator could have re-elected the MMC but it would have created conflict and raised political
issues. But we formed the subcommittees under the control of MMC with the process of
democratic approach. It helps WUA to realize their responsibilities and strengthened them.
Flexibility is often key to success in peoples Institutions-
Each WUA have to conduct two meetings in a month and schedule and agenda of these meetings
were prescribed. These guidelines of the project were to give the directions only but somehow
these guidelines bound the team to take discussion with WUAs, & many times they skip the current
need and issues of farmers to address. Because of this we lose active participation of farmers in
the meetings. Hence it is required that make flexible agenda and give farmers space to discuss the
issues that they wanted to and of their interest.
You just facilitate & Let them Decide-
When it was decided that each WUA has to contribute at least 15% of the cost of water Course
Rehabilitation works, it became an issue. MMC raise their hands to guarantee the 15%
contribution. Than meetings of WUA GB (General Body) members were called. Large farmers
were agreed to pay the contribution in cash but it was difficult for small farmers to contribute.
Some of the WUA members suggested to contribute in labor works but it was also difficult to

9. decide that which farmer will contribute how much labor, as there land holdings were different.
But they themselves decided to divide the length of water course in 1000 Meter length and farmers
whose land in falling in this area will contribute15% of the cost incurred.
Conclusion-
The intervention of capacity building & strengthening of WUA, revived and made WUA
functional, which were so called Existing. Now the farmers have a platform where they may come
up with their problems related to agriculture and irrigation & getting resolution also. WUA
initiated the Warabandi method of irrigation which has established a fair system for equitable water
distribution. Participation of farmers in decision making, giving resolution to the internal conflicts
of farmers. They are now paying water tariffs and membership fee and contributing in operations
& management of WUA.
Note-
[1]
WUA- Water Users Association is a body comprising all the farmers of command area of any particular
water body (Pond/Tank/Dam).
[2]
PIM- Participatory Irrigation Management refers to a management approach that embraces the involvement
of the people who directly use the irrigation water: farmers
[3]
Warabandi method of irrigation- A rotational method for equitable distribution of the available water in
an irrigation system by turns fixed according to a predetermined schedule specifying, day, time and duration
of supply to each farmer of the command area.
[4]
MMC- Members of Management Committee- is democratically elected body of a water user association
responsible for management & distribution of water of a particular water body.
[5]
DTSG- District Technical Support Group- committee of district level officials (head of departments) and
District Collector as Chairmen was formed to provide technical support & guidance to all WUAs of the
district.
[6]
WTSG- WUA Technical Support Group- is WUA level group formed for individual WUA to provide
support & guidance in making water distribution plan, crop plan, tariff collection etc. It comprises of WUA
president, one aware farmer of the command area, & field level staff from agriculture & WRD departments.
[7]
ToT- Training of Trainer- organizational staff, who is responsible for project implementation underwent
designed training programmer and delivered these trainings to the WUA members for their capacity
building.

10. Sketches-
1. Conflict among farmers- Showing conflict among farmers, some farmer getting sufficient water but
land of some farmers remains dry because of mismanagement & inequitable distribution of water.
2. Capacity building Programmes- ACF- providing training to WUA on water management, irrigation
plan, collection of tariffs etc.
3. Conflict resolution by WUA- issue raised by farmers in meeting, WUA giving resolutions to farmers
and farmers agreed on it.